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HONOLULU WATERFRONT MASTER PRE-FINAL REPORT , 000 @ I @ OPT, @ @Mvl , MAIW Li L-"P )o Fj 1@ @ '' @V @@ -,s7 H 57 1161 -M m mm @ m m m m = mm mmm I I I HONOLULU WATERFRONT I Pr I I -1 'I I I A 1 0 Prepared for: The Prepared by: Helber, HaE I I - - and R.M. Towiil Corp -1 .1 ACKNOWLEDGEMENT Helber, Hastert & Kimura, Planners and R..M. Towili Corporation, a Joint Venture, wish to acknowledge the contributions of the following subconsultants which have participated in a team effort to produce this report: - Moffatt and Nichol, Engineers: Harbor Planning - John Child & Company, Inc: Market Assessment - James T.. Funaki, Attorney: Legal Considerations - Dean Witter Capital Markets: Public Finance - Pacific Planning & Engineering, Inc: Traffic - Earthplan: Social Impacts - Edward K. Noda and Associates, Inc: Ocean Engineering - William A. Brewer & Associates: Marine Environment - Michael S. Chu, Land Architect: Landscape - Sutton Candia Partners: Architecture - Tom Coffman Multimedia: Historic Programs J.W. Morrow: Air Quality Darby & Associates: Noise Ronald N.S. Ho & Associates, Inc: Electrical Engineering Geolabs-Hawaii: Geotechnical Considerations Woodward-Clyde Consultants: Geotechnical Specialists Jason Lembeck & Associates: Petroleum Facilities FPS Engineering Associates: Cost Estimating TABLE OF CONTENTS 1.0 INTRODUCTION 1.1 Purpose ........................... ......... 1-1 1.2 Report Outline ....................................................... 1-2 1.3 Planning Process .. **** ****" ........... *****'*".'* ...... *'*"***'* 1-3 2.0 DESCRIPTION OF THE PLANNING AREA 2.1 Overview ................................................................. 2-1 2.2 Subarea Description ............................................. 2-5 2.3 Infrastructure Systems .......................................... 2-27 2.4 Present Jurisdictional Controls ............................. 2-37 2.5 History .................................................................. 2-45 2.6 Major Planning Proposals ..................................... 2-52 3.0 THE MASTER PLAN 3.1 Overall Waterfront Goals ....................................... 3-1 3.2 Planning Overview ................................................ 3-6 3.3 Development Program .......................................... 3-12 3.4 Recommended Development Plans ...................... 3-24 4.0 FINANCIAL PROGRAM 4.1 Overview and Conclusions ................................... 4-1 4.2 Major Public Project Costs .................................... 4-6 4.3 Public Finance ...................................................... 4-13 4.4 Public Revenues ................................................... 4-38 4.5 Public Cost Benefit. Assessment ........................... 4-51 Table of Contents (cont'd) 5.0 MANAGEMENT FRAMEWORK 5.1 Problem and Purpose ......................................... 5.2 Methodology ...................................................... 5.3 Overall Plan Management Requirements ............ 5.4 Existing Management Framework ...................... 5.5 Typology of Management Structures .................. 5.6 Alternative Management Frameworks ................ 5.7 Recommended Management Framework .......... 5.8 Project Management Requirements .................... 5.9 Conclusion ......................................................... 6.0 ENVIRONMENTAL ASSESSMENT 6.1 Scope ................................................................. 6.2 Maritime Industry ................................................ 6.3 Traffic/Transportation ......................................... 6.4 Air Quality ........................................................... 6.5 Noise ............................................................. 6.6 Ocean Engineering ............................................. 6.7 Marine Biological Resources ............................. 6.8 Infrastructure and Public Services ..................... 6.9 Petroleum Facilities ............................................. 6.10 Social/Relocation Impacts .................................. 6.11 Historic Resources ............................................. 6.12 Geotechnical Considerations ............................. Table of Contents (cont'd) List of Figures 1. Organization Chart ................................................................. 1-6 2. Project Schedule .................................................................... 1-11 3. Honolulu Waterfront Planning Area .......................................... 2-2 4. Major Existing Sewerage, Drainage and Road Systems ........ 2-28 5. Major Existing Water Supply and Electrical Power Systems .. 2-34 6. Land Management Responsibility .......................................... 2-40 Evolving Honolulu Shoreline .................................................... 2-46 8. Short-Range Plan .................................................................... 3-28 9. Long-Range Plan .................................................................... 3-36 10. Kewalo/Kaka'ako/Downtown Subarea ................................... 3-41 11. View of Kaka'ako ................................................................... 3-53 12. lwilei/Kapalama[Sand Island Subarea .................................... 3-59 13. Keehi Lagoon Subarea .......................................................... 3-66 14. View of Keehi Lagoon ............................................................ 3-69 15. Barbers Point Harbor Subarea .............................................. 3-70 16. Circulation Plan ...................................................................... 3-72 17. Open Space/Recreation Plan ................................................. 3-80 18. Future Sewerage and Drainage Systems ............................... 3-84 19. Future Water Supply and Electrical Power Systems .............. 3-90 20. Waterfront Development Parcels ........................................... 4-41 21. Land Ownership and Jurisdiction .......................................... 5-8 22. Honolulu Harbor and Vicinity ................................................. 6-4 23. Aircraft Noise Contours for Year 1987 and 1992 ................... 6-24 24. Existing Gas/Petroleum Pipelines in the Waterfront ............... 6-62 25. Honolulu Waterfront Historic Sites ......................................... 6-76 26. Location of Soil Borings and Monitoring Wells at the Kaka'ako Landfill ....................................................... 6-82 Table of Contents (cont'd) List of Tables 1 . 2010 Projected Maritime Shipping Space Requirements 2. 2010 Projected Misc. Maritime Space Requirements ........ 3. 2010 Projected Commercial Space Requirements ............ 4. Overall Public Costs ........................................................... 5. Alternative Public Financing Techniques ........................... 6. Waterfront Development Parcels ...................................... 7. 1985 Screenline Volume and Capacity .............................. B. Existing Capacity Along Nimitz/Ala Moana ....................... 9. 2010 Traffic Impact (Afternoon Peak Hour) ...................... iv 11 .I I I I I I I I I I A I 1.0 1 - T- -j I I : I J Previous planning for. the Honolulu waterfront has generally been functionally related, often fragmented within separate jurisdictional areas of responsibility. Because of the wide range of land and water uses and the complexity of the management framework associated with the waterfront, past plans and proposals for the waterfront area have lacked a comprehensive and integrated vision for the future of this significant public resource. To overcome these deficiencies, and to promote a comprehensive, functionally integrated vision for the waterfront, the Governor's Office of State Planning (OSP) was directed to prepare a. master plan for the entire Honolulu waterfront. The Master Plan Report documents the overall planning process, provides a comprehensive description of the planning area, and identifies short and long range development plans for the Honolulu Waterfront. The plan also addresses fiscal implications, recommendations for changes to the present management framework necessary to implement the master plan and major environmental consequences of plan implementation. This Pre-Final Report of the Honolulu Waterfront Master Plan will be submitted for review by the 1989 Legislature. The Final Report will be prepared in June 1989 and Will incorporate additions and changes generated during the Legislative session. 1.1 PURPOSE The Honolulu Waterfront Master Plan represents a comprehensive, long range vision for the Honolulu waterfront. It recognizes the importance of the Port of Honolulu as the lifeline of state-wide commerce and, at the same time, provides for the recreational, cultural and economic needs of a growing population. The plan directly addresses the major planning issues concerning p use of the waterfront, long-term integrity of commercial maritiME implementation, relocation needs, and financial feasibility. The purpose of the Plan is three-fold: * to identify and articulate. a long-range vision for the Ho that is fiscally responsible but also innovative, challengin to the current and future needs of Hawaii's residents; e to assure a logical, orderly and achievable phasing of in manner that minimizes social, environmental and econo *to maximize public benefits associated with the improv nificant state-owned lands located within the waterfront 1.2 REPORT OUTLINE This Pre-Final Report consists of a number of major elements ly, represent the approach, direction and substance of the V Plan. Chapter 1 presents an introduction of the Plan, includin overall planning process. Chapter 2 provides a description of and includes a review of the relevant history and major plans an for the area in the recent past. Chapter 3 presents the concep cludes a discussion of the overall waterfront goals for the waterf ment program, a discussion of the overall themes/vision whi waterfront and provide for diversity and interest, and a descrip mended short- (5-10 year) and long-range (20-40 year) devel Chapter 4 presents a review of the major project costs, publi tions, public financing alternatives and an assesment of the o and benefits of the recommended improvements. ChaptE analysis of management framework alternatives and includes framework to implement the master plan. Finally, Chapter 6 p nary environmental assessment of the master plan recommer 1-2 1.3 THE PLANNING PROCESS This section begins with a review of the major events which shaped and focused public attention on the waterfront, leading up to the 1988 Legislative appropria- tion of funds to prepare the Honolulu Waterfront Master Plan. The scope of work and timetable for plan preparation is then reviewed, followed by a more detailed discussion of the three major work elements. 1.3.1 Background The Honolulu Waterfront plays a very special role in the State of Hawaii and par@ ticularly, Honolulu. Located in the center of the City, the waterfront contains Honolulu Harbor, thd heart of the state-wide harbor system, and the major cen- ter of commerce and maritime activities. Moreover, the waterfront provides the potential to accommodate expanding recreational and cultural needs of Honolulu's residents as well as areas for future urban growth. 1987 Legislativd Session. The 1987 State Legislature recognized the substan- tial potential of the Honolulu Waterfront to serve the future needs of Hawaii's resi- dents. Act 355, SLH, 1987, in part stated: "The legislature finds that the waterfront of Honolulu is a vital sector of the city with great potential to serve the economic, Maritime and recreational needs of the state." Waterfront Charette. In September 1987, Governor Waihee launched a "waterfront reawakening" effort declaring that the time had come to enjoy again the waterfront as a people-oriented gathering place. Announcing that the "area is ripe for change," the Office of State Planning (OSP) was charged with the task of organizing the development of a coordinated master plan for the Honolulu Waterfront. In cooperation with the Hawaii Community Development Authority (HCDA), OSP embarked on a preliminary. effort aimed at generating ideas and community dialogue on how best to develop the urban waterfront. Public policy makers, leaders from the business and financial community, environmental and community organizations were brought together in a series of meetings to share 1-3 their thoughts and concerns on the subject. Based on this design teams from the Hawaii Society of the American Institute the Hawaii Chapters of the American Planning Association a Society of Landscape Architects engaged themselves in an in brainstorming process known in the design community as a well-publicized event resulted in the creation of three alternati waterfront, each with a separate emphasis on commercial recreation/cultural possibilities. These bold design concepts se awareness of the tremendous opportunities and latent potenti Waterfront. Governor's State of the State Address. In January 1988, th( State of the State address to the opening session of the Legi to the Legislators to hold "unreasonable expectations" - to as gressive role as "investor, participant and catalyst in creating ment which would best nurture the vision of a Pacific commL twenty-first century." With regard to the Honolulu Waterfro specifically urged the Legislators to: 1) purchase the Kapalan vation from the Federal government to open new lands for mar 2) appropriate monies to make the Barbers Point harbor a full bor; 3) appropriate monies to clean up Keehi Lagoon; and 4) fu area-wide plan and development program for the waterfront. Richard Wong and Speaker of the House Daniel Kihano a revitalization of the Honolulu Waterfront in their legislative age Waterfront Redevelopment Work Group. Also in January legislators appointed by the House Majority Caucus (Waterfron Work Group) submitted its report to the Majority Caucus. mented the process by which the members went about their highlighted a number of key concerns/issues which would nee( in a comprehensive waterfront planning effort. The Work Grou the preservation of commercial maritime activities within Honol sential to the economic well being of the islands." The report the need for "a comprehensive planning vision" and the need 1-4 ternative management frameworks for the waterfront to simplify what it termed a "complex bureaucratic pattern" of jurisdictional controls within the waterfront area. 1988 Legislative Session. With strong Administrative and Legislative consen- sus on the significance of the waterfront as a vital public resource, the 1988 Legis- lature provided the Office of State Planning with necessary funds to prepare a comprehensive master plan and long-range development program for the Honolulu Waterfront. 1.3.2 Organization, Scope of Work and Timetable a. Organization As discussed above, the 1988 Legislature vested the Governor's Office of State Planning (OSP)*with the responsibility of preparing a comprehensive master plan for the development and improvement of the entire 1,550 acre, six mile coastal stretch of the Honolulu Waterfront from the Ala Wai Yacht Harbor to the Honolulu International Airport. As an initial step in fulfilling its mandate, OSP prepared a preliminary work program and one-year timetable for completion of the master plan. The work program envisioned three discrete but inseparable elements: 1) technical planning studies and master plan preparation; 2) public participation and awareness and, 3) interagency coordination. In May 1988, OSP retained the Honolulu-based planning and engineering firms of Helber, Hastert and Kimura, Planners and R.M. Towill Corporation as a Joint Venture charged with conducting the necessary technical planning studies and preparation of the master plan (Figure 1). To accomplish this, the Joint Venture assembled a technical planning team comprised of planners, engineers, harbor planners, environmental scientists, sociologists, economists and legal experts. Each specialty was charged with identifying constraints, opportunities and im- pacts within its respective area of specialization. OSP retained the role of over- all project manager assuming direct responsibility for the formulation and management of the public participation and awareness programs and the inter- 1-5 agency task force, comprised of key representatives of major St County agencies with jurisdiction within the waterfront planning FIGURE: 1 ORGANIZATION CHART PUBLIC OFFICE OF I PARTICIPATION STATE PLANNING C AND AWARENESS TECHNICAL PLANNING RESPONSIBILITY Helber, Hastert & Kimura Planners and R. M. Towill Corporat a Joint Venture I TECHNICAL SUBCONSULTANT TEAM b. Technical Planning Studies and Master Plan Preparatio In collaboration with OSP, the Joint Venture prepared a detaile and timetable to complete the Waterfront Master Plan. The s eleven major steps summarized below. Step 1 Inventory of Existing Conditions � Define Study Parameters � Assemble Physical and Socio-Economic Base Data 1-6 Review Existing Regulatory Policies, Controls and Other Legal Issues/Con- cerns Review Existing Development Proposals *Summarize Existing Conditions, Issues, Opportunities and Constraints Step 2 Technical Studies and Analysis *Identify Subareas for Special Studies and Analysisinitiate Demand/Capacity Studies *Investigate Potential Implementation/Financing Approaches Step 3 Development Program Prepare Development Program Step 4 Planning Concepts and Conceptual Framework *Prepare Planning Concepts Prepare the Conceptual Framework Step 5 Evaluation * Prepare Environmental Assessment of Impacts * Conduct Preliminary Benefit/Cost Assessment e Refine Planning Concepts Step 6 Implementation Strategies *Prepare Development Schedule Prepare Development Cost Estimates *Develop Financing Strategy/Program 1-7 *Develop Management Framework Step 7 Preliminary Plan and Priority Projects *Prepare Preliminary Plan Report Step 8 Recommended Plan * Prepare Pre-Final Master Plan Reports and Briefing Mate Step 9 Review and Approval * Governor's Approval e Legislative Review Step 10 Final Plan * Prepare Final Master Plan *Prepare Final HCDA Kakaako Plan and Rules Amendme Step 11 HCDA Requirements * Inventory, Technical Studies and Analysis * Prepare Kakaako Waterfront Plan * Prepare Supplemental Environmental Impact Statement *Formulation of Implementation Rules/Guidelines 9 Coordination and Documentation An important element of the scope of work (Step 2: Techn Analysis) is the detailed assessment of commercial maritime the Honolulu, Kewalo and Barbers Point Harbors. The internatic harbor planning firm of Moffatt and Nichol, Engineers of Long was retained by the Joint Venture to conduct this investigation. 1-8 Requirements, is also an important aspect of the scope of work, involving close coordination with the Hawaii Community Development Authority in the prepara- tion of the Kakaako Waterfront Plan (a subarea of the Honolulu Waterfront Master Plan), a supplemental environmental impact statement for the HCDA Makai Area, and revised HCDA Rules/Guidelines for this subarea. C. Public Participation and Awareness As discussed previously, the OSP/HCDA Waterfront Charette process con- ducted in late 1987 focused public attention on the central waterfront area. A series of ten workshop sessions involving over 200 key representatives of government, business. and community groups was conducted to. identify problems, issues and opportunities for the future of the Honolulu Waterfront. With input from these groups'and subsequent research and evaluation, OSP developed an "interactive planning process" to facilitate dialogue on community issues related to waterfront renewal and development. The primary objectives of the interactive process are: * To offer affected interests an opportunity to constructively contribute to the plan development process. 9 To foster agreement on planning direction and implementation strategies where possible and to acknowledge differences as appropriate. * To forge a collaborative relationship among government agencies, elected officials, community groups and private interests in support of the plan's implementation. The major elements of the public participation and awareness program designed by OSP consist of: 1) focus group meetings, 2) newsletters, 3) outreach and community presentations, 4) workshops, and 5) public information meetings. The publication of a Preliminary Report (discussed below) was also a major com- ponent of the participation/awareness program as it provided a substantive vehicle for public review of the progress and direction of the master planning process. The participation/awareness program has involved a significant cross section of the community in an informed dialogue focused on identifying the 1-9 needs, aspirations and concerns of the greater community. Th pressed by the community in the various forums have been d recently published Public Participation Report and incorporate goals discussed in Section 2.1, and have helped to shape and r proposals set forth in the master plan. A Preliminary Report of the Honolulu Waterfront Master Plan November 1988 to provide, at the earliest practicable time, suffi on the approach, direction, preliminary findings and concept waterfront planning effort and to allow for substantive review a policy makers, public agencies,. community groups and organ public at large. Comments received from reviewers of the Preliminary Report ' WE into the ongoing evaluation process, leading up to the prepara Final Master Plan Report. Following the close of the 1989 Leg all subsequent comments and suggestions for plan modif evaluated and, where appropriate, incorporated into the Final M published in June 1989. d. Interagency Task Force Vitally important to the success of the comprehensive plannin@ involvement of all affected agencies having jurisdiction within the Accordingly, OSP has assembled an Interagency Task Force, c representatives from Federal, State and County agencies incl Army Corps of Engineers, the Hawaii Community Developmer State Departments of Transportation, Business and Economi Land and Natural Resources and the City and County of Hon force meets on a regular basis to discuss the progress of the M close coordination offered by the interagency task force approa formation flow between the planning team and the various age cumulated expertise of the agency representatives provid resource/input into the plan formulation process. At the same ti dissemination of draft work products allows for the respective 1-10 sess overall direction of the planning process and, where appropriate, adjust or fine tune programs in anticipation of the Final Plan. e. Timetable The project schedule for the technical planning studies, master plan preparation, and HCDA work is presented in Figure 2. Major reporting deadlines (indicated with a box) include the previously submitted Preliminary Plan in November 1988-, submittal of this Pre-Final report in January and the Final Master Plan at the end of June 1989. FIGURE: 2 PROJECT SCHEDULE low WORK ELEMENT MAY JUN JUL AW SEP OCT 140V DEC JAN FEB MAR APR MAY! JUN JUL: iAUG SEP IOCT NOV DEC Roject Management 1. In"nu" 2. Study/Anallysis 6- 3. @=eftt 4. PI=Coc*pW F, 5. Evaluation Implementation Pialiminarv Plan & Po'* 11, lPlooo-ended Plan 9. P-i../Appoval 10. Final Pilin/Adoption if. 4WA Paciiii,,ements I 11 P.blifilied Rpons I I I II I I I I I I I A I 2.0 DESCRIPTION OF THE PL I r 0 I I I , This Chapter presents a detailed description of the waterfront planning area. Section 2.1 provides an overview of the planning area. Section 2.2 details exist- ing conditions within nine subareas, including an analysis of land tenure, en- cumbrance of State lands, and opportunities and constraints within the individual areas. Section 2-.3 evaluates the condition of regional infrastructure systems such as water, wastewater and drainage. Section 2.4 provides an overview of the present jurisdictional controls that govern uses and activities in the planning area. Section 2.5 presents a discussion of the area's history,. beginning with the origins of Honolulu Harbor and continuing through the various phases that have brought major changes and advancements to the planning area. Lastly, Section 2.6 discusses other major plans that have been produced for various areas within the waterfront. 2.1 OVERVIEW The planning area for the Honolulu Waterfront Master Plan (Figure 3) stretches from the Magic Island/Ala Moana Park in the east to -Keehi Lagoon in the west, and includes the nearshore waters lying roughly mauka of a line from Magic Is- land to the Reef Runway. The planning area is bounded by Nimitz Highway, Ala Moana Boulevard and Lagoon Drive on the mauka side. Barbers Point Harbor in Ewa is also included within the planning scope because of its important func- tional relationship with the commercial maritime operations of Honolulu Harbor. The planning area encompasses a total land area of approximately 1,550 acres (not including Barbers Point Harbor) and stretches along nearly six lineal miles of coastline. Of the total acreage, the State owns nearly 76 percent, while 13 percent is owned privately, 11 percent is owned by the Federal government and 2-1 MIDDLE STREET INTERCHAN E PIER 6 PIER 35 IRV, PIERS 39- PIERS KAPALAMA 41-42 BASIN L KEEHI ERN 10 AL BOAT 0 HARBOR KALIHI CH NEL KEEHILAGOON 4WAG REEF RUNWAY 2-2 FIGURE: 3 HONOLULU WATERFRONT PLANNING AREA PIERS A 1&2 KEWAL0 ALA OANA LEVA D 7 WAIKIKI KEWALO N N BASIN R R.:: A@M Al IN KEWALO PENINSULA HONOLULU WATERFRONT MASTER PLAN January 1989 2-3 one percent by the City and County of Honolulu. The value o planning area is over $2 billion. The value of improvements on t $250 million, of which 43 percent is on State-owned property. For inventory, evaluation and planning purposes, the plannin divided into subareas. Subarea boundaries were established ba al and geographical relationships. The figure below indicates th individual subareas (excluding Barbers Point Harbor) within th indicated in the figure, these areas range from a high of 505 a Island subarea, to a low of 23 acres in the Downtown subarea. Honolulu Waterfront 1wilei Relative Size of Sub-Areas 365 acres Kalihi Kai DC 163 acres 2 .. .. . ..... .. . ..... .. Sand Islan 505 acres KeehiL 194 a Although the planning area is technically defined as lying withi it is recognized that many factors, physical, social and econorn planning boundaries. To be sure, although certain patterns specific parcels of land, facilities and uses fie within the plan aspects (infrastructure, circulation and open space systems, c( borhood and mauka-makai linkages to name a few) do not ne planning boundaries. In recognition of the importance of this 2-4 ning approach has been to use the area boundary as a point of reference or focus rather than an absolute limit. 2.2 DESCRIPTION OF SUBAREAS This section presents a detailed discussion of nine individual subareas within the overall waterfront study area. These areas include Ala Moana, Kewalo, Kaka'ako, Downtown, lwilei/Kapalama, Kalihi Kai, Sand Island, Keehi Lagoon and Barbers Point. The overview of each area gives information covering exist- ing land and water uses, land ownership and the existing lease encumbrances of State lands. This discussion is followed by a review of the major planning op- portunities and constraints within each subarea. This information presents an overview of beneficial and adverse characteristics (e.g., physical features) or . ........ . conditions (e.g., environmental, social) within the individual subareas that can hopefully be maintained and enhanced or mitigated by the implementation of waterfront planning recommendations. 2.2.1 Ala Moana 1. Subarea Overview Description of Boundaries. The Ala Moana subarea is at the eastern most edge of the planning area. It is bounded by the Ala Wai Canal at the Diamond Head end, and by facilities at Kewalo Basin on the Ewa end. Existing Land and Water Uses. The Ala Moana subarea consists of a total of 109 acres, with major uses including the Ala Moana and Magic Island Parks. The major attraction of Ala Moana Park is its beach and the access it provides to nearshore recreation activities. The water channel running parallel to the shoreline is popular with long-distance swimmers and canoeing enthusiasts. The water area beyond the coral reef is a popular fishing and surfing area. Magic Island is a twenty five year old landfilled area providing additional parking, open park land and beach area. 23-5 Land Ownership. The entire Ala Moana subarea is owned by diction and operational control of Ala Moana Park have been gr and County by Executive Order. The State still maintains and of Magic Island, although this area may also be granted to the future. Encumbrance of State Lands. Two food service concessiona Moana Park are the only encumbrances on this area of public 1 2. Opportunities and Constraints .... ..... ... .. .... .... ... Opportunities: ... ..... . .. ... .. ..... *The area contains over 100 acres of beachfront prc Honolulu with views extending.from Diamond Head ........... Makakilo in the west. Nearshore waters provide a major water recreational r ing, swimming, fishing and canoeing enthusiasts. The area is used extensively by residents of Honolulu. Constraints: pe.z *Existing ocean circulation conditions periodically cr quality conditions along the Ala Moana Beach Park. *Existing heavy use of the parks, particularly on week- traffic congestion and limited parking. 2.2.2 Kewalo Basin 1. Subarea Overview Description of Boundaries. Kewalo Basin is bounded on the (eastern) side by Ala Moana Park. Ahui Street, located on the sula, marks the Ewa (western) boundary of the subarea. An im feature of the basin is the landfilled Kewalo Peninsula which sh 2-6 from open ocean disturbances and marks the makai boundary of the subarea. The subarea fronts on Ala Moana Boulevard, makai of Victoria Ward Estate's Ward Warehouse. ..... ..... Existing Land and Water Uses. The Kewalo subarea contains 27 acres of land and 30 acres of water area which provides the primary berthing space for Oahu's commercial fishing fleet, cruise/excursion boats and charter fishing fleet. Water access into the harbor is through a 350-foot wide entrance channel between the Kewalo and Kaka'ako Peninsulas. The harbor area is surrounded by landside activities which support the maritime operations, marine research and commer- cial restaurant operations. Maritime Commercial uses are the dominant activities within the area. Individual water uses include the following: The commercial fishing industry currently occupies about 75 percent of the total berths in the basin. For Oahu as a whole, the commercial fish- ing fleet varies greatly, but is estimated to be 200 boats strong. The type of boats found in Kewalo Basin can be identified according to their individual specialties and include aku boats (Skipjack Tuna), long-line tuna boats (Ahi or Yellow-Fin Tuna), boats which fish the, Northwest Hawaiian Islands for bottom fish and lobster boats. Excursion boats, defined as harbor cruise boats, dinner cruise boats, sunset cruise boats, and dive boats, are located along the Ewa end of the'harbor facing Ala Moana Boulevard. There are currently 11 excur- sion boats berthed in Kewalo Basin. Charter boats are defined as, "deep sea, sport fishing" vessels. These boats are also located along the harbor facing Ala Moana Boulevard at the Diamond Head corner. - There are presently 21 berths in Kewalo Basin dedicated to charter boat operations. Landside activities directly related to the commercial fishing industry include the fish auction facilities on Ahui Street, the tuna cannery and ice plant (currently only 2-7 the ice plant is in operation) and support services (i.e., net operations) along the area adjacent to Ala Moana Park. Ad K@0-- .... .. ........ Commercial uses include the marine dry dock and shipyard, Wayne Marine Supply and Services and offices for cruise and ch tions. ........... .. . Marine Research facilities encompass approximately 2.75 acr subarea. Two facilities, the U.S. National Marine Fisheries Se the University of Hawaii Marine Mammal Laboratory, are locatE Peninsula, The Pacific Biomedical Research Center (PBRC), operation of the University, is located at the makai end of Ahu to the Point Panic area. Commercial/Office uses include three restaurants (Joh Fisherman's Wharf on the Ewa edge of the basin and the Kewa the Diamond Head edge of the basin) and the Army Air Force E (AAFES) located at the corner of Ala Moana Boulevard and Ah Land Ownership. The entire 27-acre subarea is owned by thE Encumbrance of State Lands. Long-term leases exist for mc ty along the Ewa edge of the Kewalo subarea. Existing uses tion dates are as follows: the University biomedical research c John Dominis Restaurant (2042), the fish auction operation (20 and shipyard facility (2021), the Hawaiian Tuna Packers cann (2027) and the Fisherman's Wharf Restaurant (1989). The only long-term encumbrance of State land existing along th edge of the basin involves the marine service station (dba KE cated near the entrance to the peninsula. The lease on this 7 site expires in 2003. The lease for the Kewalo Ship's Galley R 1992. The remainder of businesses (including the McWayne 2-8 are either on month-to-month revocable permits or on leases due to expire within the coming year (1989). 2. Opportunities and Constraints Opportunities: � Existing activities in the area, along with its centralized location near Ward Warehouse, Ala Moana Shopping Center, Waikiki, and Downtown, encourage development of activities for tourists and resi- dents. � Significant views of Ala Moana Park, Waikiki and Diamond Head exist from the Ewa edge of the area. � There is the potential to extend Ala Moana Park into the Kewalo penin- sula area providing for additional open space and pedestrian move- ment along the waterfront. * The harbor is a focal point for the commercial fishing industry. � The shallow reef area beyond the existing shoreline of the peninsula could be filled, providing for expansion of the overall harbor area. Constraints: � An overemphasis on vehicular access and circulation creates crowd- ing in pedestrian areas. � The entrance to the harbor at the intersection of Ala Moana Boulevard and Ward Avenue is a major bottleneck. A limited amount of land and water to satisfy competing needs between commercial fishing and visitor industry activities. Water, drainage and sewer lines are at capacity. Existing long-term leases on various parcels along Ahui Street limit plan- ning flexibility. 2-9 Existing structures along the Diamond Head edge crea visual barrier totally separating Kewalo from the adjac 2.2.3 Kaka'ako 1 Subarea Overview Description of Boundaries. The Kaka'ako subarea lies betv and Downtown subareas on a largely man-made peninsula. A the Diamond Head boundary, while the pier frontage at Fort Ar -'e" and 2), up to and including the Coast Guard's Pier 4 area, marks ary. This subarea is strategically located in central Honolulu nea the Capital District. Existing Land and Water Uses. The Kaka'ako subarea proximately 175 acres. Specific land uses in this area include m commercial, light industrial, marine research and public facilitie are discussed below. Maritime Industrial uses occupy approximately 75 acres Armstrong area at Piers 1 and 2. This area, once the primary facility on Oahu, is currently dedicated to maritime break-bulk tainerized cargo operations, ship maintenance operations and t Zone warehouse and offices. Commercial uses occupy much of the central portion of the blocks along Ala Moana Boulevard are privately owned, ar dominated by new and used car sales facilities. The Gold Bol located on private land. Makai of this area, between Ilalo and K 14 acres of State land presently used as a major food distribut Recreational uses are limited to the 2.5-acre PointPanic Park op Located at the Diamond Head makai corner of the peninsula, 2-10 very popular site for body surfers and viewing vessel traffic in and out of Kewalo Basin. Over 25 acres of the Kaka'ako subarea are utilized for Public Facility activities. Most of this land is occupied by the City and County of Honolulu's Board of Water Supply and the Department of Public Works for equipment and vehicle storage and maintenance and the Ala Moana Pump Station. The Department of Agriculture's Plant Quarantine Station, Weights and Measures Branch, and Medf ly Project are located on about three acres adjacent to the food distribution cen- ter. Finally, the historic U.S. Immigration Station and the historic Ala Moana Sewage Pumping Station, along with the U.S. Coast Guard facility at Pier 4, are located along Ala Moana Boulevard in the Fort Armstrong area. Marine Research activities located near the Point Panic area include the Univer- sity of Hawaii Hyperbaric Treatment Center and Look Laboratory. The Hyper- baric Treatment Center provides treatment of people suffering decompression sickness (bends). Marine research at Look Laboratory includes the use of an area offshore for underwater studies on topics such as ocean mining. Lands makai of the food distribution center, occupying approximately nine acres, . ......... contain a tour bus storage and maintenance yard, an auto rust-proofing opera- tion, and miscellaneous other Light Industrial land uses. A large sanitary landfill area of approximately 14 acres is located along the shoreline in the central portion of the subarea. This site was a solid waste dis- posal area for the City from the'.1950's to the early 1970's and includes wastes from the nearby municipal waste incinerator that was used during this period. The landfill is currently used as a temporary storage area for construction material. Land Ownership. The State of Hawaii owns 159 acres of land in the Kaka'ako subarea. As noted above, four blocks fronting Ala Moana Boulevard, bounded by Koula, Keawe and Ilalo Streets, are privately owned by the B.P. Bishop Es- 2-11 tate. These lands total 10.7 acres. The Federal government o land in the Fort Armstrong area, which includes the Immigratio Coast Guard Pier 4 site. Encumbrance of State Land. A sizable portion of State land cumbered by leases. The marine research activities are opera lease which expires in 2030. Two separate operations in the area have leases which expire in years 2029 and 2021. The ex operation at Fort Armstrong holds a lease on covered office ar until 1996. Remaining activities and operations are either o month-to-month revocable permit.. 2. Opportunities and Constraints Opportunities: The area's central location between Downtown and A and the mauka Kaka'ako redevelopment area, ... . ........ development of new areas for public access and use The area has over one mile of shoreline from Point P The area includes a sizeable area of undeveloped anc 7., ized State land. Offshore waters include periodical ly-used surfing area made more accessible, provide exceptional water que search operations and contain a variety of fish life whic a popular site for shoreline fishing. Significant views exist from the area towards Diamonc Honolulu Harbor area. The U.S. Immigration Station and Department of He the historic Ala Moana Sewage Pump Station are valua tures. 2-12 Constraints: *Existing long-term leases on various parcels, including the Food Dis- tribution Center and Look Lab limit planning options. � Lack of adequate infrastructure. Existing water, drainage and sewer lines are at capacity and the roadway system is in disrepair. � Elevated noise exposure associated with aircraft flight patterns. q, Existing heavy traffic conditions on Ala Moana Boulevard will neces- sitate major improvements to the roadway system. Existin ological conditions (i.e., a buried alluvial stream channel) 9 ge may require special construction methods. The old Kewalo sanitary landfill is known to include incinerator. ash and will require investigation of possible health hazards. 2.2.4 Downtown 1 . Subarea Overview Description of Boundaries. The Downtown subarea (including the Chinatown waterfront area) is located at the foot of the central business district fronting Honolulu Harbor and extends from Pier 5 to Pier 18. Pier 5, located makai of the Federal building on Ala Moana Boulevard, is currently the berthing area for the Alii Kai dinner cruise vessel. Pier 18, located just Ewa of the mouth of Nuuanu Stream, is utilized by the commercial fishing industry and the Harbor Pilots boat. Existing Land and Water Uses. The 23-acre Downtown subarea is dominated by mariti m e- related activities. These and other major elements within the area are summarized in the following discussion. Maritime Commercial activities include passenger cruise ship operations, dinner cruises, and commercial fishing. The cruise ships operate at Piers 8 to 11 within the Aloha Tower complex. Two vessels, the S.S. Independence and S.S. Con- 2-13 stitution, have been operating weekly tours throughout the isl years. The two vessels currently handle about 80,000 passen ... ... .... October 1988, the S.S Monterey resumed tours in Hawaii and 8. Two dinner cruise ships, the Alii Kai and the Rella Mae, operate Harbor. The Alii Kai is berthed at Pier 5, while the Rella Mae is p alongside the Hawaii Maritime Museum at Pier 7. The combined ber of passengers per year for these operations is over 500,00 Commercial fishing boats are berthed at Piers 16 and 17. Ther able for about 15 to 20 boats. Pier 18 is also used as an unloa Maritime Industrial uses take place at the Pier 13 and 14 site. location include tug and barge berthing and bunkering, auto par constructed ice plantfor servicing the commercial fishing indus A number of Public Facility uses are present in the subarea. The is the Hawaiian Electric Company (HECO) plant on Nimitz High ed to be phased out of operation by the mid-1990's. J is propos ... . ...... power plant at Pier 7 is the Hawaii Maritime Museum. This facility a variety of exhibits highlighting the maritime history of the HaA is also the permanent site for the Falls of Clyde and the Ho'kul( facility uses in the area include the Harbor Fireboat Station at Pi parking at Piers 5 and 6, Irwin Park, and in the Aloha Tower co Commercial/Office activities are largely located within the Aloha of the passenger and dinner cruise ship operations maintain offi WN -Raw retail shops which cater to tourists can also be found in the are N Land Ownership. Other than the 3.4 acre parcel owned by HE the Downtown subarea is owned by the State of Hawaii. 2-14 Lease Encumbrance of State Lands. State land within the Downtown subarea is currently encumbered by various operations with one-year revocable permits. The only exception to this is a lease to the operator of the Alii Kai dinner cruise ship. Covering 17,538 sq. ft. of submerged and fast land at Pier 5, this lease ex- tends to the year 2005. 2. Opportunities and Constraints Opportunities: � Location, visual characteristics and the historical significance and uses of the Aloha Tower area from Piers 8 to 11 create the potential for plan- ning of the site as the centerpiece of the entire waterfront plan. � The area is adjacent to the central business and financial districts of Honolulu with a daytime population estimated at 60,000. � Except for the 3.4-acre HECO site on Nimitz Highway, the entire Downtown area is owned by the State. Current plans of HECO would end operation of the plant in Downtown in the mid 1990's, thereby open- ing up a prime development site. * Recent opening of the Maritime Museum has initiated rejuvenation of the area. � Piers 5 to 7 provide berthing for large dinner cruise ships which cannot be accommodated in Kewalo Basin. � Piers 16 to 18 provide berthing for large commercial fishing ships which cannot be accommodated in Kewalo Basin. Constraints: There is a limited amount of land in the area, with only the Aloha Tower site providing any sizeable land area. The bankrupt and vacant Oceania Floating Restaurant berthed at Pier 6 is presently a major liability which occupies a valuable pier. 2-15 The overpass which services the second level at Aloha views from the shoreline area. The Ala Moana Boulevard and Nimitz Highway corridor cal barrier to attracting people into the area and to th accessing the water's edge. *Various facilities within the Aloha Tower complex are disrepair and largely underutilized. Most of Pier 12 has been destroyed. The remaining p fronting Nimitz Highway is in very poor condition. .. .. . .... * Present government regulations stress low building h limit economic feasibility of development in the area. 9 Water, drainage, and sewer lines are at capacity. 2.2.5. 1wilel/Kapalarria 1. Subarea Overview Description of Boundaries. The Iwilei/Kapalama subarea enc .of the highly industrialized maritime operations within Honolu Diamond Head boundary of the subarea is at Pier 19, where and neo-bulk handling operations are located. The subarea ex ending at the Sand Island Access Road. Nimitz Highway serv boundary from Pier 19 to Libby Street (Pier 40). Libby and Aui separate the Kapalama Military Reservation from the Kalihi KE mark the remainder of the mauka boundary. Existing Land and Water Uses. The lwilei/Kapalama subarE approximately 363 acres and is dominated by maritime industri area is the central portion of the harbor and contains various Ian to form a maritime "marketplace." Additional activities include lated industrial uses, along with public facilities and military op 2-16 Maritime Industrial activities occur from one end of the subarea to the other. Beginning at Pier 19, uses include: * Bulk cargo handling, tug boat berthing and maintenance, bulk sugar loading and storage, and maritime bunkering at Piers 19 to 21; * Inter-island and overseas general cargo shipping at Piers 24 to 29, 31 to 33, 36, and 39 to 40; Bunker fuel storage in the Pier 30 area, vessel bun kering from Piers 29 to 34, and propane storage and transfer to Neighbor Islands at Pier 38; Bulk -storage and transfer of cement and scrap metal at Piers 34 and 35; *Additional berthing and support facilities for fishing boat operations at Piers 35 and 37; and Dryclock and ship repair facilities at Pier 41. A number of Industrial activities occur in the lwilei/Kapalama subarea which have little or no relation to maritime harbor uses. The most prominent of. these ac- tivities is the petroleum fuel storage and distribution operation in the area mauka of Piers 29 to 31. Beyond those facilities that are used for maritime fueling, much of the storage of fuel in this area is for distribution to gas stations throughout the general East Oahu area. Additional storage tanks in the area from Piers 32 to 38 are used for storing asphalt, chemicals, and jet fuel. Another major industrial activity in the area involves milling operations at Piers 22 and 23. Raw grain is off-loaded at Pier 23 and stored in the large grain elevators nearby. Adjacent operations produce animal feed and flour, items which are produced for statewide distribution. Other types of industrial uses in the area.include freight forwarding and warehousing, food storage and distribution, and heavy equipment and truck rent- al. 2-17 Commercial lands within.the subarea uses not related to maritim located along Nimitz Highway in the area from Pier 32 to 35. Op retail auto parts sales, retail lumber goods, import/export of r general office space. The predominant Public Facility land use in the area is the 16-ac Hawaii Marine Expeditionary Center at Snug Harbor. This fa home port area for University research vessels, as well as for r from around the world. The U.S. Postal Service owns propert land Access Road for the purpose of repairing delivery vehicle public facility is a large sewage pump station along Nimitz, High A sizeable Military component exists in the Iwilei/Kapalama Kapalama Military Reservation is owned and operated by the U. ves as a major storage and transfer center in the area from Pie Island Access Road. Land Ownership. The lwilei/Kapalama subarea consists of ap acres owned by the State, about 84 acres owned by the Fede with the remaining 36 acres being privately owned. A significa private land is owned and operated by petroleum companies. ... ........ Encumbrance of State Lands. Activities which have a relati remaining on existing leases include: . ........ *The bulk sugar warehouse and loading operation lo (lease expires in 1999); The flour mill and general warehousing operation adje and 23 (lease expires 2014); *The animal feed grain manufacturing and grain storr Pier 23 (lease expires 2003); Fuel storage and distribution facilities near Pier 29 (leaE 2-18 � A food storage and distribution operation mauka of Pier 32 (lease ex- pires 2021); � A marshalling yard operation at Pier 35 (lease expires 1996); and o A general merchandise storage and shipping operation mauka of Pier 42 (lease expires 1994). A sizable number of State parcels are also encumbered by pipeline and electri- cal line easements. 2. Opportunities and Constraints Opportunities: o The area includes a wide range of maritime activities (i.e., bunkering, shipyard, cargo storage, stevedoring services, lay berths, etc.) provid- ing a "marketplace" environment. o The area is a prime location for maritime transshipment, receiving, and shipping of goods because of its proximity adjacent to Honolulu Har- bor and Nimitz Highway. 9 The Federal government intends to sell its property at the Kapalama Military Reservation, an area which would be a valuable maritime resource if purchased by the State. Constraints: o Approximately one third of the land area is not owned by the State. A number of State properties are under long-term leases, thus limiting planning opportunities for the area. o Petroleum facilities are perceived as a potential safety problem by many in the community. * The interisland cargo operation at Piers 24 to 29 is badly constrained due to lack of space. Most structures and dock facilities in this area are of old design and badly in need of repair. 2-19 � Bunkering space along Piers 29 to 34 is limited and car the demand for services. � Pier 42 is undeveloped. � Water and sewer lines are at capacity. 2.2.6 Kalih! Kai 1. Subarea Overview Description of Boundaries. The Kalihi Kai subarea en proximately 163 acres of industrial and residential land. The arE Nimitz Highway, Libby and Auiki Streets. The Ewa boundary i property boundary between State and private lands in the upp Mm' area. gi Existing Land and Water Uses. The Kalihi Kai subarea is the the project boundaries which has no frontage on the waterfro type of land use in the area is industrial. Commercial and res also found in the area, Industrial,uses occupy approximately 122 acres of the total la K i. In the Ewa portion of the subarea, within blocks adjacent t( Access Road, large parcels contain major wholesale, distributi turing operations. In the Diamond Head direction, where lots ar smaller in size, predominant industrial activities include aO machine shops, light manufacturing and smaller-scale distribut Although the Kalihi Kai area has undergone a transformation f to industrial area, Residential units are still located on a significa in the subarea, Most of these are in two- and three-story wall although some single-family residences still remain. 2-20 Commercial activities in the area include small grocery stores and restaurants and other operations that service residents and/or people who work in the area. Land Ownership. The Kalihi Kai subarea is totally under private ownership. 2. Opportunities and Constraints Opportunities: * The area has been redeveloped as a light industrial activity center and has been designated Industrial on the City's Development Plan. * The central Honolulu location provide's an excellent area for distribution of goods. Constraints: The area is impacted by noise from aircraft and industrial traffic. On-street parking creates congestion on many streets. Incompatibility of industrial and residential land uses is increasing. Water, drainage, and sewer lines are at capacity 2.2.7.Sand Island 1. Subarea Overview Description of Boundaries. Sand Island has been formed over the years as a result of dredging in Honolulu Harbor. The area, which currently totals 505 acres, is located makai of the Downtown and Iwilei/Kapalama subareas, and is bounded on the east by the entrance in Honolulu Harbor and on the west by Keehi Lagoon. The island is corfnected to Honolulu proper by a bridge on Sand Island Access Road (a second parallel bridge is presently under construction). Existing Land and Water Uses. Activities within the Sand Island subarea in- clude maritime industrial, light industrial, public facility and military uses. 2-21 Maritime Industrial activities encompass the State's primary operations. Approximately 140 acres are devoted to the move the area fronting Piers 51 to 53. Additional Industrial land uses which have little or no relationship tivities are located in the central Sand Island area. Approximat AW !, Wnl At- used for trucking, general contracting, light manufacturing and The primary Public Facility use on Sand Island is the Sand Isl which currently contains about 83 acres. The City and Coun Wastewater Treatment Plant occupies approximately 25 acres in of the island. The Department of Land and Natural Resources ( Fisheries is located on 4 acres fronting the Downtown Honolulu Military uses on Sand Island are located on approximately 40 acr ing Downtown Honolulu. This area contains the primary operat Coast Guard in Hawaii. Land ownership. With the exception of the U.S. Coast Guard f Island subarea is owned by the State of Hawaii. Lease Encumbrance of State Lands. A long-term (expiring ir lease covers much of the container yard area. Other than this, t the subarea is encumbered by short-term leases or by revocab 2. Opportunities and Constraints opportunities: The area currently satisfies harbor requirements for cc mine a a M00,00a operations. The Sand Island State Park is a valuable recreational r dents. Undeveloped lands along the Keehi shoreline wi expansion of the park. 2-22 Views from within the park offer significant visual resources to the com- munity. Constraints: � The area has only one point of egress and ingress. � The wharf between Pier 51 and 52 remains to be completed. � The industrial area within the central portion of the subarea lacks ade- quate infrastructure and is visually unsightly. * Potentially unsafe mix of heavy truck traffic and resident recr eational traffic. � The area is heavily. impacted by noise from aircraft and industrial traf - fic. � Federal Aviation Administration height restrictions limit development al- ternatives in the area. 2.2.8. Keehi Lagoon 1 Subarea Overview Description of Boundaries. The K eehi Lagoon subarea anchors the western end of the planning area with the Honolulu International Airport located directly to the west and the Sand island and Kalihi Kai subareas to the east. Major traf- fic corridors which generally establish the boundaries of this subarea include Lagoon Drive, Nimitz Highway and Sand Island Access Road. Existing Land and Water Uses. The Keehi Lagoon subarea encompasses about 194 acres of land and contains commercial, industrial, public facility and maritime uses. It also includes the small fishing community located on Mokauea Island. 2-23 Maritime activities include both industrial and recreational u Maritime Industrial uses are located at Pier 60 and the Keeh Operations at Pier 60 involve off-loading of sand and gravel use batching operation located nearby. Operations in the Keehi h clude drydock facilities, boat building, sails repair and other functions. Maritime Recreational activities include the berthing of small b Lagoon Boat Harbor and La Mariana Sailing Club, as well as o .... . ... . ... .... for approximately 300 boats. Small islands in the lagoon are areas for activities such as jet skiing, parasailing, and water skiin and fishing are also popular in the area. . ...... .. . Commercial activities are located in areas along Lagoon Drive taurants, hotel accommodations, offices, auto sales and the p rental facilities on the island. Industrial uses such as tool manufacturing, laundry plants, air vices and wholesale distribution warehousing are also located Lagoon Drive. A major industrial activity along the Sand Island the 8-acre jet fuel site. Miscellaneous industrial uses are lo shoreline mauka of Pier 60. The major Public Facility in the area is the 69-acre Keehi Lagoo cated on the Ewa shoreline of the lagoon. Land Ownership. The State of Hawaii owns all land within tf subarea except for the privately owned area of industrial and at the intersection of Lagoon Drive and Nimitz Highway. Encumbrance of State Lands. The marine center operation bor and the private sailing club have leases on State land to year respectively. Land on which the jet fuel tanks are located is enCL 2-24 All other State properties in the subarea are encumbered on year-to-year revocable permits. 2. Opportunities and Constraints . .......... Opportunities: e The area provides a large protected body of water and underdeveloped surrounding lands with high potential for marine recreational use. . . . . ......... .... e There is excellent access to the H-1 Freeway, Nimitz Highway, and Honolulu International Airport. The area could provide an airport terminus for the proposed intra-is- land ferry. The area has become a center for canoeing enthusiasts and has been the site for international canoe regattas during recent years. *Shallow portions within the lagoon could feasibly be filled, thus creat- ing new land areas in the central Honolulu area. Constraints: The area is heavily impacted by noise from aircraft. Federal Aviation Administration height restrictions limit development al- ternatives in the area. Proximity of the area to the airport creates potential for catastrophe from aircraft accidents. 2.2.9 Barbers Point Harbor 1 Subarea'Overview Description of Boundaries. The Barbers Point Harbor subarea is located ap- proximately 20 miles from Downtown, on the southwest shores of Oahu. Dedi- cated in 1985, the subarea encompasses a 38-foot deep harbor basin totaling 2-25 92 acres, plus an additional 148 acres that could potentially be u related purposes. Existing Land and Water Uses. At present, a ship repair co an 8,000-ton floating dry dock in the harbor which is capable of over 500 feet long. The only other major water activity involves petroleum products to the Neighbor Islands from the original b Much of the property surrounding the harbor is currently used f dredged material obtained from construction of the basin. planned for use as a multi-purpose cargo handling and temporar Other planned uses include receiving automobiles, general c products and bulk shipments such as grain, sand, coal and c increment of improvements has recently begun and includes th a 1,600-foot wharf and 30-acre paved backland area. Land Ownership. Land within the Barbers Point Harbor suba the State of Hawaii. At present, the State owns a total of 240 pected to purchase another 84 acres in the near future. Furthe has the option on an additional 56 acres in the long-term futurE Encumbrance of State Lands. The only encumbrance of Sta leases with petroleum companies for energy corridors from th refineries in the adjacent industrial park. 2. Opportunities and Constraints Opportunities: The area provides a sizeable amount of undeveloped I the new harbor. The harbor can accommodate the relocation of s operations (particularly bulk cargo shipping) from Ho 2-26 The new harbor may serve as a catalyst for the development of the Ewa area. Constraints: The alignment and size of the harbor entrance channel and the maxi- mum basin depth of 38 feet limit the size of vessels that can operate ef- ficiently and safely in the harbor. Potential wharf space in the harbor is limited. The location of the harbor is a significant distance from existing markets and population centers in eastern Oahu'. Major expansion and development of surrounding lands requires the removal of dredged materials. 2 3 INFRASTRUCTURE SYSTEMS Wastewater, drainage, roadway and water supply systems within the waterfront area are generally at or near capacity. Electrical and telephone systems are con- tinually being improved and no inadequacies exist at this time.. 2.3.1 Wastewater Systems The Kaka'ako and Kewalo areas are sewered by 69-inch and 36-inch sewer lines on Ala Moana Boulevard (Figure 4). The 69-inch and 36-inch sewer lines join with a 78-inch sewer line on Keawe Street that carries flows that originated as far east as Kuliouou in East Honolulu. The Downtown area is sewered by a 32-inch line which increases to a 36-inch sewer line near Keawe Street. These sewer lines enter the Ala Moana Sewage Pump Station. The lwilei, Kapalama and Keehi areas are sewered by two 54-inch sewer lines on Nimitz Highway. The 54-inch lines flow into the Hart Street Sewage Pumping Station. The Keehi Lagoon area off of Lagoon Drive is sewered by the Department of Transportation Airports Division sewer system. The airport system enters the 2-27 24* KEEHI - A INTERCHANGE NY top KAM S b, J@ S4' SID Ic, JOIN SAND LA WWTP E LUE 0 UIT 0 2-28 FIGURE: 4 MAJOR EXISTING SEWERAGE, DRAINAGE 0 AND ROAD SYSTEMS IN STUDY AREA Feet 0 Soo 1600 MAJOR STORM DRAIN LINE MAJOR SEWER GRAVITY LINE, PIPE SIZE AND DIRECTION OF FLOW SWEET MAJOR SEWER FORCE MAIN, PIPE SIZE AND DIRECTION OF FLOW tu SEWAGE PUMP STATION sou@ Ki, WASTEWATER TREATMENT PLANT Q 00 oll IDA OL L ALA MOANA PARK SPS alu&E ALA MOANA SPS 69- HONOLULU WATERFRONT MASTER PLAN January 1989 2-29 municipal system on Aolele Street. The sewer line on Aolele Kamehameha Highway Sewage Pumping Station which pump a 36-inch force main to the 54-inch sewer line makai of the Kali The Sand Island area is sewered by an 18-inch sewer line on Road and by a series of sewage lift stations within the Sand 1@, directly enter the Sand Island Wastewater Treatment Plant. Wastewater Treatment Plant is located in the center of Sand Isla County of Honolulu is presently preparing an Island-Wide E Study. The project is ongoing and only preliminary results arE time, The preliminary results from this as well as other ongo been incorporated in this report. The major sewer lines in the study area carry the entire sewage fl by the Sand Island Wastewater Treatment Plant, which servic Kuliouou to the Airport. Many of these lines are at or near capa and 36-inch mains on Ala Moana Boulevard that sewer the Do also require relief in a few years. The 54-inch sewer line Kapalama and Airport area is at capacity. The Nimitz Highway is analyzing the area between Waiakamilo Road and the Hart tion. Construction of the proposed improvements from this StL to be completed by mid-1990. The remaining portion of the Waiakamilo Road to the 36-inch Kamehameha Highway. force be relieved in the future. The Kamehameha Sewage Pumpin@ inch force main are near capacity and will have to be upgrade The sewage from the Ala Moana and Hart Street Sewage F pumped to the Sand Island Wastewater Treatment Plant. The Ala Moana Sewage Pump Station is carried by a 78-inch fo Honolulu Harbor to the Sand Island Wastewater Treatment Plan Sewage Pumping Station is presently pumping an average of 5 a capacity of 107 mgd. The Hart Street Sewage Pumping pumps 15.5 mgd and has a capacity of 68 mgd. The Sand Is Treatment Plant has a capacity of 82 mgd. It discharges the tre 2-30 the Sand Island Ocean Outfall which discharges through a long diffuser located two miles offshore at a depth of 240 feet. The Barbers Point Harbor area utilizes cesspools for sewage disposal. The nearest wastewater treatment plant is the large Honouliuli facility in Ewa. 2.3.2 Storm Drainage Systems Storm drainage systems of the waterfront planning area include five major drainage features. They include the Kaka'ako drainage canal, Nuuanu Stream, Kapalama Canal, Kalihi Stream and Moanalua Stream. Of these features, Kalihi Stream and Moanalua Stream are prone to flooding and are so described by the Federal Emergency Management Agency's Flood Maps. The primary drainage systems of the Kaka'ako area are the Ward Avenue drain, the Cooke Street to Kewalo drain on Ala Moana Boulevard, the Kaka'ako Improvement District 2 drains on Cooke, Coral and Keawe Street, the Keawe Street drain, and the South and Punchbowl Street drain that runs along Ala Moana and discharges at Pier 4. The Downtown area has drainage systems on Richards Street, Alakea and Bishop Streets, Fort and Queen Streets, Bethel Street, Nuuanu Street, Smith Street, Maunakea Street and Kekaulike Street. The Iwilei area has drains that cross Nimitz and discharge at Piers 16, 17 and 18, Piers 23 and 24, and a large system that discharges at Pier 34. The Downtown, Iwilei and Kapalama areas have many systems that drain into Nuuanu Stream and Kapalama Canal. The largest drainage system is in the Kapalama area. This system drains into the Harbor with an outlet at Pier 40. The Lagoon Drive area is well drained by pipes entering Keehi Lagoon. The Barbers Point Harbor area will be protected from major floods by the new drainage channel that is presently being constructed in the Campbell Industrial Park. The drainage system contains drains constructed as long ago as 1921. Since then, design standards for drainage systems have undergone many changes, as more information and experience has been gathered by the design com- munity. The majority of the drainage systems in the planning area were not designed to the present City and County standards and do not provide drainage 2-31 protection from the 50-year flood. The Kaka'ako improvement Di ments increased the capacity of the Punchbowl drainage syste near Pier 4. The Kaka'ako Improvement District 2 which is pres( struction will improve the drainage system in the Kaka'ako area fr to Coral Street. Major Downtown area drains that cross Nimitz Highway from Richards Street cannot effectively convey the 50-year storm and in order to properly drain the areas above Nimitz Highway. Son drainage systems of the downtown area drain to Nuuanu Strearr Kapalama areas have two major drainage features, the Nuuanu Kapalama Canal. Many of the drainage systems in this area drai drainageways. The drainage systems that drain Nimitz Highwa) are inadequate and will require relief. This is especially true of th tern that drains the Iwilei area and outlets in the Pier 34 area. 1 drainage system consists of pipe systems on the Sand Island into open channels that drain into the Kapalama Channel or Hon new system was constructed with the new bridge that drains Kapalama Channel. The eastern portion of the Sand Island PE drained. 2.3.3 Road Systems The primary roadways utilized for east/west traffic flow in the wa Nimitz Highway and Ala Moana Boulevard. North to south traffic for in the Downtown area by Bishop Street, Alakea Street, Pu South Street and Ward Avenue. North to south traffic flow in th is provided by Punchbowl Street, South Street, Keawe StreE Cooke Street, and Ward Avenue. The streets makai of Ala Moa Kaka'ako are not constructed to City standards and will require curbs, gutters, sidewalks and street lighting, New undergroun required in the makai area except for Cooke Street, Coral Stre of Ilalo Street which are to be improved by the Kaka'ako Improv North to south traffic flow is provided for the Kapalama an 2-32 Waiakamilo Road, Kalihi Street and the Sand Island Access Road. The streets makai of Nimitz Highway such as Kalihi Street and Mokauea. Street, are not con- structed to present City Standards and lack curbs, gutters, sidewalks, street light- ing and underground utilities. The north to south traffic flow in the Keehi area is provided by Middle Street, Sand Island Access Road and Lagoon Drive. Portions of Ala Moana Boulevard and Nimitz Highway are presently at or over their capacity to accommodate traffic during peak periods. The portion of Nimitz Highway near the intersection with Lagoon Drive provides adequate service but the highway reaches capacity when it merges with the H-1 viaduct. 2.3.4 Water Supply Systems The waterfront planning area obtains its water service from the Board of Waiter Supply (BWS) Honolulu Water District Low Service System which extends from Moanalua to Makapuu Point (Figure 5). The primary water sources for this sys- tem are the Punanani Wells, Kalauao Wells, Kaamilo Wells and Halawa Shaft which are located in the Pearl Harbor District and the Moanalua Wells, Kalihi Shaft, Kalihi Station, Beretania Station, Wilder Wells and Kaimuki Station located in the Honolulu District. Water developed in these districts flows through central Honolulu to demand centers in McCully, Moilifli, Waikiki, Kahala and East Honolulu. Water sources that serve the study area are at capacity. Presently, the entire Low Service System has an average daily water demand of ap- proximately 57.5 million gallons per day (mgd). Of this amount, approximately 8 mgd are used in the Moanalua and Airport area, 3.5 mgd in Kalihi, 35 mgd in the Palama to Kapahulu area and 11 mgd in the Kapahulu to Hawaii Kai area. Within the Palama to Kapahulu area, Waikiki uses 13 mgd, McCully uses 6 mgd and the Kakaako Downtown area uses 16 mgd. Over 30 mgd flow through the area to demand centers in Waikiki and East Honolulu. The BWS, in conjunction with the Department of Land and Natural Resources, is aware of the situation and is making every effort to develop new groundwater 2-33 411, @alclvv 24- 24! 4z A2! 4,a cu LA A TA A27 76# 12' SAP D ISLAND le- SUBSTATION 2-34 MAJOR EXISTING WATER SUP PLY AND POWER SYSTEMS IN 9 PUMP STATION 12' 1 20' on' 2 j LJL-@, C= Ell HAWAIIAN ELECTRIC CO. POWER PLANT AND SUBSTATION Le E;7/ 12 PLL < 2-35 sources on Oahu. They are also investigating the potentials of a of potable water development such as wastewater reclamation tion. The primary water transmission line in the planning area is a runs along Vineyard Boulevard from Liliha Street to Lusitana S to Beretania Street to the McCully-Moiliili area. The western p inch water main runs along Kamehameha Highway and Dillingh Kalihi Street. A 12-inch- main connects the two portions of the 4 BWS intends to construct a new 42-inch pipeline on Liliha Stree Boulevard to connect with the existing 42-inch pipeline at the in lingham Boulevard and Kalihi Street. The 42-inch main on Kan way crosses over to Kilihau Street after the intersection of Kan way and Middle Street. The 42-inch main on Kilihau Street chan main and 30-inch main heading mauka on Puuloa Road. A 2 heads makai on Puuloa Road to Kamehameha Highway. At th Puuloa Road and Kamehameha Highway the 24-inch main turns on Kamehameha Highway. A 16-inch main heads makai on La airport water meter on Aolele Street. The Keehi area is served International Airport water system. The water supply system in the Downtown area includes watE years old. Over 40 mgd passes through the Downtown area t demands of Kaka'ako, McCully, Moiliili, Waikiki and the rest of A critical component of the system is water storage. The subE the Bella Vista and Punchbowl Reservoirs. These reservoir storage to meet peak hourly demands and for emergencies. T are not adequate to meet the peak hourly demands and the add requirements are met by source pumps. The major pump stati Station and Beretania Station. Additional water storage and/or systems will be required to accommodate the future growth Water District. 2-36 Water sources that serve the Barbers Point Harbor are owned by the Ewa Plain Water Development Corporation. The area has a new 16-inch main on Malakole Road which is connected to the existing 20-inch main. The new line is adequate to serve the initial harbor development, but continued expansion would neces- sitate the development of additional storage capacity in the future. 2.3.5 Electrical Power and Communication Systems The Hawaiian Electric Company's Honolulu Power Plant presently provides power during peak hours to the Downtown and Fort Armstrong areas. The sub- station at the power plant site is adequate to serve the Downtown area. The Kewalo Basin and Kaka'ako area will require a new substation in the vicinity of the Ala Moana Shopping Center to meet the power requirements of the Kaka'ako redevelopment . The lwilei area is served by the Iwilei Substation. There are also substations in Kapalama and on Sand Island. This area is adequately served by 12 KV distribution lines from these substations. The Hawaiian Electric Com- pany has a substation located in the Keehi area that provides electrical power by 12kv distribution lines. The portion of the distribution system on Lagoon drive has underground duct lines. A new substation and transmission lines from the Campbell Industrial Park are planned for the Barbers Point Harbor. Downtown Honolulu is served by the main central office of the Hawaiian Telephone Company. The company is presently planning to construct a new main office between Alakeo Street and Atkinson Drive. The Kapalama, Keehi, Sand Island and Barbers Point areas are adequately served and no major im- provements are required to serve the proposed developments. 2.4 PRESENT JURISDICTIONAL CONTROLS As noted at the beginning of this chapter, the State of Hawaii owns approximate- ly 75 percent of the land within the planning area. The primary landlord for all State-owned property is the Department of Land and Natural Resources. Of those lands within the planning area under direct control of DLNR, about two- thirds are encumbered through general leases or revocable permits. Other 2-37 State-owned parcels are assigned to various State agenci Departments of Transportation, Agriculture, and Accounting c, vices for management purposes. The major public entities and descriptions of their roles wit regulatory and economic environments of the waterfront are OL shown visually in Figure 6, Department of Land and Natural Resources (DLNR) This State department owns and manages significant acreage i including Magic Island Park, property in the Kaka'ako Penins State Park and the Sand Island industrial area. State Parks (Ch Land Management (Chapter 171, HRS), and the Office of Cons vironmental Affairs (Chapter 183, HRS) all have jurisdiction by and management responsibilities in the study area. The DLNR reports to a six-member regulatory and poli department's overall mission is to protect, control and regulat tion lands-- lands in the State parks system, lands which ma forest reservations, fishponds, and water resources. The de power of condemnation, and, as of the 1988 State Legislative s is empowered to establish improvement districts and issue r finance infrastructure development for industrial parks. The Office of Conservation and Environmental Affairs has a re through its Conservation District Permit process-- a permit req plies to most uses seaward of the certified shoreline. The Di Resources operates the Anuenue Fisheries Research Center 2-38 Department of Transportation, Harbors Division (DOT-Harbors) DOT-Harbors Division's mandate is embodied in Chapter 266, HRS. Title to har- bor lands has been granted to it by executive order. The Harbors Division ad- ministers its own special funds, and manages user fees to fund harbor facility development and maintenance projects. DOT-Harbors' management respon- sibilities geographically encompass seven deep-draft harbors and two medium- draft harbors, and a medium-draft landing located on five different islands throughout the State. The Division manages the working harbor operations of Honolulu Harbor, which is the State's primary port. The Harbors Division is one of DOT's three main divisions-- the other two are Air- ports and Highways.' DOT-Harbors' mission is to control and manage shores, shore waters, navigable streams, harbors, harbor and waterfront improvements. Its responsibilities include the collection of monies, fees and dues paid to the State (i.e., wharfage and demurrage) and other user fees and the planning, con- struction, operation and maintenance of any harbor facility throughout the State. This Division is a major lessor in the study area. Department of Transportation, Airports and Highways The DOT Airports and Highways Divisions play important roles in the waterfront area. The Airports Division requires land for the storage of jet fuels, and regu- lates land uses and heights of structures in areas influenced by airc raft flight paths. The Highways Division owns and maintains State roads and highways in the area including Nimitz Highway, the main arterial roadway serving the waterfront area. Hawaii Community Development Authority (HCDA) HCDA's jurisdiction and mandate are embodied in Chapter 206E, HRS. The Kakaako Community Development District includes land within the original boun- daries, plus areas that were added to the District by Act 355, SLH 1987. New 2-39 DLN .............. ....................... OPRY' ... ............. 'FEDERAL + FEDERAL + + (DW) + + + + v (DOT- . . . + + + STATE (DLNR-LM) STATE (DOT-A) STATE (DLNR- 2-400 LAND MANAGEMENT RESPO F OUIDLE DOTI]; =:7/ E7/ (HCDA R) STATE HON (DOT-HB) WAT MA Q3 2-41 development controls for the expanded boundary areas will be e upon the completion of a development plan for these areas. This State agency is responsible for the planning and redevelop tion of the H.onolulu Waterfront from Kewalo Basin to Pier 7. Thi,,Z ly referred to as "the Kakaako Makai Area," and is part of HCDA's Community Development District" which extends north to King,( the area between Punchbowl and Piikoi Streets. HCDA is a pL which consists of an 11 -member board of directors and an e who is appointed by the board. The agency is administratively State Department of Business and Economic. Development (I mission is to plan and implement the redevelopment of the Kak HCDA. has three main functions. First, it has the authority to r ment via its planning and zoning powers for those areas desi munity development districts. Second, it upgrades infrastr through its district-wide improvement program. These may i ments to sewer, water, drainage, street, electrical and CATV HCDA may develop public facilities or other projects such a facilities, schools, day-care centers and housing developments Aloha Tower Development Corporation (ATDC) ATDC's jurisdiction and mandate are found in Chapter 206J, H the State as a semi-autonomous public corporation, this speciE is to promote the redevelopment of the Aloha Tower Complex. jurisdiction, confined to Piers 8 through 11, was expanded in 1 include Piers 12 through 23. The ATDC consists of a seven-member Board of Directors and i ly attached to the State Department of Business and Econorr (DBED). The Director of DBED serves as the Chairman of the 2-42 empowered to issue revenue bonds to finance its mandated redevelopment project. The entity's mission is to facilitate the redevelopment of the Aloha Tower com- plex in order to achieve the following goals: strengthen the international economic base of the community in trade; enhance beautification of the waterfront; better serve modern maritime uses; and provide for public access and use of waterfront property. Department of Business and Economic Development (DBED) The Foreign Trade Zone, established by federal statutes, offers firms the special legal status of being within U.S. Customs territory. This means these firms do not pay dues or excise taxes on foreign goods and materials brought into the zone. Duties and applicable taxes are paid only when finished merchandise is imported for sale, and never when goods are exported. Hawaii's FTZ No. 9, lo- cated at Pier 2 in Honolulu Harbor, is one of the largest and most diversified of the United States' 140 Foreign Trade Zones. The FTZ Division, itself operated by the Department of Business and Economic Development (DBED, also administers the operations of four special-purpose subzones, such as FTZ No. 9-V, Pacific Resources Inc.'s Hawaiian Independent Refinery located next to the Barbers Point Harbor at the Campbell Industrial Park. The FTZ Division has also sponsored applications for additional FTZ projects throughout Hawaii. Governor's Off ice of State Planning (OSP) In line 'With its statewide planning and interagency coordination responsibilities, OSP has been charged with the development of the overall long-range plan for the Honolulu waterfront. 2-43 City and County of Honolulu The City and County has several roles in the waterfront area, inc controls, land ownership and facilities development and mainten facilities here include the maintenance yards for the Departmen and the Board of Water Supply, the Ala Moana Sewage Pump Island Wastewater Treatment Plant, Ala Moana Park and Kee The City also owns and maintains the majority of the streets a and storm drainage lines in the study area. Federal Agencies Various Federal agencies have regulatory, ownership and facilit and maintenance roles in the waterfront planning area. The owned waterfront parcels are the site of the U. S. Immigration on Ala Moana Boulevard, the Coast Guard Station on Sand Is and Kapalama Military Reservation in Kalihi. Other Federal ag Department of Transportation, Federal Aviation Administration was a party to the agreement enabling development of the re agency's primary management interest is the maintenance o zones, which has implications on the Keehi Lagoon area.. U.S Army Corps of Engineers. The Corps of Engineers is resp taining navigable waters. Its statutory mandate comes from tt and Harbors Act. The Corps has an active program which pl in the maintenance of harbor water depths and the regulation of the high water mark. Other Federal agencies that have an active role and/or interest are the U.S. Customs Service, the U.S. Military Sealift Comm Services Administration, the Department of the Interior, Fish an and the Environmental Protection Agency. 2-44 2.5 HISTORY Travel by water is vital to island cultures such as Hawaii. The ancient Hawaiians spent much time in and on the ocean and the relationship between -land and water has always been important. Early Europeans introduced foreign-style sail- ing vessels. They became popular and were used by King Kamehameha I during the unification of the islands. Many of these vessels were retained for peaceful commercial uses during subsequent years. Honolulu Harbor's physical development is relatively young and dates back to the early 1800s with the arrival of European ships and subsequent commercial ventures. New wharfs and piers were constructed to meet immediate maritime needs. Unfortunately, these all too often became obsolete in a short period of time and were unable to accommodate larger and more technologically ad- vanced ships. Honolulu Harbor has continued to evolve (Figure 7) in order to meet maritime needs and pressures from urban expansion. Throughout this evolution, the focus towards the ocean has remained a major factor in the course oi the waterfront and Hawaii's,history. 2.5.1 Origins and First.Western Observations Honolulu Harbor was originally a small reefed basin created by the natural flow of freshwater from the streams of Nuuanu Valley. This flow of freshwater inhibited the growth of coral and created a long, narrow channel cutting through the reef into the deeper salt water. By 1794, the first Western use of the harbor was recorded. At the time, the har- bor channel was approximately 200 feet wide, three-quarters of a mile long, and about 30 feet deep. 2-45 t9l @A >AA ... ....... a u A ft: A**: N - "t w R S ISILA ..... ....... ... ............. ...... k:j. 1920 KAPALAMA .......... ''A "'A KAKA'AKO WIN .......... . ...... ......... . .......... .... ........ 1887 . ........... .. ......... 2-46 EVOLVING HONOLULU KEEHI LAGOON.. A . . . . . . . . . . . . . . . . . . ..... .......... KEEHILAGO N ................ SE t Ru .... ...... SAND ............ .......... ISLAND ........ ........... ........... ... . I............ ...... .... ........ .......... ............ ........... . ... .. ....... .. ............ ........... ..................... .... .......................... ............. ...... . . . . .......... .................. ... .. ...... . . .... ............- ....... .... SAND ISLAND 1947 AKA'AKO . ........... ........ .... .. .. ......... ................. . . .. ...... KEWALO BASIN .. .......... ............ 1941 ............ .......... ...... ....... -............. ......... .................- .................... ...... .......... ............... .......... ............. ........... .......... ......... .......... ............. .................... 2-47 European visitors observed a small Hawaiian community alo today's Downtown area. Fishponds were present to the w Stream to the Keehi Lagoon area. Native Hawaiians called th o Kou or "the harbor of Kou". Two years later in 1796, the hE "Fair Haven". This English name was later translated into Hawaii 2.5.2 Early Developments (1809-1890s) By 1809, King Kamehameha I relocated his seat of governmen land of Hawaii to Oahu and constructed a royal village in the c Honolulu vicinity. This move resulted in increased contact with ers and Honolulu soon became the center of economic and gov in Hawaii. Fort "Kekuanohu" was built strategically on the mal and Fort Streets where the AMFAC Towers are currently loca this fort fronted the original harbor shoreline. Since there were no facilities in the harbor during the early 180 and unloading of goods, ships arriving in Honolulu Harbor wer offshore and transfer their cargo and receive supplies by way o the number of ships increased, the need for loading and unloa came evident. The first wharf appeared in 1825. This consis sunken hulk placed at the foot of Nuuanu Street near the site of printed harbor regulations were also created during that year. By the mid-1800s a new maritime industry began to radically Harbor. Hundreds of whaling ships were now entering the demand for moorage became a serious problem. Whaling ve the harbor while their cargo was transported back to the East C States on faster clipperships. To provide more space for these ships, soil siltation from the into the harbor had to be contained. A breakwater wall was the foot of Maunakea Street to a point several hundred feet 2-48 shore. Although this breakwater did reduce siltation, it also inhibited develop- ment further north into the harbor for a number of years. Soon after this construction, efforts were organized to further improve the har- bor. Fort Kekuanohu was demolished and approximately 22 acres of new fill land were created and named the Esplanade. This provided additional space for expansion of the port and much deeper and larger berthing areas for newer steampowered ships. Linkage with the outside maritime world was now assured. During the 1850s, the pace of urbanization in Honolulu quickened. The advent of western landownership practices brought about expansion of the harbor and growth in the Downtown area in a more organized fashion. The area near Nuuanu Stream, known today as "Chinatown", began developing around 1855 as the first Chinese immigrants began leaving the rural plantations and settling near the harbor. This area was also adjacent to bars and clubs frequented by the visiting sailors arriving in large numbers. As Hawaii's economy became dependent on sugar and pineapple cultivation, new harbor development pressures became evident. The 1876 Reciprocity Treaty with the United States allowed the importation of duty-free sugar and by 1882 harbor improvements set the stage for the exportation of sugar and pineap- ples. Three finger piers were constructed in 1892 by Dillingham's Oahu Railway and Land Company as the terminus for sugar arriving from rural Oahu. Although controversial and originally resisted by the Hawaiian Government, these new wharfs along with the existing 15 government-owned wharfs helped alleviate the demand for harbor berthing space. By the end of the 1 800s and just prior to Hawaii's annexation to the United States, a large wharf was built in expectation of the American battleship U.S.S. Olympia. Although this ship never arrived, the harbor gained more frontage in the area be- tween existing Piers 5 and 6. During this time additional lands, such as the Ala Moana Park site, were also acquired from the Federal government. Transit sys- 2-49 tems such as street-car and horse-drawn carriage operations use along the waterfront. 2.5.3 Post Annexation (1 890s-1 920) With the end of the Spanish-American War in 1898 and the U quisition of the Philippines, Hawaii's position and strategic val By 1898 Hawaii officially was annexed as part of the United St became a Territory under the Organic Act in 1900. With Territ new improvements to the harbor's design and regulations. Th tablished the position of Superintendent of Public Works for h the first harbor line boundaries were established. Channel Wt constructed and a cattle pen and ferry landing on Quarantine Sand Island) were built. By 1914 there were 20 piers in the hc, were controlled and operated by the Territory of Hawaii. 2.5.4 Advent of Tourism and Industrial Growth (I War 11) During the 1920s, a number of changes occurred to the physic waterfront, primarily due to the expansion of the pineapple and To the east, Kewalo Basin began as a dock facility for lumber, the center for a newly developing fishing industry. The area today known as Fort Armstrong consisted of partially and several acres used by the U.S. Army for supply storage b World War 11. Fort Armstrong was named in honor of Bre\ Samuel C. Armstrong who served with distinction during the A Perhaps most dramatic during this period was the beginning of t By the late 1920s, Waikiki became a visitors' destination with nE the Moana and Royal Hawaiian. Visitors arrived and depart cruise liners. Most symbolic of this new growth in both tourism pansion was the construction of the 10-story Aloha Tower in 19 2-50 as the center for passenger cruise liners and as a vantage point for harbor con- trol. During these years, Sand Island consisted of small land fragments separated by tidal areas. Since the 1880s, a portion of this area was used for quarantine pro- cedures and as a holding facility for immigrants entering the Territory. 2.5.5 World War 11 and Statehood (1941-1959) With the bombing of Pearl Harbor in 1941, Hawaii became a major participant in the Pacific Front campaigns. Although the focus of waterfront military activities was still at Pearl Harbor, U.S. military work in Honolulu Harbor and Kewalo Basin did occur. Keehi Lagoon was dredged for seaplanes and areas such as the Reserve Channel (Kalihi-Kai Channel) and Kapalama Basin areas were widened, dredged and lengthened. New piers were also constructed. These improve- ments were presumed war costs with no appropriations or charges to Honolulu Harbor. Shortly after the War ended in 1945, control of piers in the harbor was returned to the Territory from the military. A major landfill dump for solid waste incinerator ash began in 1948 and extended from the edge of Kewalo Channel parallel to the coast to Fort Armstrong. As Honolulu prospered with its post-war economy, additional 'construction con- tinued to alter the physical appearance of the harbor. Nimitz Highway was com- pleted in the 1950s and a second entrance into the harbor was authorized under the Rivers and Harbors Act of 1954. Throughout this period, land filling and the construction of seawalls continued offshore in the Fort Armstrong, Ala Moana Park and Kewalo Basin areas. By 1958, Alexander and Baldwin's Matson Company revolutionized the ocean cargo shipping industry with standardized containers that improved handling and theft problems. This was to have a major impact on the shipping industry in Hawaii. 2-51 2.5.6 Statehood to present (1959-) Unprecedented growth in waterfront development followed S tinued dredging and construction accommodated the increa goods in the State. Landfilling at the Kaka'ako landfill continue proximately 200 acres of Sand Island reclamation land was tu State by the Federal government. Over the years numerou,,c placed on the limited acreage of the island and by 1975 the a container storage areas, a major wastewater treatment plant, area and a State recreational park. Other areas such as Keehi Lagoon, Kapalama and Iwilei wer continued construction of the International Airport, encroachin and Nimitz Highway. Pressure for development in the down tinued above Nimitz Highway and gradually revitalization c waterfront were expressed. Studies to address these issue development in the area began in the 1960s and have cul Honolulu Waterfront Master Plan. 2.6 MAJOR PLANNING PROPOSALS A number of planning projects for specific areas within the preceded the current Waterfront Master Plan project. The m these proposals have been reviewed during the planning proce tablish a comprehensive understanding of development issu specific areas and to evaluate ideas which may continue to hav ture of the waterfront. The following discussion presents a brief overview of past pla They are presented in chronological order beginning with the 2-52 Honolulu International Airport Master Plan Update & Noise Compatibility Program, Final Draft Report, Volume 1. Master Plan Update This report was prepared by KFC Airport, Inc. and Peat Marwick Main & Co. in June of 1988 for the State Department of Transportation, Airports Division. This Update to the Airport Master Plan of 1981 assessed the effect of local and in- dustry-wide changes on the airport since 1981 and extended its planning horizon to the year 2005. It addressed development issues to be dealt with during the next two decades and developed solutions for the problems associated with thoseissues. Components of the Update Master Plan which could have an effect on the waterfront study include: � Continued airport facility development is planned for the mauka side of Lagoon Drive. This includes a new general aviation area, aircraft main- tenance facilities, air cargo facilities, and a large area for helicopter, air taxis and commuter services. � The plan identifies a sizeable area of land in the Kapalama area (ad- jacent to Snug Harbor) for future airport support activities. Kaka'ako Peninsula Proposed Convention Center Site, Executive Summary This plan was prepared by Belt Collins & Associates in February of 1988 for the State Department of Business and Economic Development. The purpose of the plan was to create a design for the development of a convention center in the Kakaako Peninsula area. The plan expanded on selected. ideas and issues raised during the 1987 OSP/HCDA waterfront "charette". With the convention center as the focus for development in the area, the plan envisioned additional development that would make the Kakaako waterfront area the center for inter- national and business traveler activities. 2-53 Major components of the plan included: e A convention center large enough to service a 20,000 tion; * An aquarium/ocean research center; o 3,000 hotel rooms; ,6 A waterfront market place; 9 An Immigration park; e Maintaining container yard operations at Fort Armstro while providing for expansion of downtown into the term; * An inland waterway; and * Expansion of the shoreline makai of Fort Armstrong f Keehi Lagoon Recreation Plan Update, Final Draft This Plan Update was prepared by Edward K. Noda & Associ P. Dashiell, AICP in December of 1987 for the State Departme tion, Harbors Division. The purpose of this plan was to update t Recreation Plan (1977) in order to meet new needs related to which had been expressed by the community. This plan emph tial growth in ocean recreation as well as the potential for busin in the area. It identified the need for additional berths for sn boats, land for industrial maritime support services, active ocean and passive shoreline recreation areas. Recommended development plan components include: *Accommodating approximately 185 boats at a new Pier 60 near the La Mariana Sailing Club; 2-54 Development of a large marina along Lagoon Drive for approximately 750 to 850 boats and the necessary launch ramps, fuel dock, ferry tran- sit landing, and marine commercial facilities; Construction of a canoe center and race facility on the northeast shore (land nearest to the freeway); *Development of the 300-acre "triangle" area to include a yacht racing/ocean recreation center (50 acres), a marina (about 350 berths), commercial maritime center (20-30 acres), park space, industrial park (40-100 acres), and possibly a 9-hole golf course. The Honolulu Waterfront, A Reawakening This document was prepared by the Hawaii Society of the American Institute of Architects, the Hawaii Chapter of the American Society of Landscape Architects and the Hawaii Chapter of the American Planning Association in November of ' 1987 for the Office of State Planning and the Hawaii Community Development Authority. Professionals from the above organizations participated in develop- ing three design concepts for the waterfront area, concentrating specifically on the Kaka'ako Peninsula area. Based on input received from workshop sessions involving over 200 business and community leaders, written and graphic descrip- tions of the waterfront concepts were developed. The design process was meant to illustrate the wide array of opportunities and the breadth of community inter- ests inherent to the waterfront area. The three design concepts and their primary features are as follows: *The Pacific Gateway concept envisioned the continued expansion of the central business district into the Kaka'ako Peninsula. It would provide'for increased office, commercial, educational, and recreation- al facilities. It would create an active waterfront area. Major design components included a new inland waterway and marina and a new marine research and educational center. 2-55 *The Noho Kai (to Live by the Sea) concept featured phasis based on two premises. The first was that the and viable for residential as well as for visitor uses. that the maritime operations at Piers 1 and 2 would t design promotes the development of a marina in the area. The Gathering Place concept placed emphasis on rec tural activities. The centerpiece of this design was a F (convention) Center. Other uses would include hotE search center with an aquarium, a festival market plac large passenger ship facilities at Piers 1 and 2. 2010 Master Plan for Honolulu Harbor This plan was prepared by the Harbors Division of the Stat Transportation and the Chamber of Commerce of Hawaii Marit mittee in October of 1986. It updates the 1995 Honolulu Ha created in 1976. Primary reasons for the update were change interisland barge operators to relocate to Piers 39-40, a dramat passenger vessel industry, technological advancements in changes in Federal participation in navigational improvement ing conflict between maritime and non-maritime uses of harbor ing activity of the ship repair industry and an increase in tourist dinner cruises. The 2010 Master Plan was a culmination of input from users o those directly related to the development of new facilities, a responsible for improving, operating, and maintaining harbor f Major recommendations of note to the waterfront planning eff( Continued container and general cargo operations at F Armstrong); 2-56 *Continued passenger vessel handling at Piers 8 to 11, and possibly providing for a passenger ferry terminal at Pier 8 if other sites prove to be (infeasible; 9 Renovation of Piers 12 to 15 for maritime activities compatible with the Aloha Tower development and the Downtown/Waterfront interface ef- forts; * Continuation of existing activities at Piers 16 to 23; Improvements to sheds, yards, and pier structures at Piers 24-29; *Continuation of uses at'Piers30-41, with possible improvements at Piers 37-40; * Development of Pier 42; * Continued major container operations on Sand Island; and Kaka'ako Waterfront Park, Development Plan and Environmental Assessment This document was prepared by the University of Hawaii, Sea Grant Extension Service in September of 1986 for the State Department of Land and Natural Resources, Division of State Parks. The intent of the plan was to provide recom- mendations to DLNR concerning the development of a major waterfront park along the shoreline, on the Kakaako Peninsula. The report discussed the area's history, park development opportunities and constraints, regional recreational needs, future development in the surrounding area an rd park operation con- siderations. Three alternative designs were developed and analyzed for the report: * An U rban Waterfront theme providing for mostly passive-type activities, with a number of paths for jogging and walking; * A Physical Fitness theme providing for more active recreation activities and the development of facilities which promoted sports events; 2-57 * An Ocean Heritage theme emphasizing the interpretive in terms of the area's history, surrounding maritime us * The recommended plan encompassed aspects of themes, featuring terracing of the landfill area to provid viewing site; a continuous greenbelt pedestrianway f Boulevard to the shoreline; easily accessible picnic a of the old City incinerator; an exercise parcourse, a sm and a children's play area. Kewalo Basin Master Plan, Landside Facilities This plan was prepared by Michael S. Chu in April of 1986 for t ment of Transportation, Harbors Division. It was developed b mendations made by the Kewalo Basin Task Force (KBTF) in 1 dated evaluation of industry needs in the harbor. The plan proposed land use and facility development for thr Kewalo Basin: the edge fronting Ala Moana Boulevard, the Waiki to Ala Moana Park and the triangle peninsula on the makai edge. ment plan components included: Ala Moana Boulevard edge: no land use changes; boat" building; improve utilities; expand parking and cir 6 Waikiki edge: no land use changes; renovate existing fice, storage, and commercial uses; develop sewer se pand parking and circulation pattern. 6 Triangle peninsula: clear and grade unused lands; wide shoreline park; construct new net shed, restroo lockers; develop sewer line to the area; improve pa0 tion; provide landscaping. 2-58 OCLC: 19662175 Rec stat: n Entered: 19890203 Replaced: 19950514 Used: 19890505 $Type: a Bib lvl :m Source: d Lang: eng Repr: Enc lvl:M Conf Ctry: hiu Mod rec: Govt pub: s Cont: Desc: a Int lvl: Festschr: 0 Illus: abe F/B 0 Dat tp: s 1989, % $ 1 040 HUH p$ 2 043 n-us-hi % 1pIb % 0 5 110 2 helber, mastert, & Kimura (Firm) % $ 6 245 10 Honolulu waterfront master plan : 'bpre-final report / 'c prepared for the Office of State Planning, State of Hawaii ; prepared by HeLber, Hastert & Kimura and R.M. Towill. % $ 7 260 [HonoLulu office, $ 8 300 1 v. (various pagings) : 'b ill maps, plans $ 9 500 "January 1989.11 % city planning z'Hawaii 'z Honolulu. % $ 11 650 0 Waterfronts Honolulu. % $ 12 650 0 Harbors Honolulu. % $ 13 710 2 R.M. Towill $ 14 710 1 Hawaii. 'b Office of state Planning. % Hawaii Ocean Center Concept Plan This document was prepared by Rhodes/Dahl, Ace Design, BIOS, Robert 0. Dahl and David C. Powell in December of 1985 for the State Department of Account- ing and General Services. It described a program for interpreting the regional marine life of the Hawaiian ocean, the cultural history of Hawaiian beliefs and practices relating to the ocean, and state-of-the-art science and technology ex- hibits. The ocean center was proposed to be sited on the peninsula at Kewaio Basin. The ocean center concept consisted of six major exhibits with specific themes. This included: * Kumulipo Hymn of Creation: The entrance exhibit which sets the stage for the visitor to the center; * Islands in Time: A variety of exhibits highlighting volcanic activity, focus- ing on the formation of the islands, early beliefs about island creation, and the on7going research that allows us to understand the geology of islands and the earth; * The Shore: Outdoor and underwater viewing areas of Hawaiian water mammals, tidal conditions, and vegetation; * Coral Reef: A large tank exhibit for viewing fish which inhabit Hawaiian waters and coral reefs; * Open Ocean: Exhibits for viewing sharks, whales and other open ocean fish, plus research related activities; and * The Surface: A series of exhibits on ocean technologies past, present and future. 2-59 Makai Area Plan. an Addendum to the Kaka'ako Community E trict Plan This plan was prepared by the State of Hawaii, Hawaii Commur Authority in October of 1983, and subsequently amended in 198 plan serves as an addendum to the original Kakaako Plan, cove al 133 acres included in the Kaka'ako Community Developme establishment in 1976. The Makai Area Plan initially encom Armstrong area (Piers 1 and.2), four blocks of Bishop Estat Moana Boulevard, the food distribution area in the central port sula and Ala Moana Boulevard to Piikoi Street. In 1987, the Mal@ amended to reflect a further expansion of the District's boundar remainder of the Kakaako Peninsula, Kewalo Basin and Ian Moana Boulevard from Piers 4 to 7. In terms of the preferred land uses in the area, the largest sing the plan provides for the continuation of waterfront industrial ac Armstrong area. Mixed-use developments, identical to the type envisioned for the mauka area, are planned for the private I Moana Boulevard (emphasis on commercial activities) and for tion area (emphasis on residential use). Maximum allowable he in these mixed-use areas would be 200 feet and 150 feet, res components include: *Transportation: Improvements to local roadways wit possible closure of Coral and Ohe Streets; general ments; pedestrian circulation improvements; possib system; bikeways. Urban Design: Urban form in the area controlled by ing building bulk, building setbacks, tower coverage, I 6 Utilities: Improvements to all utility systems as neces 2-60 *Historic Resources: Preservation of the U.S. Immigration Station & Department of Health Building and the Ala Moana Sewage Pump Sta- tion. Relocation: Relocation assistance by HCDA; policies for the provision of comparable replacement facilities and relocation payments that reflect reasonable relocation expenditures. Sand Island Shore Protection Study: Final Detailed Prooect Report and Environ- mental Impact Statement This report was prepared by the U.S. Army Corps of Engineers in October of 1983 for the Department of the Army. It focused on the evaluation of shore erosion and related problems at the Sand Island State Park, and their impacts upon the overall environmental, cultural, and rec reational resources of the area. Alternative plans for protecting the shore from further erosion were developed, along with a cost/benefit analysis and an assessment of potential environmental impacts associated with implementation of these plans. Major plan components include: *Rehabilitation of existing revetment by excavating backfill and building new revetment structures at strategic sites; and *Placement of three detached offshore breakwaters along 600 feet of shoreline to provide erosion protection. Aloha Tower Plaza, Development Prospectus This document was prepared by ROMA Architects in May of 1983 for the Aloha Tower Development Corporation (ATDC). It provides an outline of the develop- ment objectives as originally adopted by ATDC and a summary of the market potential of the proposed project. Also included is an explanation of the proposed public improvements, the guidelines for private development, the construction strategy, the status of governmental preconditions to implementation, and the terms and conditions of the lease. 2-61 The proposed project area totaled 13 acres and encompassed Irwin Park. One leasehold parcel was to provide two develop acre hotel site and a 1.4-acre office site) connected by an und( easement. Major components of the development program in 400-500 room hotel 600-1,000 seats of restaurant 100,000-150,000 sq.ft. office/retail space Parking to support activities Main cruise ship terminal at Piers 10- 11 (17,000 sf) � DOT replacement office space (5,000 so � Back-up cruise ship facility at Pier 9 (8,500 sf) � Inter-island terminal at Pier 8 (13,500 sf) � Major open space & pedestrian improvements � Pedestrian bridge over Nimitz Highway � Access roadway and highway improvements � Covered maritime operations area at Pier 11 * Rehabilitation of Aloha Tower Conceptual Planning Study, Piers 2 to 18, Honolulu Harbor This study was prepared by EDAW, Inc. in September of 1@ Department of Transportation. The DOT invited people maritime-related activities, other interested groups and individ the "Downtown Waterfront Redevelopment Team." This team sultant to develop a conceptual plan for the area between Piers on the preservation of Aloha Tower as the focal point. Prel design concepts ranged from a maximum open space alternati development alternative. The recommended long-range plan 2-62 mum open space. Revenues were anticipated to be generated from such ele- ments as floating attractions, charter and commercial boats and parking. Principal plan elements included: 9 Access from Downtown via pedestrian overpasses at selected sites; 9 A continuous promenade from Pier 2 to 18; * Extension of the land area at Piers 5 and 6, creating a larger park space and construction of a parking facility; * Removal of the overpass at Pier 7, provision of charter and cruise boat mooring and berth space for a Sand Island shuttle ferry; Construction of a Hawaii World Trade Center on Piers 8 to 11; *Removal of buildings on Piers 12 to 14, replaced by a promenade, landscaping and parking; *Maintaining the firehouse at Pier 15, but removing other structures for a promenade; and Developing Piers 16 to 18 for commercial fishing. Final Environmental Impact Statement for the Sand Island State Park This plan was prepared by Aotani & Oka Architects in 1975 for the State Depart- ment of Land and Natural Resources, Division of State Parks. The proposed park plan encompassed 140 acres along the makai shoreline of Sand Island. Its purpose was to provide recreation opportunities, both passive and active, with primary orientation toward ocean, shore-oriented, and cultural activities. Primary development proposals included: *A boat park on the Keehi Lagoon side which would provide for boat launching, storage, and on-shore viewing area,of boating activities; and 2-63 A beach park from the south point to the area facing d sive type of park activities. Urban Design Study of the Honolulu Waterfront This study was prepared by the Oahu Development Corporat 1968 for the State Foundation on Culture and the Arts. This trends and policies that affected growth of the Honolulu wate urban design development controls, and presented various al for subareas from Keehi Lagoon to Diamond Head. The study u an urban design plan which proposed specific development p its alternative analysis. Specific development program elements within the waterfront p were recommended by this 1968 study include: A harbor tunnel road from the airport, to Sand Island harbor channel and finally connecting into Ala MoE South Street; *Enlargement of the Coast Guard area and providin museum and historic ships display; Removal of piers 12 to 15 and construction of a prom ing area for transient ships; *Building pedestrian bridges over Nimitz Highway; *Creating a beach along the shoreline of the Kakaako � Expanding commercial fishing activities and ocean res in the Kewalo Basin area; � Major expansion of Ala Moana Park onto the reef are � Major marine recreational development in Keehi Lag 2-64 The Comprehensive Plan, Ala Moana Reef This plan was prepared by Belt Collins & Associates and Harland Bartholomew and Associates in February of 1961 for the State Department of Land and Natural Resources. The plan called for filling over 200 acres of submerged land which would provide for expansion of park space, along with land for hotels and com- mercial activities. 2-65 3.0 THE MASTER PLAN This chapter presents the Master Plan.. Section 3.1 reviews the overall waterfront goals which have guided the formulation of the Plan. Section 3.2 provides a plan- ning overview identifying the unique aspects of the waterfront area, the long range "vision", and its supporting themes. Section 3.3 sets forth the develop- ment program, including a summary of the projected needs for various land use activities in the planning area. Section 3.4 describes the recommended develop- ment plans and provides descriptions of major uses and systems. 3.1 OVERALL WATERFRONT GOALS The following goals have been established to serve.as the basis for planning decisions in the waterfront area. These goals were formulated from a variety of sources with interests in the waterfront including the Legislature, the Governor, Federal; State and County agencies, and the Waterfront Focus Groups. Be- cause of the size and complexity of the waterfront, and the potential competition among uses for waterfront property, the goals cannot be applied in a mutually exclusive manner. However, through careful phasing and management, most of the goals should be achievable with a minimum of conflict. A. Physical 1 . Land Use Maritime Uses. Provide sufficient space and facilities (landside and waterside) to meet the functional requirements of Oahu's harbor and maritime needs for the long range economic welfare of the State. 3-1 Recreational Resources. Provide recreational resources (activ cial and cultural) to meet the needs of Honolulu's growing residen without.jeopardizing the capability of meeting the State's maritim Urban Development. Provide space for water-related comme and institutional facilities which meet the demands of the State's gr tion and economy. 2. Urban Desig Public Access. Promote safe public access to the ocean and alo edge. Views. Enhance views of and from the waterfront and protect si ing view corridors. Historic Resources. Protect existing historical landmarks and in torical features and themes into waterfront redevelopment progrc, Design Quality. Encourage the highest quality of design for all p ly visible facilities and features. Hawaiian Character. Develop distinctly Hawaiian design the waterfront redevelopment projects. Landmark Projects. Provide for one or more major landmark p give the Honolulu waterfront its own world-renowned identifying 3. Circulation Public Transportation. Promote the availability and use of put tion (land and water-borne) to and within the waterfront area. Service Access. Provide service access to all'waterfront uses. flicts and safety concerns between service vehicles and other us 3-2 Nimitz Highway. Moderate the use of.the Nimitz, Highway corridor for through traffic and/or seek other ways, including grade separated facilities, to reduce this traffic barrier between the waterfront and areas immediately mauka of it. Pedestrian and Bikeway Linkages. Provide a system of pedestrian ways and bikeways linking all major activity nodes along the waterfront to those areas mauka of it. 4. Infrastructure Utilities. Provide adequate water, sewer, drainage, power and communication systems to meet the needs of existing and future waterfront activities in a timely fashion. 5. Environmentat Ecosystems. Minimize the adverse impacts on existing ecosystems in the har- bor and the nearshore waters. Surfing Areas. Protect surfing conditions along the coastline. Public Health. Maintain air quality, noise, vibration, and night lighting levels within acceptable health and nuisance. standards. 6. . Phasing Maritime Facilities. Insure that sufficient maritime facilities are available for the State's long range economic welfare before designating existing maritime lands for non-maritime uses. Priority Projects. Encourage redevelopment to take place in an orderly and incremental fashion starting with identified "priority projects" which are expected to serve as catalysts for further development of surrounding properties. Long Range Plan. Strive to implement a long range land use plan for the waterfront and avoid any actions which would foreclose implementing such a plan without fully analyzing and accepting the outcomes of such actions. 3-3 B. Economic. 1. Existing/Future Operations Harbor Operations. Maintain the viability of Honolulu Harbor primary port, and insure that the harbor operations will be able to all necessary existing and future inter-island and overseas statev needs. Compatible Uses. Seek to expand or enhance existing opera compatible and consistent with the long range plans for the wate imize dislocation impacts of non-compatible uses. Consolidation of Uses. Where practical, seek to consolidate activities in order to provide more efficient services and common Ocean-Related Uses. Encourage the development of uses and take advantage of or seek to promote Hawaiis unique ocean tunities. 2. Financin Public Benefits and Costs. Seek to maximize public benefits Y public costs for development within the project area. Private Sector Role. Encourage private sector redevelopment sible but provide sufficient off-site infrastructure or public/privat partnerships to reduce private sector risks and insure long-term Financing Tools. Utilize innovative financing techniques to cov ditures such as tax increment financing, user fees, local improv etc. 3-4 3. implementation/Operational Responsibilities Implementation Organizations. Identify existing or create new government agencies, authorities or development corporations which will be responsible for implementing the long range waterfront plan. Overall Coordination. Insure that an umbrella organization (if not one of the above) has the power to update, monitor and direct the overall implementation of the master plan on an on-going basis. 4. Phasin Market. Do not proceed with any new development until there is a sufficient market to support the project or an economic benefit to the State. Impacts on Existing Operations. Seek to minimize adverse economic impacts on existing businesses and other activities during construction of off-site in- frastructure and adjace6 t redevelopment projects. C. Social 1 . Emp oyment Employment Opportunities. Enhance employment opportunities within the waterfront area to support the uses and activities being provided. 2. Housin Priority Uses. Housing within the waterfront area should only be provided where it is not competing or conflicting with, nor impacted by, long-term maritime, commercial, industrial, recreational, cultural or institutional uses which need or benefit from waterfront locations. Financial and Social Justification. Housing should only be considered when its financial returns can contribute significantly to reducing public costs for waterfront improvements, and its presence will enhance the sense of community by providing people and activities in the area 24 hours a day. 3-5 3. Development Impacts Relocation Assistance. Relocation sites and assistance shou for existing activities which may prove to be incompatible with lo the waterfront area. Resident Focus. Uses within the waterfront area, particularly r cultural, should be aimed at meeting the needs of the local res visitors second. 4. Phasing Community Facilities. Recreational, cultural and institutional f be provided in the waterfront area as regional needs for these u particularly as generated by the growing residential areas mauk Highway and Ala Moana Boulevard. 3.2 PLANNING OVERVIEW The Honolulu waterfront is recognized as a special public resour potential to provide opportunities for economic development, PL and civic identity, in addition to serving as the State's princi waterfront planning area stretches along six miles of the south encompassing over 1,550 acres and includes the Ala Moana Beac Basin, Kaka'ako Peninsula, Aloha Tower piers, Chinatown, lwilei waterfronts, Kalihi Kai, Sand Island and Keehi Lagoon. Because functional relationship to Honolulu Harbor operations, the Barbe located on the southwest shore of Oahu is also included in the r 3.2.1 Contrasts The Honolulu waterfront today is a study of contrasts, accommod of uses and activities ranging from commercial shipping op Honolulu Harbor to dinghy sailing inthe Ala Wai Yacht Basin, from such as the drydock and shipyard to restaurant operations in Ke" 3-6 active recreational activities at Ala Moana Beach Park to container and cargo operations at Sand Island, from the glass office towers of Bishop Street to the fuel storage and bunkering facilities on the Iwilei Peninsula, from the older residences of Kalihi Kai to the high-rise residences of the new Kaka'ako. These contrasts represent the very urban fabric of the city, tied together, sometimes tenuously, by the collective aspirations and needs of its residents and busi- nesses. In his 1 -988 State of the State address to the people of Hawaii, Gover- nor Waihee eloquently characterized the planning area: "The waterfront is the face of Honolulu. Its features include our industry and vitality, our beauty and our grace, and our unique character as a people of land and sea. From Keehi Lagoon, where potential for recreation and 'maritime in- dustry abounds, to the lifeline gateway of our port, to the treasured people-be- ckoning charisma of the Aloha Tower, to the old and new of Kaka'ako. It is a remarkable resource with vast potential unrealized." The Honolulu waterfront represents at once the historic and mythological. relationships between Hawaii's residents and the sea, the vital importance of ocean surface transportation to our Island State, and the daily interaction through recreation and commerce with the water-front experienced by island residents. 3.2.2 Uniqueness The Honolulu waterfront is unique in a number of respects when compared to other urban waterfronts in the nation. A major difference involves the level of use of the waterfront area. Other cities such as Boston, Baltimore, New York and Seattle have undergone and are continuing to undergo renewal of, their waterfronts. These waterfronts were generally categorized as dysfunctional, un- able to cope with modern shipping technologies and largely comprised of vacant rotting pier structures and deteriorated sea walls and bulkheads, with inadequate berthing and backland facilities, and poor access. Major port operations such, as cargo handling, bunkering and provisioning gradually shifted away from the older urban waterfronts to more modern facilities, usually located on the outskirts 3-7 of the major urban area where economical land assemblage, d access to major transportation corridors were available. Planning for many of these urban waterfronts therefore largely as slate and new uses could be imposed with minimal adverse imp uses. The Honolulu waterfront is fundamentally different fron counterparts in that, for the most part, the entire waterfront is full the possible exception of some areas within the Kaka'ako Penir land and Keehi Lagoon, the entire 1,550 acre planning area is in a a fundamental difference, aside from our unique historic and cultu is that the introduction of any new uses into the waterfront will, t displace existing uses. Another factor which sets the Honolulu waterfront apart fron counterparts is land ownership. Many of the! lands around ty waterfronts are controlled by private owners such as railroad and panies, and waterfront industrial plant operators. Thus the range ning options for redeveloping these waterfronts is restricted by virt of the private property owner. Through fortuitous actions earlier the Honolulu waterfront is largely owned by the people of the Stat percent). Of the remaining 24 percent, one third is owned by,the ment, with the balance controlled by private interests. Thus, the ra options for the Honolulu waterfront is much broader, with the pote inclusive of a much wider spectrum of community needs and as are available to many mainland waterfront renewal programs. It is from this understanding of the waterfront that the major theme Plan evolve. The themes, when integrated with the findings of the ning investigation, the overall goals discussed in the previous se lative mandates and broad-based community input, result in th long-range Master Plan for the Honolulu waterfront. 3-8 3.2.3 The Vision The vision for the Honolulu Waterfront Master Plan focuses on implementing the Governor's challenge to create a "people-oriented gathering place" within the waterfront planning area while at the same time providing sufficient land and facilities to accommodate the projected expansion of commercial maritime operations within the Honolulu and Barbers Point Harbors. The vision is com- prised of a number of central themes described below. 1 - Historical Precedent Hawaii is perhaps unique among the fifty states in its recognition of the inalienable right of its people for access and use of coastal areas throughout the State. This recognition respects the traditional importance of the coastal resource for provision of food, commerce, recreation and cultural fulfillment. In recent times, the need to maintain public access and use of the shoreline has become more acute, as population growth has increased the amount of people seeking this resource and private development along the waterfront has effectively reduced the available area. Nowhere in the State is the need for public access and use more evident than along the south shore of Oahu, particularly along the Honolulu waterfront, an area which exhibits some of the highest population densities and the most exclusionary land use patterns. 2. Mauka/Makai Relationship Another major traditional precedent which directly affects public access and use of the waterfront is the concept of mauka and makai relationships. Drawing from the basic land unit of the Hawaiian tradition, the ahupua'a, and shaped by the unique geography common to the high islands of the Pacific, spatial relationships between the coastal areas (makai) and the inland areas (mauka) are viewed as being fundamental to a well conceived plan. A typical pattern of port development has occurred in Honolulu and urban waterfronts throughout the world which has had the effect of severing or great- ly impeding the mauka-makai linkages. In the early stages of port development 3-9 the waterfront was essentially an extension of the town or A restricted mauka-makai access. The waterfront was, in essence, of the settlement. Ships were anchored offshore and cargo was a small wooden jetty (perhaps constructed over a scuttled ship) b Because of its recognized value as a safe harbor, the Port of Ho a favored provisioning stop in the growing trans-Pacific trade. sented a safe-haven and the threshold to the City of Honolulu. because of the importance of maritime commerce, Honolulu al seat of government. Gradually over time, seawalls and bulkhe structed to improve anchorage facilities and cargo throughput cargo passing over the pier). With time, the growth of maritime commerce stimulated urba within the port city and along the waterfront. With the coming warehouses along the water's edge began to appear and wood to be replaced with larger docks made of stone and fill materia into the water to expand docking and storage facilities, the distan city's center and its shoreline was significantly increased. The cargo from the waterfront into the surrounding region and the p fic congestion within the port city often precipitated the constrL shoreline roadway, often on fill land. In many cities, including H portance of this roadway for regional circulation grew with expa commerce and the population base. Over a period of perhaps one hundred years, Honolulu has und( pattern of port development which has effectively isolated the the mauka areas. In short, the city has turned its back to the heavily used Nimitz Highway/Ala Moana Boulevard corridor h traditional mauka-makai relationship between Kapalam Downtown, Kaka'ako and Kewalo with their respective ocean fro ing a substantial physical and perceptual barrier. A critical plann to open up the deteriorated mauka-makai linkages and re-instill t waterfront as the gateway to Honolulu. 3-10 3. The Great Park Concep The planning solution to creating a "people-oriented gathering place" on the Honolulu waterfront involves building on the traditional relationships of our island residents to the sea, the realities of ongoing and expanding port operations and the opportunities afforded by public control of the waterfront. Beginning in the early part of this century, planners have envisioned a system of great parks con- nected by a series of linear parkways stretching both circumferentially along the length of urban Honolulu and mauka-makai, providing access to the mountains and the sea. This system of parks would offer relief from the tensions of urban living, give ample space for active recreational activities, provide needed buffer- ing between urban uses, and generally increase the quality of the urban environ- ment. This in turn, would stimulate economic activity and ultimately have a posi- tive impact on the quality of life for residents of Honolulu. The linear linkages be- tween the larger park areas would range from completely separate circulation systems for pedestrian and bicycle uses to major landscaping elements along heavily travelled urban arterials. The total system, comprised of larger park areas and intermediate linkages, constitutes a major organizing thread winding through the diverse urban fabric of Honolulu. The Great Park concept (sometimes referred to as the "lei of green") is gradual- ly being -implemented,'with one of the more recent and widely acclaimed ele- ments being the Hawaii Capitol District adjacent to Downtown. The Honolulu waterfront offers a tremendous opportunity to reinforce and expand the great park concept while at the same time providing major public access and use of the scarce waterfront area. 4. Maritime Integri Another important theme expressed in the vision for the Honolulu waterfront is the preservation and enhancement of the Port of Honolulu as the hub of the State's commercial harbor system. It is clearly recognized that Hawaii, as an is- land State, is almost totally dependent on ocean surface transportation. Ap- proximately 80 percent of the required goods to keep the Hawaiian economy fUnctioning are imported, and 98 percent of these imported goods are delivered 3-11 by ships. Exports, likewise, are transported almost entirely by c, Thus, no State is as dependent on ocean surface transportation there are no other economic transportation alternatives for its being. The majority of overseas inbound and outbound cargo rive and depart via Honolulu Harbor. In recognition of the critical importance of a sound maritime inc Hawaii's continued economic growth, a significant element of thE ning process involved a detailed analysis of existing and proje quirements. In essence, the investigation identified the location quirements necessary to support efficient port operations throug Beyond 2020, the investigation developed several long-term opti be considered by policy makers over the coming years such a shipment of interisland freight (encouraging more direct neigh ments), capital improverhents to expand existing harbor facilities Harbor, on the neighbor islands and/or at Barbers Point, and lo use of Pearl Harbor. Other options include intensification of E either through technological advances that would allow for incr put without increasing land area requirements or by increasin and associated costs to consumers. 13 DEVELOPMENT PROGRAM The following discussion presents an overview of the projected n land uses including harbor cargo operations, commercial, indus recreational and cultural activities. This provides the base infor development. It also serves to highlight the types of activities t cated in the waterfront area. 3.3.1 Harbor Cargo Operations The assessment of harbor cargo operations in the waterfront w Moffatt and Nichol, Engineers of Long Beach, California. Primc, 3-12 this study were to evaluate present cargo activities, project future activity levels and determine additional physical resource requirements to the year 20 10. Cargo projections vary by cargo class. The basis of the various projections in- cluded resident population growth, visitor population growth, the expected in- crease in per capita income, visitor spending, construction activity, agriculture and historical cargo activities. Information sources included the State Depart- ment of Business and Economic Development statistical records and forecasts, the Bank of Hawaii reports of business activity and the State Harbor Division's cargo activity records. Total cargo activity is projected to increase from approximately 7.6 million short tons in 1987 to 11.7 million short tons in 2010, an increase of 54 percent. Con- tainerized cargo exhibits the largest growth, increasing from 3.4 to 6.5 million short tons, an increase of 91 percent. This figure is equivalent to an average an- nual growth of 2.8 percent. Containerized cargo will account for 55 percent of the total 2010 cargo volume, an increase from the 1987 share of 45 percent. The trend is expected to continue beyond 2010 as indicated in the graphic below. Table 1 gives estimated acreage figures for various cargo classes during 1986- 87, plus projected additional acreage and total acreage requirements to the year 2010. The table shows that an estimated 65.4 - 75.4 acres will be required by 2010. Of the additional acreage estimated for 2010, 40 to 50 acres are for con- tainerized cargo handling. This represents an increase of 26 to 33 percent over current levels of land use. The only other significant demand for land is expected to involve the interisland cargo operations. Even though the total additional acreage demand is lower (22 acres by 2010), the actual rate of growth of this industry is much greater than the container industry. These acreage figures represent an overall percentage growth rate of 122 percent by 2016. This reflects the anticipated rapid growth of population on the Neighbor Islands. 3-13 Table 1: YEAR 2010 PROJECTED MARITIME SHIPPING SPACE REQ (Acres) 2010 Cargo Class 1986-87 Prowected Break-Bulk General Cargo 19.6 19 *6 Neo-Bulk General Cargo 30.0 33.0 (Includes vehicles and lumber) Interisland Mixture 18.0 40.0 Containerized Cargo 153.0 193.0 - 203.0 Dry Bulk: Silo 25.7 25.7 Dry Bulk: Stacking 8.9 8.9 Low Density Dry Bulk: Stacking 3.3 3.7 High Density Liquid Bulk: Molasses 3.2 Chemicals Uquid Bulk: Petroleum 10.0 101.0 Products Bunker Fuels 4 _-Q 4 _-Q TOTALS 275.7 241.1 - 351.1 3.3.2 Other Maritime Water-borne commerce in Honolulu Harbor and Kewalo Basin in al maritime activities and activities ancillary to the primary car These include ocean cruise ships, excursion/dinner cruise shi and sport fishing, the U.S. Coast Guard and the University of F activities. 3-14 Findings by Moffatt and Nichol for these individual maritime activities in terms of their estimated requirements to the year 2010 are presented in Table 2. At present, both the commercial fishing and ocean cruise ship industries are ex- pected to remain relatively strong and require additional acreage in the future. In particular, the commercial fishing industry is projected to require an addition- al 3,200 linear feet of berthing space (an estimated 22.5 acres of water area). Furthermore, the industry is estimated to require 23 acres for added support facilities (e.g., ship repair, parking, net shed, ice plant, etc.). An additional 2 to 3 berths, with approximately 8 acres of land, is projected for ocean cruise ship operations. Other findings are briefly presented in the following discussion. Passenger demand for excursion/dinner cruise ships is expected to grow in direct proportion to the number of tourists visiting Honolulu. This will result in a future berthing demand for one additional vessel every other year or a total of 17 additional berths by 2010. Growth in the charter boat or'sport fishing industry is projected to occur at a rate of 2 vessels every 5 years. This requires an expansion of facilities to provide 9 additional berths by 2010. *The U.S. Coast Guard can meet future demands for land through internal land-use prioritization and multi-story construction within its current 35 acres of land. Vessel berthing demands are expected to require 1,700 linear feet of wharf, about 300 feet more than what exists today. There are about 725 feet of undeveloped shoreline within the property. *The University of Hawaii Marine Expeditionary Center (Snug Harbor) re- quires approximately 10 to 15 acres of land and 1,000 to 1, 100 linear feet of wharf. A permanent location for the AT&T cable ship requires 500 feet of wharf and approximately 1.5 acres of backland for storage and offices. 3-15 Table 2: PROJECTED MISCELLANEOUS MARITIME SPACE REQUIR (2010) Additional Maritime Activily Land Requirements Water Reg Ocean Cruise Ships 8 acres Excursion/Dinner 2 acres Cruise Ships Commercial Fishing. 23 acres 3,200 Sport Fishing 1 acre Boat Repair 4.5 acres Facilities Total Ancillary Actift Land Requirements Water Reg U.S. Coast Guard 30 + acres University of Hawaii 10 acres 1,000 Marine Expeditionary Center AT&T Cable Ship Facility 1.5 acres Anuenue Fish Hatchery 5 acres (1) Proximity to ocean or harbor is needed. The facility requires discharge of circulating water, and deep wells for intake of ocea launch ramp requirement could be met at other boating facilities 3.3.3 Commercial The market assessment for the Honolulu Waterfront Master Pla by John Child & Company, Inc. The assessment evaluated the d 3-16 portunities for three major land uses including a-Downtown business hotel, com- mercial office space and retail shopping. The assessment was based on a detailed analysis of those factors which influence supply and demand and con- sideration for the competitive advantages and disadvantages of each alternative. The results of this assessment are shown in Table 3, followed by a brief discus- sion of each category. -Table 3: PROJECTED COMMERCIAL SPACE REQUIREMENTS (2010) Commercial Category Prooec'ted Requirementg Business Hotel 400 to 500 rooms. Office 2,000,000 s.f. Retail 300,000 to 350,000 s.f. Downtown Business Hotel.. The market assessment for a business hotel in Downtown Honolulu evaluated visitor trends, business travel,, projected demand, current and anticipated supply, estimated market share and the number of sup- portable hotel rooms. Although the rate of growth in the number of visitors to the State has declined slightly during the 1980's, the number of arrivals has increased at an annual average rate of 5.7 percent between 1980 and 1987. A small but growing per- centage of this total is traveling on business. For the Island of Oahu, visitor ar- rivals have increased at an average annual rate of about 5.1 percent during the 1980's, from 1.6 million in 1980 to nearly 4.6 million in 1987. Estimated total v'isitor arrivals to Oahu are projected to increase from ap- proximately 5.2 million in 1990 to 8.5 million in the year 2010. By 2010, business travelers are estimated to account for about 2.5 percent of all westbound arrivals and between 1.3 and 1.5 percent of all eastbound arrivals to Oahu. As.a result, total business travel is projected to increase from about 108,000 arrivals in 1990 3-17 to 175,000 arrivals by 2010. Assuming a length of stay averagin a party size of 1.1 persons, the business travel market segment a demand of approximately 940 room-nights in 1990, increasing nights by 2010. The market share for a Downtown hotel is assumed to increaSE percent in 1990 to a stabilized 25 to 30 percent share by 2000. assumption, the supportable room-nights could increase from be 170 rooms in 1990, to between 380 and 460 rooms by 2010. B sumed occupancy rate of 75 percent, the Downtown market segn port a hotel with 400 to 500 rooms. Commercial Office. The market assessment for commercial ment evaluated the projected demand, current and anticipated su market share and supportable net rentable area. The demand for office space in Honolulu has increased from be to. 225,000 square feet per year during the 1970's, to over 300,( annually since the early 1980's. Based on an analysis of the exp selected sectors of the labor force and the office space requirem mation, the projected demand for office space is expected to gr from about 260,000 square feet per year in 1990 to- about 130,( per year by 2010. The existing Class A office inventory in Honolulu includes 24 build about 5.1 million square feet of net rentable area. About 60 percE is located within the Downtown financial district of Honolulu. Th the inventory is located along the Kapiolani Boulevard corridor At present, there are 12 additional office buildings with an estim square feet of net rentable area either under construction or ar development over the next five to ten years. Based on the locations and development timetables of thE proposed office developments, waterfront office development on 3-18 privately-owned property could. amount to an estimated 2,000,000 square feet between 1990 and 2010. Retail Shopping. The market assessment for retail shopping development projected demand in the form of retail expenditures, current and anticipated supply, estimated market share and supportable net rentable area. Visitor expenditures are a grow ing and vital component of the local economy. These expenditures in Honolulu outside Waikiki have in-creased from about 11 percent of total retail expenditures in 1977 to about 15 percent in 1985.- They are projected to increase from about 17 percent in 1988 to about 24 percent by 2010. Retail expenditures outside Waikiki made by Honolulu residents and visitors are projected to increase by about $500 million, from nearly $2.8 billion in 1988 to nearly $3.3 billion by 2010, in constant 1988 dollars. At an average sales volume of between $300 and $350 per square foot, total retail space requirements resulting from the increase in retail expenditures in Honolulu is projected at between about 1.4 and 1.7 million square feet over the next 22 years. Based on the locations and development timetables of the planned and proposed retail developments in Honolulu, waterfront retail development is es- timated to capture a 20 percent market share of demand for new retail space, totaling between about 300,000 and 350,000 square feet of leasable floor area by 2010. 3.3.4 Industrial A market analysis for industrial land in the general Honolulu area was not con- ducted for this plan because it is well known that the demand for light industrial space in central Honolulu far exceeds the dwindling supply. However, some findings concerning the demand for land were presented in the Keehi Lagoon Recreation Plan Update: Final Draft, prepared by Edward K. Noda and As- sociates and Eugene P. Dashiell, AlCP in December of 1987. This report noted there is a high demand f or industrial properties on Oahu, with vacancy rates in 3-19 the town and airport areas being as low as two percent. Wh siderable industrial land available in other parts of the island, m will pay higher prices to stay in the Honolulu area near the airpo vices and customers. 3.3.5 Residential A potential market for residential uses in the area is assumed to ly in the Kaka'ako Peninsula. The Final Supl2lemental Enviro Statement for thg Kaka'ako Community Develgpment District Pla notes that "the Kaka'ako area is in a position to strongly comp extending from Pearl City through Hawaii Kai -for a share of futur condominium development on Oahu." The plan for the mauk allows for the development of residential units to support a p proximately 45,000. Due to its location, the makai area of Kaka attract residential projects if the land were available. Such proi be directed towards the upscale market to take advantage of t the shoreline. 3.3.6 Recreational Parks and Open Space. The State Recreation Plan (DLN 'R1 1 1he recreational/civic open space character which has already I: tablished for Honolulu's waterfront from Diamond Head to Keeh be enhanced by providing additional public recreation sites o possible or by designing non-recreational facilities to acco space." The 1985 Update to the plan notes there is a continui for coastal based activities such as picnicking and swimming/s Primary Urban Area of Honolulu. Demand for activities such a games was rated as moderate. House Resolution 540, H.D. 2 of the I '978 State Legislatur development of a Kaka'ako Waterfront Park. In 1985, DLNR co ant services for the purpose of creating a development plan a 3-20 environmental impact statement for this park. During the planning process, a park user survey was conducted at Magic Island, Ala Moana and Sand Island Parks. The survey found that "picnicking" and "looking at scenery" were the two most common activities of respondents while visiting these beachfront areas. When asked what they would most like to see in a new park, people most often listed features such as picnic areas, tables and benches, and more shade trees. Aquarium. During the past decade, construction of aquariums in cities such as Monterey, Seattle, Baltimore and Boston have proven to be major successes, both in terms of their financial return and as a visible community resource. Such a facility has been identified as a potentially valuable element for the waterfront of Honolulu. This is based on the following: * An aquarium could be a showcase project in the waterfront area and could serve as a catalyst for further redevelopment of underutilized lands. 9 The existing Waikiki Aquaeium has been operating in Kapiolani Park for 30 years. Recent renovations have upgraded the condition of the facility and exhibits. However, the site on which the facility is situated provides no potential for expansion and parking is extremely limited. * Other privately-operated aquarium exhibits on Oahu are also older and do not provide state-of-the-art technology. During recent years, support for a Hawaii Ocean Center in the waterfront. area has been expressed by some in the community. The HOC was en- visioned to be a major "living museum", offering educational and recrea- tional programs to both the general public and school groups. it would combine programs interpreting the regional marine life of the Hawaiian oceans, the cultural history of Hawaiian beliefs as well as practices in using the ocean, and state-of-the-art science and technology exhibits indicating modern concepts and practices for using and protecting the ocean. It is believed that a city the size of Honolulu, with its unique location in Pacific Ocean, provides an ideal situation for a major aquarium comparable in quality to the above facilities on the mainland. As a showcase project within the waterfront, 3-21 an aquarium should be geared to attract residents and tourists ali mainland cities are in the process of constructing or are planni ment of an aquarium, such a facility in Honolulu should provid unique experience, both in terms of the content of exhibits and tion (Le, taking advantage of Hawaii's weather to provide outdoo residents, an aquarium should provide a setting that encourages to explore additional facets of the facility. Most importantly, an a be viewed as a valuable resource which strives to instill a sense the community. Additional elements which would be important features in an visioned for the waterfront include: � An architectural style that provides for a variety of experien a memorable image in the minds of the visitor; � Exhibits which highlight the history and evolution of plant from regional waters; and *Educational components and public conservation progra Amphitheater. An amphitheater was identified as a priority use i park because of the limitations of the Waikiki Shell to continue to munity needs for outdoor concert space. The Shell was desi@ timum number of 8,000 persons. For many popular performanc is exceeded, resulting in heavily crowded conditions. The Shell's location in Kapiolani Park in proximity to residential d grown as an issue over the years. ln particular, noise intrusion c limited the number and types of performances acceptable at the recent months, the State has begun enforcing noise standards fc action has resulted in fines and a further reduction in entertainme Additional factors which support the development of such waterfront include: 3-22 The Kapiolani Park site has limited parking and large events create a sub- stantial traffic burden on the area; Proposed sound-abatement improvements will not completely be able to resolve the problem of noise impacts on surrounding neighbors; and There are potential legal problems concerning the use of land within Kapiolani Park for profit-making activities. 3.3.7 Cultural Performing Arts Center. A Performing Arts Center was identified as a benefi- cial facility in the waterfront because of the present need observed in the com- munity. Honolulu does have a number of small- to mid-size theater facilities. However, many of these are associated with schools, making it difficult for out- side organizations to arrange their schedules to account for limited time and space availability during the school year. Other facilities are also heavily used. Space for rehearsals is even more limited. According to a representative of the Honolulu Theater for Youth, the organization could use a new theater between 25 and 33 weeks annually. Museum. As cultural amenities, museums add to the quality of life in com- munities and nurture education and learning. Over the past years, a number of cities across the mainland have developed museums directed at children of the area. Recently, a pilot program was begun in Hawaii as the first step to develop- ing a Hawaii Children's Arts, Sciences and.Technology Museum. This facility is envisioned to provide a strong educational framework, focusing on natural scien- ces, technology, humanities and the arts, with an emphasis on an environment of "hands-on, minds-on" experiences to inspire the young and educate people of all ages. The facility is planned to specialize in creating unique learning ex- periences by physically involving the museum visitor with objects in a contextual setting. Unlike most traditional museums, children's museums are client- centered instead of object-centered. The concept. of involving people in a tac- tile, sensory way increases understanding and stimulates learning. The museum 3-23 has been provided with space at the Dole Cannery Square for year timeframe. 3.4 RECOMMENDED DEVELOPMENT PLANS The Honolulu Waterfront Master Plan is a vision for Honolulu's w short-term and long-term future. It is a plan which seeks to im projects in the near future, while maintaining a long-term visio flexibility to meet changing community needs and desires. Based on this premise, the plan is presented in two phases. The resents a short-range plan, intended to incorporate and descr for the implementation of specific priority projects over the next period. The second phase represents the long-term plan for t view of the planning area by the year 2010 and beyond. Techni ducted for this plan (i.e., Harbor Operations, Market Analysis, etc.) used the year 2010 as the target year for estimating future c ments and potential impacts in the waterfront. Therefore, much o plan represents a desired land use pattern of the area in 201 recognition of the ongoing growth and development that will oc point, the long-range plan also includes elements that shQuId happen well beyond the year 2010. Goals for the waterfront, alongwith the overall vision and th directed the planning effort, were presented in the previous s ideas are interpreted as functional planning design elements in th major categories relating to Maritime Activities, Economic/Urba Recreation/Leisure and Circulation. Maritime Activities are those uses that seek to insure the pres hancement of Honolulu Harbor and related statewide maritime c is accomplished by providing necessary space and facilities t ments, for Honolulu's commercial maritime needs of the future a 3-24 the availability of other statewide maritime facilities before relinquishing existing maritime lands for non-maritime uses. Economic/Urban -Development involves uses that address a number of physi- cal, economic and social goals for the future. These elements include the redevelopment of key non-maritime areas along the waterfront while stressing the importance of greater public access, and "mauka/makai" relationships in terms of improved connections between inland neighborhood areas and their adjoining waterfront locations. Recreation/Leisure involves uses that provide recreational, cultural, open space a ind urban design features which create a setting along the waterfront that encourages the "people-oriented gathering place." These elements include major links of the Great Park concept and are intended to add variety and d iver- sity to the typical beachpark experience. Circul iation involves plan elements that create the necessary features related to the movement of people critical to attaining the goals and vision for the waterfront area. These elements provide for public access, both laterally and mauka/makai, and link together the final ingredients for the park concept throughout the study area. The Master Plan is described in two parts. The first presents a planning area overview of each phase in terms of-the major categories defined above. This discussion highlights proposed projects and improvements that are planned within the short- and long-term phases to implement the vision and.goals for Honolulu's waterfront. The second part presents a more detailed description and rationale foe individual projects planned for the waterfront. This discussion focuses on specific subareas to provide more detail on plan elements. 3.4.1 Overview of Recommended Development Plan Phases The following discussion presents a brief overview of potential projects within the short- and long-range plan phases. A more detailed discussion of these projects is provided in Section 3.4.2. 3-25 3.4.1.1 Short Range Plan -- 5 to 10 Years (Figure-�1 The first, five to ten years will be extremely important to the long-t the Master Plan. It is during this time that the direction for the d the waterfront area is firmly established. This will be accorr through the implementation of priority projects: opportunities exist and provide the potential to significantly enhance key areas in the near future. Maritime Activities. The short range plan includes elements that support existing c Honolulu Harbor and promote greater efficiency of specific marit Proposed improvements during this timeframe also set the sta@ provements intended to be accomplished during the following Key maritime plan elements within the next five to ten years incl Maintaining the existing container yard area at Fort Armstr im cargo handling facility, providing for the continuation activities and possibly reinstating gantry container operat exists for such an operation at this facility. However, this i strictly a holding action until the disposition of the Kapalam vation'lands is resolved and the use of Barbers Point Harb facilities is fully evaluated. Any improvements to the Fort A for expanded container use should be solely at the operal expense, and no leases should extend beyond a five-year annual renewal possible thereafter until alternative Cargo h come available. Continuation of Piers 8 to 11 at Aloha Tower for cruise E Redevelopment of this complex must provide new and ren to accommodate space requirements for three passenger cluding the necessary pier apron space, servicing and stor gage handling facilities, customs space, vehicular pick-up/i and passenger check-in/waiting lounges (along with othf development described below). 3-26 Construction of a terminal for the intra-island ferry at Pier 6 near the exist- ing site of the Oceania Floating Restaurant (with interim facilities located at Piers 13 and 14 or Pier 8 until the Pier 6 site is available). Relocation of the inter-island barge operation (Young Brothers Company) to Piers 39 and 40. � Following the relocation of the inter-island barge operations, demolition of outmoded structures and general wharf improvements to the Pier 24 to 29 area including widening the Pier 26 and 27 slip (on the Pier 27 side). Upon completion of these improvements the Plan envisions: relocation of the Hawaiian Tug and Barge operation to Pier 27, and accommodation of the overnight berthing facilities for the intra-island ferries at Pier 22 and/or 25. The remainder of the area would be utilized for general cargo and storage including the possible infilling of a portion or all of the slip between Piers 22 and 25 if this slip is not used for berthing space. � Redevelopment of the Pier 37 and 38 area as a ship repair and drydock facility and relocation of the Honolulu Shipyard, Inc. from its present loca- tion at Pier 41. The soon-to-expire' lease on lands occupied by jet fuel tanks may be renewed on an annual basis until the shipyard is relocated, at which time they should be reconstructed at the Campbell Industrial Park refinery. The existing liquified petroleum gas 'facilities should be relocated to the mauka end of the property once the jet fuel tanks have been removed while retaining the stub pier in the Kapalama canal channel for barge ser- vice. *Purchase of lands currently owned by the Federal government at Kapalama. Mauka locations within this area are proposed to be utilized for the relocation of the Foreign Trade Zone at Pier 2 and the food distribu- tion activities on the Kaka'ako Peninsula. (Future utilization of this area for expanded container operations, possibly within the 5- to 10-year short- term timeframe, make.the purchase of this property mandatory at this time.) *Expansion of the Sand Island container yard to include the undeveloped acreage behind the existing Sealand facilities (CY8), improvements to 3-27 HAWN N NOE CENTER CANOE N TOR RACE COURSE B T OD S T RAMPS AR PIER 60 MARINA NARE US G SNUG PARK AR60- F UE AIRCRAFT FUEL A ON GORING CONTAIN R REA MARI C3 AQUATIC CENTER -OPEN (@@CITY & COUNTY BASEYARDS SANDISLAND PARK EXPANSION BEACH 3-28 SHORT-R E IAL SLIGAR/ GRAIN/ NEO-BULK DO H oll =n MARITIME/ ST 000FEDL111 OL COMMERCIAL mix FISHERIES CABLE SHIP DO AMAK 4t STRE T NEO-BULK/ PARK GNMENT CONTAINERS I INDUSTRIAL MARITIME & PARK COMMERCIAL EDUCATION/RESEARCH 3-29 areas recently obtained from the Coast Guard (CY9), comr between Piers 51 B and 52, and the Pier 53 extension. Construction of the proposed cable ship berthing and se on Sand Island on the Waikiki side of the Anuenue Fished itial lease should not extend more than 10 years with the that the State will seek an alternative site within the harbor becomes available. o Completion of the 1,600 feet of wharf and 30 acres of ba under construction at Barbers Point, and the provision of f le a combination of cargos, principally neo-bulk, dry bulk In addition, if further technical and economic studies indi the State's maritime interests to provide container facilitie Point Harbor, then improvements to permit safe navigation cargo ships and other vessels with loaded draft in excess c be implemented. Economic/Urban Development. Proposed uses relating to economic and urban development wo nificant changes to the existing waterfront area. These uses provide facilities and activities that firmly establish the Hono,lulu gathering place for residents and visitors. Key locations in D Kewalo Basin are identified as primary redevelopment sites whi catalysts for ongoing long-term economic development. The areas are intended to provide adjacent mauka districts with a n( sense of a connection with their adjoining waterfront areas. uses relating to economic and urban development in the shor clude: Redevelopment of the Aloha Tower/Irwin Park area within larger redevelopment area which could include the Marit Pier 7, the Hawaiian Electric Company (HECO) parcel and ing area at Piers 5 and 6. Possible uses for the area inclu 3-30 structures and a festival marketplace, as well as the continuation of the cruise ship operations discussed previously. *Commercial redevelopment of the Ewa edge of Kewalo, Basin from the Fisherman's Wharf Restaurant to the John Dominis Restaurant which could include a major privately funded aquarium. The proposed develop- ment should build on the existing character of the harbor, in recognition of the value of the area to the commercial fishing and tourism industries. Services for commercial fishing and other maritime operations will be en- couraged to remain or be incorporated in this area, although those which are clearly incompatible with public activities (such as fueling facilities) should be relocated to the Kewalo Peninsula. � Relocation and consolidation of marine research activities currently in the Kewalo Peninsula area to the area adjacent to the Look Laboratory on the Kaka'ako Peninsula with potential operational linkages to an aquarium. � Redevelopment of Piers 12 to 15 in the Chinatown area with an emphasis on historic Downtown and Chinatown themes. Activities envisioned for the area include an interpretive center at Pier 12, renovation of the Pier 13 and 14 site to provide for support facilities for the commercial fishing industry as well as fishing wholesaling and retailing operations, restaurants, and the potential relocation of the Oceania Floating Restaurant to Pier 15 if such a move proves feasible to a buyer of the facility. *Development of approximately 40 acres of lands within the central Sand Island area as an industrial park. Designation as an industrial park would allow the State to grant long-term leases, which in turn would allow the les- sees to establish an improvement district for roadway and utility improve- ments in the area. (Surrounding industrial lands would be maintained for such uses on a revocable permit basis, facilitating reallocation for other activities in the long-term.) Implementation of the agreement between the State of Hawaii and the City and County of Honolulu to relocate the City's Corporation Yards and pos- sibly other base yards located on the Kaka'ako Peninsula to Sand Island. 3-31 Fill and dredge the portion of Keehi Lagoon known as th angle" in order to create approximately 250 acres of new I of which is to be used for industrial and commercial activit the future relocation of the University of Hawaii's Marine Center at Snug Harbor should also be provided in this are could also provide space for some commercial fishing vess servicing facilities) if the demand exceeds the capacity of and Honolulu Harbor to meet the needs oi this industry. provide space to meet the relocation and expansion ne Kaka'ako and Sand Island industrial tenants. Recreation/Leisure. Short-term recreation and leisure plan elements are vital to the ov ment of the waterfront and to the Vision of the area as a people-o ing place. These elements implement the efforts to realize the lo a "lei of green" from Waikiki to the airport, while at the same tim ditional variety and diversity to the beachfront experience. These to promote the Great Park concept for the Honolulu waterfront. Short range recreation and leisure plan elements include: Development of the first phase of the Kaka'ako Waterfro proximately 55 acres (with an additional 7 acres of offsite commodate peak period parking needs). In addition to la sive open space areas for picnicking, walking, jogging an sports, major cultural and public amenities such as an am a museum/performing arts center would be provided. An ir along the perimeter of the park is also proposed to be cor added recreational and visual amenity. Development of a Children's Museum which could be in( one of two possible sites: 1) the proposed performing arts Kaka'ako Waterfront Park; or 2) the old pumping station Moana Boulevard Ewa of the Gold Bond Building. 3-32 *Expansion of Ala Moana Park into the Kewalo Basin and Peninsula area, creating pedestrian access into the central harbor and a 4-acre extension of the park and pedestrian promenade along the makai side of the penin- sula. *Implementation of the second phase of the Sand Island State Park P Ian comprising a 53-acre site on the Ewa shoreline of Sand Island. lhcor- porated within this area is an aquatic resources and outdoor recreation training facility along with a boat launch ramp, located just makai of the ac- cess bridge to Sand Island. Implementation of the Keehi Lagoon Recreation Plan to establish Keehi Lagoon as a major ocean recreation area. This includes an 800-slip marina along Lagoon Drive, recreation and boating facilities within the "triangle" area, canoeing facilities at the mouth of the Kalihi and Moanalua Streams and a marina and boat repair/marine railway facility at Pier 60. Circulation Short range plan elements concerning circulation are intended to improve the movement of traffic and encourage the availability and use of public transporta- tion to and within the waterfront area. They provide for greater mauka/makai ac- cess and open up newareas within the waterfront for pedestrian traffic. Major elements. under consideration include: *Support for the development of a feasible rapid transit system that could provide a high level of public access to the waterfront and diminish the need for automobile use in the area. Providing an urban promenade, connecting the Downtown, Kakaako and Kewalo areas which encourages pedestrian traffic laterally through the waterfront. *Construction of pedestrian overpasses crossing Nimitz Highway and Ala Moana Boulevard. A total of six walkways are currently being proposed, several of which could be incorporated with potential transit stations. These overpasses would also tie into the system of pedestrian and bikeway 3-33 paths that provide for lateral movement along the entire len ning area. 3.4.1.2 Long-Range Plan (Figure 9) The second phase of the Master Plan would build on the acco the preceding period, continuing the established directions for towards accomplishing the overall vision intended for the Honol Much of this is expected to occur between the years 2000 to 2 nificant development projects are proposed for completion. Addi ment, particularly in regards to expansion of maritime cargo o occur beyond the year 2010. Collectively, these projects are in tinue the redevelopment of the planning area that is designed to continued viability of the harbor, economic improvements which tire community, greatly expanded recreational activities and opt cess to the waterfront. Maritime Activitie4 Proposed maritime uses envisioned to be completed in the long-t significant redevelopments designed to increase the capacity of tions in Honolulu Harbor, Kewalo Basin and Barbers Point Harbc are intended to provide the necessary space and facilities in c maritime requirements to and beyond the year 2010. The major proposed for development in the long-term include: * Development of passenger cruise ship -terminals and lay b and 2, insuring this vital harbor frontage is utilized for lar itinerant traffic. * Redevelopment of Kapalama Military Reservation and adja full-scale modern containerized cargo terminal, incorporat tion of any interim gantry crane operations from Fort Arm land does not become available to the State, cargo hand within the harbor will need to be reconsidered.) This will req tion of the University Snug Harbor facility to the Keehi Tria 3-34 *Relocation of the grain and flour manufacturing activities at Piers 22 and 23 to lands adjacent to the Barbers Point Harbor facilities (assuming they can remain economically viable in this new location) and renovating the area containing Piers 19 to 23 for neo-bulk cargo operations. Demolition and dredging of the existing Pier 4 area (including the purchase and relocation of the existing Coast Guard facilities), creating approximate- ly 700 feet of water frontage along Ala Moana Boulevard. This area is to provide for the expansion of berthing facilities for large dinner cruise boats. Expansion of Kewalo Basin to accommodate additional dinner cruise and commercial fishing boats. This would be accomplished by dredging ap- proximately 7 acres of the existing peninsula and using the dredge spoil to fill beyond the existing shoreline, thus creating a new protective penin- sula. Expans ion of the Sand Island container yard into approximately 30 acres of land owned by the Coast Guard. In return for this land, the Coast Guard would expand its operations into the existing industrial area and into the Anuenue Fisheries Research Center site. The Fisheries Center would need to be relocated to accommodate this, possibly to a large scale pond research, training and demonstration facility, a concept which is currently being explored by DLNR. * Expansion of the inter-island barge service operations, relocation of freight forwarding operations and construction of aircraft fuel tanks (if needed) into the remaining mauka portions of the Kapalama Military Reservation lands. e Relocation of the cable ship berth and servicing facility from Sand Island to a suitable. location within the harbor, possibly to Pier 26.. 9 Possible construction of a new slip with two or four 800-foot cargo berths in the Barbers Point Harbor mauka of the existing basin along with up to 120 acres of ba ckland. 3-35 H IIAN ANOE CENTER 0 El T ON CANOE OD ION CE RACE IG RD COURSE K ISLAND RAMPS Hut VICE PIER 60-/ MARINA CONTAINERS D. /A@ 0 IVE A MOORING CONTAINERS AREA AIRCRAFT- FUEL C3 PA Q@8 AQUATIC CENTER RECREATIONAL INDUSTRIAL COMMERCIAL SNUG HARBOR (@@CITY & COUNTY BASEYARDS 3-36 LONG-R 0 IA MI NEO-BULK ME/C WATER SHUTTLE/ RESTAURANT I C I cl I PARKING MARITIMEI C PUBLIC ME L MMERCIAL M@ UNNEL RK COMMER COMMERCIAL MI X 8 D MARITIME/PUBLIC PARK MARITIME & PARK PARK RESEARCH (SPECIAL USES) 3-37- Several additional long range options are available in order maritime space requirements in the State beyond those describe include: the creation of Sand Island makai terminals with a ne feet long and 1,000 feet wide within a landfill area makai of th relocation of the U.S. Coast Guard Station out of Honolulu Harb and lands currently in industrial use for cargo handling; and the Neighbor Island harbors to handle direct cargo liner service. Economic/Urban Development. Proposed urban development between years 2000 and 2010 i clude the final redevelopment actions that complete the trans central waterfront area into the gathering place of Oahu; a plac relax, play, work, and enjoy new cultural amenities. Major cory this phase of the Plan include: Completion of the inland waterway through the Kaka'aki tending from Kewalo Basin to the newly constructed water 4. *Redevelopment of various lands in the Kaka'ako Makai E Moana Boulevard, adjoining the inland waterways and e Fort Armstrong area for commercial mixed-use activities. � If and when the Pier 19 to 23 area is no longer needed for tions, possible long-term redevelopment of the area into a development creating a new Iwilei urban waterfront comr � Possible redevelopment of the lands behind the Pier 30 t Nimitz Highway into office and commercial retail uses wh cient demand in this area to support such uses and it is n for fuel storage or maritime support uses. (Efforts should cate automotive fuel storage and distribution operations location in the Campbell Industrial Park.) 3-38 *Construction of a restaurant in conjunction with a water taxi terminal on the Sand Island site to be vacated by the cable ship and its support ser- vices. Recreation/Leisure. Implementation of the Great Park concept for the Honolulu waterfront is con- tinued during the second phase of the Plan. Recreation and leisure plan ele- ments provide final ingredients in order to bring about the creation of Honolulu's "Central Park." These elements include: Expansion of the Kaka'ako Waterfront Park into the Pier 1 /Fort Armstrong area. This is envisioned as a urban activity park, containing approximate- ly 16 acres of entertainment, recreation, commercial, cultural and educa- tional uses within a park-like setting. *Filling of the shoreline area makai of Fort Armstrong and creating ap- proximately 17 acres of passive recreation and beachfront park land similar to Magic Island as well as building up a protective reef in front of the beach which would also improve the. surfing conditions in this area. Dredging a new circulation channel through the Ewa end of the Ala Moana Park reef in. order to improve water quality at the beach park and provide fill for the expansion of the Kewalo Basin peninsula. Circulation Circulation elements would continue the directions set in the earlier phase by en- couraging the use of public transportation and by providing measures which mitigate problems restricting the efficient flow of traffic in the central Honolulu area. Major elements included in the 2010 Plan are: Development of a people-mover system in the Kaka'ako Peninsula area that would tie into the proposed rapid transit system mauka of Ala Moana Boulevard. 3-39 * Possible construction of a Sand Island Bypass and a tun the entrance to Honolulu Harbor, allowing for the movern tween the airport area and Kaka'ako/Waikiki, thus by-passi way and the Downtown area. * Redevelopment of the roadway system in the Kaka'ako PE ing the extension of Ward Avenue, Punchbowl and South Ala Moana Boulevard, and a major entrance into the wat Cooke and Ohe Streets. * Completion of an urban promenade that extends along the Ala Moana Park to the Chinatown area. *Development of a harbor water taxi system with ter Armstrong, the Aloha Tower and Sand Island. *Construction of a I O-acre parking area near the Diamor Sand Island to serve as overflow park parking on weekends parking (via water taxi) on weekdays. 3.4.2 Description and Analysis by Subarea This section provides greater details concerning the proposed highlighted in the discussion above, and presents the rationalb for elements in the Master Plan. The various land uses are describ as envisioned in the long term future (i.e., by year 2010 and be) 3.4.2.1 Kewalo/Kaka'ako/Downtown Subarea (Figure 10) Ala Wai Boat Harbor Activities No major changes are proposed for the Ala Wai Boat Harbor. Th tional boating uses should prevail along with their supporting s tivities. 3-40 FLOATING RESTAURANT FIGURE: 10 FIRE STATION KEWALO/KAKAAKO/ DOWNTOWN SUBAREA FISHING/ COMMERCIAL PIER IRWIN PARK Feet PARKING/ COMMERCIAL 0 500 1000. mix MARKETPLACE OFFICE COMMERCIAL CRUISE SHIP PROMENADE TERMINAL ALOHA IMMIGRATION TOWER STATION/ MUSEUM HOTEUCRUISE SHIP TERMINAL DINNER (-j MARITIME CRUISE MUSEUM BOATS C= L Ou. INTRA-ISLAND 12 AfA v FERRY TERMINAL prj. a FISHING Elf? IS SERVICES. CRUISE SHIP I yl- WAT E R BERTHING ID TERMINAL ICIRCULATION' 0 11 CHANNEL TUNNEL BASIN kEXPANSION WATER TAXI TERMINAL ...... FISHERMAN'S VILLAGE MARINE CRUISE SHI RESEARCH BERTHING & 0 TERMINAL AM HITHEATER CENTER OCEAN-\ GRAPHI ENTERTAINMENT TEST AREA . . . . . . \RANGE) HONOLULU SURF WATERFRONT BEACH PARK SHOAL PERFORMING MASTER PLAN ARTS/MUSEUM COMPLEX January 1989 341 Expansion of Ala Moana Park The Ewa end of Ala Moana Park is planned to be expanded into t area. This would be accomplished by relocating the existing net commercial fishing service facilities to the Kewalo Peninsula 00 Marine Mammal facility to the Kaka'ako Peninsula ocean demolishing some or all of the existing structures (marine sale facilities might remain) and fences along the Ewa boundary of t ding landscaping in the area to achieve greater emphasis on p ment while still maintaining vehicular access and parking for th sion of the park is seen as a way to create a continuous flow b and basin, and to open up the view corridors and view planes. Kewalo Basin Harbor Expansion Kewalo Basin is a medium draft commercial boat harbor whic homeport for excursion, commercial fishing and charter sport fis harbor is currently operating at near capacity. It is the hub of fishing industry as well as the center for the visitor maritime in convenient location near Waikiki. Combined together, these in a significant economic element within the waterfront. The Pla Kewalo Basin is maintained and enhanced as the focal point'for Plans for Kewalo Basin provide for the expansion of the area in ture demands from the commercial fishing and dinner cruise shi pansion is planned to be accommodated by dredging on the i peninsula to create a larger water area and using the dredge area makai of the existing Kewalo Peninsula shoreline. Addition be available from the new circulation channel dredged to impro culation and quality at the Ewa end of the Ala Moana Park. The for boats will add approximately 7 acres to the existing basin. T not extend into the ocean any further than the existing jetty entrance to the harbor. As a result, surfing sites would not be i ing to preliminary ocean engineering analyses. Service faci 3-42 modate the needs of the commercial fishing industry are to be located on the peninsula at Kewalo. These facilities would include a net repair shed, ice plant, bait and tackle storage, and fueling facilities. Additional excursion and commercial fishing boats which may be too large for Kewalo Basin are planned to be accommodated within Honolulu Harbor or the Keehi Triangle and will be discussed below. Kewalo Basin Commercial Redevelopment Major commercial redevelopment is planned for the Ewa edge of Kewalo Basin from the existing Fisherman's Wharf Restaurant to the John Dominis Restaurant. The plan envisions a "fishing village" environment that would feature commercial fishing berths and a variety of retail shops, outdoor cafes, restaurants and tourist- related attractions. The theme of this 'development is intended to build on the existing character of the harbor, highlighting the value of the area to the com- mercial fishing industry as well as to the visitor industry with the various dinner and harbor cruise boats and charter sport fishing boats berthed in the harbor. An important facility which should be included along this Ewa side of Kewalo is a first class aquarium complex featuring state-of-the-art exhibits highlighting Hawaiian ocean life. Such a facility, which should be developed with private funds, would be a primary attraction and would generate additional development in the area. The aquarium would be located adjacent to the park in Kaka'ako where complementary activities (such as the marine sciences research park) are proposed to be located. Structures within the area would be low-rise, consisting of a series of one to three story buildings which express an architectural style appropriate to Kewalo as a local fishing village. This scale and style would be carried out along the inland waterway which would begin at Kewalo Basin between the existing cannery and drydock facilities, and continue into the Kaka'ako Peninsula. A waterfront promenade extending along the entire Ewa side of the basin in front of the vil- lage area would connect the mauka side of Kewalo to the Point Panic park. 3-43 Fishing or maritime services currently located in this area shoul into the commercial development wherever possible, but thos compatible with the public's use of the waterfront should be r Kewalo Peninsula. However, boat building and repair services area should be relocated to the Pier 60 area at Keehi Lagoon. may be relocated to Piers 13 and 14 as part of the Chinatown p Kaka'ako Waterfront Park The waterfront in Kaka'ako is planned to be the "Central Par providing an important link in the "lei of green" extending from " port. Recreational activities commonly provide for the "refreshm -A.IA and mind." Based on this concept, uses in the park are planned sive and active, cultural, entertainment, educational and commer Q the recreational well being of all who visit the area. Upon completion, the Kaka'ako Waterfront Park is planned to er than 100 acres, although parts of this will incorporate commercial maritime, cultural, educational and water-oriented activities, all in ting. The park will be heavily landscaped, providing ample oper sive recreational activities, particularly on the sculptured landfil waterfront promenade. Major components of the park are desc Waterfront Promenade and Shoreline Park. The shoreline p extends from the existing Point Panic Park to the waterway at covers approximately 30 acres. The entire shoreline will be circ ... major pedestrian promenade for walking, jogging and casual bi much of the promenade will be passive park areas with grass casional shelters. A large portion of the passive area will be ta existing landfill mounds which will be sculptured to form picnicki and relaxation areas. Other more level areas will be open and s mal games of softball, touch football, frisbee, etc. 3-44 Amphitheater. This facility is proposed to be located on 6 to 8 acres and should accommodate between 10,000 to 12,000 people. There could be approximate- ly 5,000 fixed seats, with grass seating built on the regraded slopes of the exist- ing landfill. The location and design of the amphitheater would minimize poten- tial noise impacts on surrounding properties by directing the sound towards the ocean. Modern design and construction techniques would equip a facility suitable for a variety of performances. The proposed amphitheater at Kaka'ako would be subject to noise from aircraft overflights (the site is between the 60 and 65 Ldn aircraft noise contours) and thus may not be ideal for symphony concerts or other subdued performances. Such performances could remain at the Waikiki Shell since they do not generate significant noise complaints. Music performances which are not overly sensitive to external noise could be conducted here with little or no adverse impact on ad- jacent lands. Performing Arts Center and Museum Complex. This complex of cultural uses is planned to cover 2 to 4 acres. The performing arts center would provide facilities for theater productions, rehearsals, set design and construction, class- rooms and wardrobe storage. Possible users of this facility include the Honolulu Theater for Youth and/or other professional theater groups which may be estab- lished in Honolulu in the future. The performance center should feature two theaters, one in the range of 800 to 1,000 seats, and the other of approximately 250 to 300 seats for smaller shows, experimental theater or cabaret-style perfor- mances. Funds to construct such. a facility should be privately obtained or raised through public/private matching grants, although the State could provide the necessary infrastructure and'parking (which could be shared with other park users). A museum could also be incorporated into this cultural complex. One possible user is the Hawaii Children's Arts, Sciences and Technology Museum. which currently has plans to utilize space at the Dole Cannery Square. However, this site may be available for only three years. The museum was included in the park 3-45 design because: 1) of the possibility to nurture education and IE the youth in the community which ultimately may have social/ec for the public investment, and 2) to broaden the appeal of the pa c I ren s ing place to a wider cross section of the community. However, a hous possible immediate need to find a permanent home for this facili for consideration in the area is the old pumping station at Fort A Marine Science and Research Park. This facility of approximat would provide for the consolidation of University of Hawaii researc NOAA's National Marine Fisheries Service (NMFS). University fac clude Look Laboratory, the Pacific Biomedical Research Center Marine Mammals Laboratory. (These facilities, including N operate on approximately 4.5 acres.) Set in a campus-like envir search center is envisioned to provide public educational displays in addition to ongoing research projects. The Marine Science and Research Park would consolidate var pendent research facilities currently located in the waterfront plan proposed site in the Kewalo/Point Panic area provides a location campus, thereby facilitating commuting by faculty and students. adjacent to the underwater research test range located off of P has access to ocean water which is of a quality sufficient to mee needs. Establishment of the research center recognizes the public educational benefits the University and others involved in provide to Hawaii and the general public. Development of the research center should be coordinated witt developed in the area to create an environment where research activities could provide services that assist and complement eac exhibits which highlight research activities at the center would pr benefiting the public by heightened awareness of the ongoin@ progress made to improve the quality of life in the community. Th ter would also attract additional foundation grants and researc 3-46 these programs grow and diversify as a result of increased interest on a local and national scale. The Kewalo peninsula was also evaluated as a potential site for the marine re- search center. However, the isolated location of the site, its limited size, and the oil need of other users for the area were considered to be contrary to the objective of creating a facility that would be more accessible to the public in order to in- crease awareness and knowledge of the ocean sciences and its resources. The selected site in Kaka'ako addresses the goal of increasing public access to the water, and encourages the development of uses and activities which take ad- vantage of and seek to promote' Hawaii's unique ocean-related opportunities. Inland Waterway in the Kaka'ako Peninsula. An inland waterway system is planned through the Kaka'ako Peninsula, extending from Kewalo Basin to the newly constructed water frontage at Pier 4 and covering 15 to 18 acres. Much of the waterway would be approximately 100 feet in width, with some areas form- ing lagoons of up to 250 feet across. The waterways would not only be for pas@- sive enjoyment, but also for activities such as paddling, canoeing, rowing, model boat sailing and fishing. The inland waterway system provides significant economic and aesthetic benefits which accrue to the adjacent land areas. Preliminary analyses of the costs and benefits associated with the waterway finds that the feature should es- sentially be able to "pay for itself." The prospective costs of canal and bridge construction are expected to roughly equal the projected premiums paid by developers of adjacent commercial lands. It should be noted that the analysis mom did not attempt to quantify the added value perceived by park visitors. The ra- tionale for the proposed alignment is based on the concept of bringing more water frontage into the Kaka'ako area, creating a new urban waterfront for the Kaka'ako community in addition to the passive waterfront of the shoreline park. Waterfront Park Entrance. The original *boundaries established for the Kaka'ako Waterfront Park included the block bounded by Ala Moana Boulevard, Mull- Ilalo, Koula and Ahui Streets. This was the only park frontage on Ala Moana and 3-47 was to be the primary park entrance. Further evaluation of the the mauka portions of Kaka'ako suggests that a better location f would be an alignment along Cooke Street which is designated corridor" street and a link between Mother Waldron Park and the A new mauka extension of Ohe Street creates a small triangular the mauka side of Ala Moana, thus requiring users of Ala Moa actually drive through a small portion of the Waterfront Park. Th ly enhance the visibility of the park (including a possible extensi way) as well as providing a very central access point to its man Since these two areas designated for the park entrance (betw Ohe Streets on the makai and mauka sides of Ala Moana) are by the Bishop Estate, it is proposed that they be exchanged for t block which was designated on the original plan as the entrance land involved in the exchange covers approximately three acres holdings. Land Reclamation for Park Use. The Plan calls for filling makai area off of Fort Armstrong and creating approximately 17 acres of tion and beachfront park land similar to Magic Island. This add will contain picnic areas, a beach, and other passive recreafion tion, a protective shoal is proposed to be constructed underwa new beach in order to improve surfing conditions at the site and beach. This project is proposed because of the present and i and desire for beach space and surfing sites in urban Honok ocean engineering studies indicate that the landfill and surf sho ly and environmentally sound improvements. Urban Park Entertainment Area. The makai portion of the For Pier 1 area is planned to be transformed from maritime use into center set in an urban park environment. This area is approxi and intended to feature entertainment, commercial, recreatio educational activities in a landscaped, park-like setting. It is enviE 3-48 ly active complex for people to spend their leisure time, both day and night, and would most closely resemble such facilities as a permanent Expo site, an Epcot Center, a Tivoli Gardens in Copenhagen and a Seattle Center. It offers a major opportunity for private investment into a revenue generating facility.that would benefit both the State and the private sector while creating an exciting and poten- tially world-renowned complex all in a park-like setting. The rationale for this entertainment center is the economic value that such uses could provide to the State and its ability to promote the goal of making the waterfront a gathering place for all people, at all times. The Kaka'ako Waterfront Park is planned to.provide more than the typical beachfront experience which largely gives visitors "refreshment of the body." The intent is to provide for "refreshment of the mind" as well. Such an intent is believed to be a public good in that educational facilities (i.e., research center, museum, aquarium, etc.) increase awareness of our community to the lessons. of the past and better prepares visitors to these facilities for coping with the challenges of the future. Furthermore, cultural facilities (i.e., performing arts center, am- phitheater, etc.) stimulate diversity and pride in the City, while entertainment uses provide outlets for the growing amounts of leisure time available to residents. It is believed there is a need for these types of facilities to establish an identity for Honolulu as it enters the 21st century. Mixed-Use Development on Kaka'ako Peninsula A mixture of commercial, office and possibly residential uses are envisioned for approximately 40 acres on the Kaka'ako Peninsula. This area includes ap- proximately 11 acres of privately-owned lands along Ala@ Moana Boulevard, par- cels along the mauka side of the proposed inland waterway and lands within the mauka portion of the Fort Armstrong area. Along Ala Moana Boulevard, the floor area ratio (FAR) is planned to be 3.5, with a maximum height of 200 feet. On other parcels, the FAR will be 2.5. Height limits will vary, stepping down towards the shoreline. In the mauka Fort Armstrong area where a new Kakaako waterfront is planned along the canal, greater lot coverage might be encouraged. 3-49 in order to limit the height of structures. The mixed-use area clude a significant portion of the parking required for users of the At the present time, the Plan does not provide for the inclusion of in the mixed-Use area. As stated in the goals for the waterfront, only be provided if it is not competing with or impacted by ot benefit or need a waterfront location. There are, however, positi% should be noted concerning the potential of residential uses i Peninsula. First, mar "keting analyses show that residential uses create.hig the closer they are to the waterfront. A model of specific devel in the Fort Armstrong area indicates a premium of up to 25 perc tial property located adjacent to the waterways. Second, Kaka'ako Peninsula would open the area to an additional mark likely increase the pace of development in the area. Third, housin a 24-hour population that would promote the concept of the are place. Finally, housing provides an opportunity for people to live same vicinity, thus reducing traffic generation in the area. Arguments against housing in the area include the potential o from aircraft, roadway traffic and the proposed amphithe Armstrong area is and will continue to be subjected to aircraft r from flight operations associated with Honolulu International Air fronting Ala Moana Boulevard are also impacted by traffic nois vehicular movements along Ala Moana Boulevard. Although th phitheater is to be situated facing the ocean, the. proximity of facility nonetheless presents the potential for noise impacts. has recently limited the use of the Waikiki Shell.) Another negative factor is that the housing would be targeted fo families unless provisions were included for subsidized housing 4 M 74 addition of low-cost housing would decrease the potential ec used to subsidize other public improvements in the area. A fin 3-50 housing is the anticipated demand for parking. As noted earlier, the mixed-use area is planned to provide parking for the general area and park visitors. Office structures would include parking that could be utilized at night and on week-ends by the general public. Residential parking would limit this potential. The fact that there will be thousands of residential units constructed in the mauka portions of Kaka'ako generally negates the need for any residential development in the makai area. Passenger Cruise Ship Terminal at Piers 1 and 2 Plans for the Pier 1 and 2 area at Fort Armstrong call for passenger cruise ship terminals and deep draft lay berths areas for itinerant vessels. The passenger terminals are envisioned to be low-rise structures for the efficient movement of passengers and luggage. Restaurants could also be incorporated into the struc- tures, and viewing platforms on the upper level of the terminals could be open to the public in order to enjoy the views of the harbor. An area approximately 100 feet wide would be reserved along the length of the piers for access and ser- vicing. Portions of this area may be closed to public use during times when the passenger ships and other vessels are docked at the pier. At other times, this area would serve as a pedestrian promenade. Expansion of the passenger cruise ship facilities in the harbor is based on analyses which project land and water requirements for passenger cruise ves- sels by the year 2010 to be an additional eight acres and two to three berths. At present, all three berths at the Aloha Tower are utilized for homeporting of pas- senger cruise ships. There is a possibility that other ships would also homeport in Honolulu if space were available. An additional factor supporting these facilities along Pier's 1 and 2 is that it would maintain the harbor's longest con- tinuous pier frontage in maritime use. At the same time, this use is seen as very compatible with other activities planned for the Kaka'ako area. 3-51 Expanded Water Frontage at Pier 4 The plan proposes that new water frontage along Ala Moana created by dredging the existing Pier 4 area and portions of Pier Trade Zone. This would create approximately 500 feet of new (for a total of approximately 700 feet). This area would provide sion of berthing facilities for large dinner cruise boats like the A Mae. The site could also incorporate a new berth area for the C is necessary to provide a boat connection between the Federal E Coast Guard's Sand Island facility. The harbor study conducted for the Plan indicates that excursion boat berthing needs will increase by 17 berths by the year 2010 Basin is projected to provide for some of these, it is limited to hE small- to mid-size vessels. Additional overnight berthing could al at the Keehi Triangle with scheduled pick-ups at these Pier 4 fac A pedestrian promenade and vessel servicing way would be prc foot wide section between Ala Moana Boulevard and the water's e ing could be provided in conjunction with the possible festival the Ewa side of the piers so that tourists who use the dinner cru advantage of these retail facilities. Vision of the Kaka'ako Waterfront The many proposed changes to Kaka'ako, as described in the tions, combine to realize a comprehensive long-term vision o Honolulu's Waterfront. This vision, the "Gathering Place", is a ce fundamental objective of the Waterfront Plan and is expressed m concepts and proposals for Kakaako and Downtown. A sense of this future is conveyed through the aerial sketch in point of view of the sketch is off-shore looking across the KakE towards Downtown and the Koolau Mountains. Apart from the tirr of mountains and ocean, little else is common to the Kaka'ako 3-52 VIE .... .......... ....... ... ................ .... .... ...... .................................... .................................... ......................... .......... ............................. . ................. ............ ........... ....... ... ... ............... ...... ........ .... . ................. .. ......... ................ .............. ...... .............. ............... .. ............................................... ... .......................................... ................... ............ ... .............. .... ............... ........... ......... ............ ........... ............. .... ... ........ ....... ... . . . ...... .. ................. .............. ..... ................................ ...... ..... ................................... . t ... ... .... . ............. .......... .............. ....... ... ... .......... ......... ................ ........ . . ..... .......... . ............... .. ... .... ......... ............. ...... ............ .................................................... ...................... ..... ........ .... ......... .................... ............... ........... ........ ............. .................... ...................................... ............. ........................ ............................ ........... .... ........... . ... ........ .................. .. ........ ....... ............ .. ................................ ... .......... ... .... ....... ............ ........... ......... ................ ................ .......... .... ..... ... ...... .... ......... . ..... .......... ............ ................................................................. .... ................ ... .......................................... ........... ..................... -...... ..... .................. ............... ....... ..... ................... ....... ................ . ......... .... . ......... ...................... ... ................. ............. ---- ............ - - ... .. . . ... ... . . . ..... .............. ............ ...... ...... ..... ........... ............. ............... ...... ................ ..................... ........... ............. ..... . . .......... .... ........... ... ......................... .......... 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I . I@ I . . ............................... ....... X a a ............... ............ ............ 3-53 The proposed Waterfront Park, a major element in the "lei of gre Sand Island to Kewalo Basin, is the primary feature of the sketc right, major elements of the park include: * A peninsula of new parkland along the Diamond Head side Harbor entrance channel, providing water-related recreatio views, and a protected beach. * An "urban park entertainment area" combining only the be public garden, an entertainment center, and a permanent * A grassed "ridge" of high ground with trees (utilizing the ex landfill), providing topographic variety, a regional refere spectacular views of the mountains, ocean and Downtow 4k, * A "state-of-the-art" outdoor amphitheater for popular musi other events. In line with the Aloha Tower along the axis of t way, the amphitheater provides a major focal point within 6 An inland waterway connecting Honolulu Harbor with Kev% waterway introduces a significant waterfront amenity to the the Kaka'ako Peninsula, it supports aquatic recreational a protected boating and fishing and provides a natural bou urban and park uses. A performing arts center complex adjacent to the amphit makai, the complex overlooks the waterfront promenad seating for viewing of water-based events in the nearshor mauka direction, the complex anchors a formal extensio park across Ala Moana Boulevard, creating an access cor link between the waterfront and mauka Kakaako area. Aloha Tower/Downtown Redevelopment Area The Aloha Tower Development Corporation (ATDC) has esta guidelines for the redevelopment of the Aloha Tower area. Sp will be solicited in the near future. requiring that these guidelines 3-54 redevelopment within the ATDC boundaries. One example as to how these guidelines might be met is illustrated in the schematic plan for the Aloha Tower site (Figure 10) which calls for hotel, off ice and maritime activities similar to those specified in a 1983 ATDC proposal. The current plan illustrates a possible high- rise office structure at Pier 11, and a 400@ to 500-room mid-rise hotel at Piers 8 and 9, both built above the cruise ship terminal levels. The existing gallery level extending along the perimeter of the site from Pier 8 to 11 could be retained in order to continue the accommodation of three passenger cruise ships, along with some portions of the warehouse area at Pier 10 for maritime service space. The HECO site on Nimitz Highway could potentially incorporate mid- to high-rise office and retail facilities and the majority of the parking required for the redevelopment area. The final element in the area is a possible festival marketplace at Piers 5 and 6 consisting of a low-rise structure with space for res- taurants and various types of retail shops. The proposed intra-island ferry terminal is suggested to be incorporated within this site, preferably at Pier 6, if the occasional surge problems at this pier can be accommodated. Interim facilities for these ferries could be located at Piers 13 and 14 or Pier 8 until the Pier 6 terminal is available (These piers could also be used under extreme surge conditions). The proposed intra-island ferry terminal is incorporated within this area because it provides a more central location rela- tive to downtown activities than does the Pier 13 and 14 site, and the proposed uses in the festival marketplace would be very compatible with pedestrian traffic from the ferry operation. Regardless of the specific proposals, the plan sees the benefit of considering the area between Piers 5 and 11 as an integrated development. The key factors for any development in this area should be its relationship to Downtown, the main- tenance of cruise ship operations, and the protection and enhancement of the Aloha Tower. Marketing analyses conducted for the Master Plan indicate that the Aloha Tower/Downtown site provides a unique identity and environment that incor- 3-55 porates the historical maritime aspects of the waterfront with the business district of Honolulu. Such a site can easily be distingUis retail facilities in the city. Additional key locational advantages of being situated along major transportation corridors, its proximit@ as well as financial centers and its central location relative to Wa port. Chinatown Waterfront Redevelopment The Chinatown waterfront area is made up of Piers 12 to 15 alo way. The social, economic and historic character and ambianc area presents an opportunity to create a unique style of develop tures the essence of the historic waterfront.. Because of its significance as one. of the earliest developments i 12 is an ideal site for an interpretive center to serve as the foca ing tours that highlight and discuss the harbor's history. Deve 12 first occurred in the early 1800's as Honolulu became the s and political center of Hawaii. Today, the site has been reduced and its historical importance has become obscured. It is propo 12 area be improved as an interpretive center and be develope like setting. This center will be the focus for the "Ala Makai Seashore Trail" program which tells the story of Honolulu's birth and growth. Bo Trail is an example of such an urban path which both encour local resident participation and provides educational informatio Various themes will be used to present creative experiences wh emergence of a diverse and cosmopolitan city from pre-contact day Honolulu. Extending beyond the center and along the prop promenades will also be physical references to the historic fabric such as outdoor signage and plaques, well-placed stereoscopi superimpose historic images on the same contemporary site a tive centers in other locations such as the Immigration Building a 3-56 Piers 13 and 14 would be renovated to provide support facilities for commercial fishing vessels, as well a site for the potential sale of fresh seafood. The redevelopment of the Kewalo Basin area discussed earlier could result in the relocation of fresh fish operations. Such activities could be located in the struc- ture at Piers 13 and 14, where boats could dock and unload their catch. The site could also contain small scale restaurants to enhance the Chinatown linkage to &%use the water. rat Access and parking for the Pier 13 and 14 activities are somewhat restricted be- cause of the close proximity to Nimitz Highway and the limited size of the site. Sufficient space for truck loading and unloading of fish as well as parking for wholesale buyers and sellers must be provided in the pier area (possibly on an upper level). However, additional parking for the general public will be depend- ent on the availability of space in the public parking facilities on the, mauka side of Nimitz Highway. Pedestrian bridges across Nimitz are important linkages to facilitate this movement as well as enhancing the overall ties between this sec- tion of the waterfront and Chinatown. As residential projects planned by the City are developed along Nimitz Highway, the demand for leisure areas will increase. The Pier 15 area could provide a limited amount of open space along the waterfront. Open space is already very scarce in Chinatown. The fire station is expected to remain at its present site. The remainder of the. area could be cleared and developed as an urban park and fishing pier area. Pier 15 could also provide a new berthing area for the Oceania Floating Restaurant if such a move proves feasible to the buyer of the vessel. As noted above, the pedestrian promenade and walkways connecting the waterfront with the mauka side of Nimitz Highway are key elements of redevelop- ment in the area. These are discussed further in Section 3.4.3. 1. 3-57 3.4.2.2 lwilei/Kapalama/Sand Island Subarea (Figure 12) Redevelopment of Piers 19-23 Although short-range uses anticipate the continuation of the ex storage and flour and grain handling operations, these should, cated to Barbers Point (assuming that sugar is continued to Oahu in the years ahead and that the flour milling can remain vi tion). This would permit the entire area to be utilized for neo-bu long as those needs are not being met elsewhere in the harbor a throughout the State. However, if this land was no longer needed for maritime operatio in the future, the 20-acre site would be very suitable for a major plex of office/residential structures with public waterfront prome overlooking the Harbor, Downtown, Chinatown and Punchbowl. lwilei of offices and other commercial uses as a result of the sat cost of Downtown office space is expected to continue (witness cannery and warehouse space by Castle & Cooke, Gentry, Sh in this area over the past several years). A pedestrian and funct tween Piers 19-23 facilities and these interior redevelopment a strengthen the mauka-makai relationships which are being r other parts of thewaterfront. Redevelopment of Piers 24 to 29 Redevelopment of Piers 24 to 29 is intended to provide improve ing maritime industrial operations. The current tenant, the in shipping operations, would be relocated to new and larger fac and 40. Some outmoded structures would then be demolisl wharf improvements would be made. These would include wid tween Piers 26 and 27 by removing the shed between Piers reconstructing the pier in a much narrower configuration since it 3-58 FIGURE: 12 IWI LEI/ KAPALAMA/ SAND ISLAND IGN T ONE/ SUBAREA OD ION CE GH RD Feet SHIPYARD 1 .01 AKM Soo 1600 VICE fpfkK' R G RGO NEO-BULK CONTAINERS G BUNKERING CONTAINERS V-3 AIRCRAFT WATER SHUTTLE/ FUEL C3 COAST GUARD RESTAURANT PA PARKING AQUATIC CENTER STP I N UST TUNNEL L\\,)CITY & COUNTY PARK BASEYARDS January 1989 3-59 be needed for cargo operations. The makai face of the pier woul with new bunkering facilities. Upon compi etion of these improvements, the Hawaiian Tug and would be relocated to Pier 27 and Piers 28 and 29 would be used The AT&T cable ship and its 1.5 acre cable storage facility coul from Sand Island to Pier 26. Intra-island ferries could berth in thE area when not in service. The rest of the area behind Piers 24-2 ized for general cargo and storage. It is also possible to fill a port slip between Piers 22/23 and 24/25 to provide additional spac facilities. Petroleum Fuel Storage Facilities At present the petroleum-oils-lubricants (POL) facility occupie privately-owned land fronting Piers 30 and 31. The landside a storage and distribution of POL. Bunkering of ships occurs alc 33. Due to the recurring public concern over the potential he hazards associated with the proximity of this POL facility to down a special study was commissioned as part of the Waterfront Pr( the feasibility of relocating and consolidating the POL storage E facilities and some of the jet fuel tankage. Although the study indicated that relocation and consolidation wc, lack of suitable relocation sites and the high cost of reconstructi made such a program infeasible. Current recommendations are safety inspection procedures to insure the highest level of safet@ maintained at these facilities and to encourage and begin plann tion of vehicle fuel storage and distribution operations to Cam Park. If additional space for aircraft fuel storage is needed in the lo for tanks can be provided in the Kapalama Military Reservation side of Sand Island Access Road across from the existing tank f 3-60 Redevelopment of Piers 37 and 38 As a short term project to achieve the long range goal of acquiring and convert- ing Kapalama lands from the federal government into maritime container opera- tions, current lessees at Piers 37 and 38 would be relocated to make way for a new shipyard drydock facility to replace the facility currently at Pier 41. The sequence of moves would include the relocation of the existing jet fuel tankage to the airport or Campbell Industrial Park; relocation of the liquified petroleum gas (LPG) facilities to lands occupied by the existing jet fuel tanks at the mauka end of the site; and redevelopment of the Piers 37 and 38 area into a ship repair and dry dock facility for relocation of Honolulu Shipyard, Inc. (The existing stub pier for the LPG barge would remain in Kapalama Canal.) These actions would ultimately achieve greater efficiency of harbor operations through the consolidation. of some operations, and relocation of others to more ap- propriate locations. Inter-island Barge Service at Piers 39 and 40 Prior to the initiation of the Honolulu Waterfront Master Plan Project, Piers 39 and 40 were identified as an appropriate area for relocation of the inter-island cargo operation because the current facility at Piers 24 to 29 is dated and inadequate. Harbor analyses for this project concur with this recommendation. The ultimate size of the facility would be 37 acres with 4,400 linear feet of wharf. Improve- ments to the area would include the partial demolition of portions of the existing transit sheds and construction of barge end-loadingJacilities. Kapalama Military Reservation The State should make every effort to acquire the remainin g 67 acres at Kapalama which are owned by the Federal government. These lands are ex- pected to be sold in two increments starting this year. The mauka portion of Kapalama is intended to provide the relocation site for the Foreign Trade Zone (FTZ) from Fort Armstrong, the food distribution center from the Kaka'ako Penin- sula, and possible jet fuel and freight forwarding operations. The remainder of 3-61 the property should be used for containerized cargo handling. quire the relocation of the shipyard as discussed above and of th Hawaii Marine Expeditionary Center at Snug Harbor to the pro area in Keehi Lagoon. The existing access to the area (located at the intersection of Wa and Nimitz Highway) could be eliminated if alternative entries to of Kapalama were provided at the ends of Libby Street, Kalihi Stre Sand Island Access Road. The Kapalama area is expected to be a vital element in providin term cargo handling needs in Honolulu Harbor. As the industri tivities presently located at Fort Armstrong become less c redevelopment in the area, Kapalama will be the most appropri relocation of these activities. Furthermore, the cost of purchasir can be recaptured in higher land values at Fort Armstrong. Sand Island Container Yards The existing Sand Island container yards have the potential to be improved so that they can continue to handle the vast major Harbor's container operations for many years to come. The sh areas for expansion include approximately 12 acres of undeve tween Sand Island Road and the existing Sea-Land container y approximately 8 acres of undeveloped land on the Waikiki-side terminal (CY9). Short term pier improvements include the exten to join Pier 52 and an extension of the eastern end of Pier 53. Long term expansion plans include the possible addition of 30 Guard and existing industrial lands at the eastern end of the con a further extension of Pier 53. 3-62 U.S. Coast Guard/Sand Island In order to permit the expansion of container operations on Sand Island, partial relocation of the Coast Guard facilities is being recommended in the Long Range Plan. Currently the Ewa end of the Coast Guard property is relatively un- obstructed with buildings and provides an ideal expansion area for container operations. Relocation of the Anuenue Fisheries and realignment of the access road in a more southerly location would permit the Coast Guard to relocate some of its open space uses to these new areas without displacing major existing struc- tures on the property. A new pier could be constructed in front of the existing Fisheries site to replace the lost pier space adjacent to Pier 53. All of this is dependent on the willingness of the Coast Guard to relocate since it Is on Federal property and under no obligation to move its operations and on finding a suitable relocation site for the Fisheries operations. DLNR has proposed the development of a large scale pond research, training and demonstration facility to be located somewhere on Oahu. The eventual reloca- tion of the Anuenue Fisheries operations to this site would be appropriate. Sand Island East End Park Improvements The east end of Sand Island is recommended to be designated.for park-related improvements including docking facilities for Downtown and Kaka'ako water taxis or shuttles, an adjacent restaurant (or restaurants) with views looking back to the City and mountains, and a large landscaped parking area. (It is recom- mended that the cable ship and its support facilities be relocated to another site within the -harbor when one becomes available, possibly Pier 26.) The parking area (approximately 10 acres in size) could serve as an overflow parking facility for weekend and holiday use of the park. During the week it can serve as an al- ternative parking area for Downtown workers who can then take the water shut- tie to and from the Downtown and Kaka'ako terminals and avoid the high cost (or lack) of Downtown parking. 3-63 Sand Island Industrial Lands Approximately 40 acres of land within the central Sand Island developed as an industrial park. The designation of this as an im trict would allow the State to grant long-term leases to various bu subsequently would allow for lessees to provide roadway and ments for the area. The costs of these improvements would ha by the lessees who would benefit from them. Thus, it is assum( the existing tenants would not be able to afford the increase in ren by these improvements and would either relocate elsewhere c unimproved section of the industrial lands. These unimproved areas would be retained on a revocable pe month) basis until they are needed for the other activities shoy range plan. Tenants in these areas which are then seeking lo could be accommodated in the industrial space to be developed angle. Extension of the Sand Island Park and Relocation of City Co The City and County of Honolulu's vehicle and equipment base which currently occupy 17.6 acres of prime Kaka'ako Peninsula to be relocated to a 26-acre parcel on the makai side of Sand Road. In order to maintain a right-of-way for the proposed Sand I current plans for the Public Works yards may need to be revise ficient space should be available in the area now designated fo within the Kapalama Military Reservation on the mauka side of cess Road is being reserved for jet fuel storage if it is needed in t larger area on Sand Island would allow for consolidation of so inner-city baseyard operations which are currently located on s Honolulu. The site may also be able to accommodate the or Board of Water Supply's 1.5-acre baseyard currently located i Peninsula if other locations are not available. 3-64 This move would implement.an agreement between the State and City. As part of the agreement, the City is expected to develop the final 53-acre phase of the Sand Island State Park (makai of the proposed baseyard) in accordance with the State's Sand Island State Park Master Plan of 1973. Upon completion of this phase the park will be 140 acres in size. Although not part of this agreement, the State is also proposing an extension of the park at the southern point extending along the reef lands toward the Reef Runway. This would provide a sheltered beach area at the end of the old seaplane runway for Sand Island park users. Ag' Also incorporated within this. area would be an aquatic center and outdoor recreation program site along with a boat launching ramp and related parking, restroom and washdown facilities located on approximately 6 to 8 acres just makai of the access bridge to Sand Island. 3.4.2.3 Keehi Lagoon Subarea (Figure 13) Keehi Lagoon is a protected body of water ideally suited for a first-class maritime and recreation complex. The Final Draft of the Keehi Lagoon Recreation Plan Update (December 1987) proposes such an undertaking which would ultimate- ly feature over 1,000 new berths for recreational vessels, a redeveloped Pier 60, new commercial marine facilities, a canoe race complex and approximately 250 acres of new land in the triangle area of the lagoon that would contain, a 50 per- cent recreation/education mix of uses and 50 percent marine-related commer- cial and light-industrial uses. The majority of new vessel berths are to be located in a new marina develop- ment along Lagoon Drive that is expected to provide for 750 to 850 boats, depending on the mix of vessel size. The marina will also include support and ancillary facilities such as an administration building, comfort stations, boat launch facility, boat fueling dock, restaurant/snack bar, club house, marine supp- ly store and other concessionaires. The area will also provide a site for an intra- island ferry terminal which will link the airport with the Downtown and Waikiki areas. A second smaller marina area is planned for Pier 60, which would also 3-65 H CANOE CENTER KEEHILAG 0 Q- CANOE RACE C C COU 8 OURSE K RAMPS PIER ao MARINA D Q) A 0 IVE A MOORING AREA AIRCRAFT C3 FUEL RECREATIONAL INDUSTRIAL COMMERCIAL SNUG HARBOR 3-66 provide space for the boat repair and marine railway facilities currently located at Kewalo Basin if these facilities are needed to meet the needs of the boating operations. The canoe race complex is planned to be located in the northeast comer of the PL: lagoon at the mouth of the Kalihi and Moanalua Streams. Canoe races are cur- ON rently hel'd in the area offshore of the Keehi Lagoon Park. 'the concept in the Keehi Recreation Plan Update consists of a Hawaiian Canoe Center located'in the open land area at the confluence of the two streams, ramps on each side of the canoe race course with canoe storage sheds, and pedestrian bridge$ across both streams to provide access to the ramps. The W;3terfront Master Plan recommends additional park improvements along the shoreline between the Pier 60 area and the Canoe Center. This area, which at present is either vacant or being used for unstructured open industrial storage, forms -an important linkage, between the other proposed recreational facilities at Keehi. The area is envisioned to provide typical active and passive'park uses, aimed largely at fulfilling future open space and recreation requirements of the Kalihi and other surrounding communities. Improvement of this area for park purposes would complete a key segment in the "lei of green" concept for the waterfront. The triangle area in the lagoon is defined by the old seaplane runways. Upon completion, the triangle would be 300 acres in size (about 250 acres of land and 50 acres of water for berthing of boats and a water skiing area), half of which is' to be devoted to recreational and educational facilities (including a yacht race facility) and half to marine commercial and light industrial uses. A portion of the triangle is being proposed as the relocation site for the University of Hawaii's Marine Expeditionary Center (St)ug Harbor) facility which requires approximate- ly 15 acres of land and 1,000 linear feet of pier frontage. In addition, the large slips could be used as overflow berthing areas for commercial fishing vessels and dinner cruise boats which cannot be accommodated in Kewalo Basin and Honolulu Harbor. (Servicing facilities for these vessels would also need to be provided here.) As noted earlier, the area could also be a p site for some industrial tenants currently located tit Sand Islar The development of Keehi Lagoon as a major marine recrea nificant step towards addressing the continuing needs for su central Honolulu area now and in the future. The site will prov marina area for many of the 1,700 recreational vessels curr Department of Transportation waiting list as of March 1988. In land on the triangle will provide needed space in the Honolulu a that require a location near major transportation facilities locat 14 provides a sense of the future Keehi area through an aer from above the airport back towards Sand Island and Honolu The bird habitat currently located within the triangle area wo cated or funding would be made available to improve the Hon 3.4.2.4 Barbers Point Harbor Subarea (Figure 15) Upon completion of the 1,600 feet of wharf and 30 acres of b under construction, Barbers Point Harbor will have physical fa combination of cargos, principally neo-bulk, dry bulk and liqu struction schedule of these terminal facilities will place them in range planning period. Dry bulk users will be expected t mounted loader and unloader equipment at dockside, cargo the wharf area (remote storage) and conveyors connectir storage areas. Cargo capacity estimates for these terminal facilities as they v during the 2010 timeframe are an estimated 250,000 short tor 750,000 short tons of dry bulk for a total of 1 million short ton ditional 2.5 to 3.0 million tons of coal per year could be added Electric's power plant at Kahe converts to a coal operation. Limited container operations may also be feasible in this time soon-to-be-constructed landside facilities. This may require t 3-68 FIGURE: 14 VIEW OF KEEHI LAGOON ............. ... ........... .......... ........... ............. .......... ...... ........... ........ ..... ......... ........... ........ .............. ........ . .. ..................... .. .... ................ - ...... ......... ........... .... .. ..... .............. ........... ........... ..... .... ................ .... .... .................. ............. ............ ... .......... I.......... @::: . ......... ........... ............. ............... .............. ...................... ..................... .......... .................. ......... . ........... . .................. .... ........................ ................ ................. ............................. ........................... -:-: .............. ... ............. ............. .: ................. ... . ....... ..... ... ............... ................. .................. ........... . ........ .............................. ........... .. .... . ..... ...... .... .......... ....... ...... ........... .... ......... ...................... .......... ......................................... ... ... ....... ................... ............ .................. ................... ................... :A I_* . . ......... . ........... ... ....... ................. ............. ......... ..... ....... ... ...... ....... _ .... ....... ...... ....... .................... ... ................ ..... . ....... ............................ ............... .............................. ........................................... ...... ...... .......... .................... ..................... .. .......... ....................... ......................... ............ .... ................. ................ .............. .................. . ........... ........................... ........... . .............. ............... .................. ..... ............... I rf--. .......... ...... .............. .. . ............... .......... ... ...................... ............. - ........... .......... HONOLLXU WATERFRONT MASTER PLAN January 1989 3-69 FIGURE: 15 BARBERS POINT HARBOR SUBAREA :T 4 MULTI-USE TERMINALS 30 ACRES 30 ACRES 0- b No ui 30 ACRES 30 ACRES 600' z CONVEYORS TO .0 REMOTE STORAGE co 3 0) CC 45' WATER DEPTH z 0 \-DRY BULK LOADER/UNLOADER HONOLULU 30 A N: LU 0 OLUE WIDENED OR FLAREDJ WATERFRONT ENTRANCE CHANNEL IMASTER PLAMN January 1989 3-70 some of the bulk-handling facilities and improvements to the Piers 3 and 4 areas (improvements to the backlands behind these piers is now in the design phase) to accommodate some of these uses, and the widening and/or flaring of the channel entrance. The long-range proposal for Barbers Point Harbor calls for deepening the entrance channel and basin in order to provide for the safe passage of deep- draft ships. A new slip 1,800 feet long and 600 feet wide could be constructed mauka of the existing'basin along with 120 acres of new backland. Four high capacity containerized cargo terminals could then be put into operation. Such improvements would make it possible for containerized service to operate at Bar- bers Point in addition to larger bulk carrier ships. 3.4.3 Regional System Plans 3.4.3.1 Circulation (Figure 16) The Master Plan includes a number of measures which are intended to provide for the efficient and, where possible, the enjoyable movement of people within, and through the planning area. These measures are described in the following discussion. Pedestrian/Bikeway Paths. A system of pedestrian and bikeway paths is planned to provide for movement laterally along the entire length of the waterfront area, plus in a mauka/makai direction with pedestrian overpasses linking the waterfront with lands above the Nimitz Highway and Ala Moana Boulevard corridor. This system of paths promotes the goal of greater public access to all areas of the waterfront. It is in- tended that the pedestrian/bi6yclist/jogger has the opportunity to explore the shoreline from Ala Moana Park, through Kaka'ako and Downtown, along Nimitz Highway on a pathway separated from vehicular traffic or crossing over to Sand Island via a water taxi and ultimately ending the journey at Keehi Lagoon. Pos- sibilities exist to connect this trail system up to the Pearl City Bike Path, thus 3-71 @c z C43 Ajvsrr . .... ...... 000 00 TO LEEWARD & CENTRAL OAHU -VIAd, KEEHI LAGOON HONOLULU INTERNATIO AL. AIRPO C3 KEEHI TRIANGLE 3-72 cl x TO EAST HONOLULU 4s co CANTO DISTRICT PI RS 19-23 ALOHA TOWER FID 011 0 PIERS Aj 5 & 6 (TUFNEL L OOL VAR 0 (j c] 0 ...............? WATE I KEWALO ALA MOANA PARK TAXI I BASIN ............ T( it, .... ... ... .. ................... . ...... . . A'!" 0000 ..-O,N-rRA-ISLANOX t FERRY .......... TO EAST HONOLULU 3-73 serving to enhance the link between the waterfront and the grom of Leeward Oahu. Waterfront Promenade. Within the Kaka'ako, Downtown and Chinatown areas a pedes is envisioned to further enhance the experience of being waterfront. Like many great waterfronts around the world, t meant to leave the user with an intimate feeling of the sights a Honolulu waterfront and a sense of the character of the City also intended to convey the importance of the history of the arE corporation of the Ala Makai historic waterfront walk program a provide interpretive features at key waterfront locations includi Tower and the Immigration Building. The promenade should not conflict with industrial operations of bor which could pose a hazardous condition, but should provid portunity to view the various activities in the harbor from a safe Beginning at Pier 15, the promenade is intended to extend ou separating pedestrians from the vehicular traffic and linking th Chinatown development area to the Aloha Tower complex. The winds through Irwin Park and the redeveloped Aloha Tower sit meets the shoreline at Pier 8, continuing along past the Mariti the festival marketplace at Piers 5 and 6. The newly expande at Pier 4 will provide a new visual experience along the prome the Kaka'ako Peninsula. At this point, the promenade splits in continuing through the center of the peninsula along the inlan the other in a makai direction along Piers 1 and 2 and alo shoreline. The promenade ends at Kewalo Basin, connec pedestrian/bikeway paths that connect to Kapiolani Park and b Wai Canal. 3-74 Vehicular Routes. Greatly improved access and circulation to and within the waterfront area can be provided by several important plan elements, although all require further study and evaluation. The most significant involves the possible construction of a Sand Island Bypass and tunnel underneath the harbor entrance. This improvement would begin at the H-1 Freeway in the vicinity of the Middle Street interchange. It would continue alonga viaduct over Sand Island Access Road until it reaches the vicinity of the bridge. Once on Sand Island, the Bypass/Parkway would proceed along the mauka boundary of the proposed Corporation Yard (with a fly-over into the containeryard operations), makai of the wastewater treatment plant and along the boundary between the park and the industrial area. The Bypass/Parkway would then enter a tunnel under the Harbor entrance that would extend under Fort Armstrong and the Kaka'ako makai area to the intersection of Ward Avenue and Ala Moana Boulevard. The impact of this development would be, to divert traffic from Nimitz Highway (an estimated 70 percent of the total traffic on Nimitz Highway is defined as through traffic) onto this parallel facility, thereby improving access and circula- tion in areas Ewa of Ward Avenue. Nimitz Highway would then serve primarily local traffic rather than as an arterial corridor. Improvements along Nimitz High- way could involve a more defined separation of the pedestrian and bikeway sys- tem, with a much greater level of landscaping. As redevelopment of lands front- ing Nimitz Highway in the (wilei area occurs, this transportation corridor is ex- pected to become a more pleasing avenue into the Downtown area. Secondary roadway improvements would largely be limited to the Kaka'ako and Downtown areas. Ward Avenue is planned for extension into the Kaka'ako Peninsula, aligning itself with lialo Street. It continues as the only Ewa/Diamond Head roadway through the area and is extended into the Fort Armstrong waterfront, ending near the existing Piers I and 2 area. The main entrance to the waterfront park would be via a one-way loop made up of Cooke and Ohe Streets. Traffic would proceed makai on Cooke Street, cir- 3-75 cling behind the Performing Arts Center and Museum Complex the area on Ohe Street. Lastly in the Kaka'ako Peninsula, Punchbowl and South Street couplet system within the Fort Armstrong area. Punchbowl S makai along the waterfront and South Street will be used as a I and for exiting the area going mauka. Possible roadway improvements in the Downtown area inclu some of the streets around the Aloha Tower complex makai o Bishop Street would continue to serve as a service road into site. A service access would also be provided into the Pier 5 existing Richards Street entrance. Rapid Transit The City and County of Honolulu is currently working on a Preli ing Study (combining planning and design concepts with an mental impacts) for a 15- mile rapid transit corridor connecting through Downtown, to Moiliili and Waikiki, with branches to th University of Hawaii. Although still a long way from being i proposed transit system is in keeping with long range pl Metropolitan Planning Organization (OMPO), which combines planning resources of the City and County Departments of Tr vices (DTS) and General Planning (DGP), and the State Transportation (DOT) and Business and Economic Devel OMPO's plans integrate rapid transit with feeder bus network highway improvements. To date, preliminary studies have determined that the "mainline ridor will be close enough to the waterfront to provide signific ticipated development and public activities in the area. Inde waterfront is one of several important considerations affectin mination of transit routing in Downtown and Kaka'ako. 3-76 At this stage, four alternative transit routes (or "alignments") for Downtown and three for Kaka'ako have been identified. Three of the Downtown alignments serve the waterfront directly with station sites near the Aloha Tower area. All Kaka'ako alignments are mauka of Ala Moana Boulevard but station sites near the new One Waterfront Place/Restaurant Row and the Ward Warehouse are in close proximity to anticipated Kaka'ako waterfront activity centers. The:Circulation Plan shows one "hypothetical" transit alignment which may best serve the particular needs of the waterfront. Combining several of the DTS al- ternatives, the alignment follows Nimitz Highway across the Downtown waterfront with stations projected at lwilei Street, Maunakea Street and Aloha Tower. The alignment proceeds through Kaka'ako along Pohukaina and Auahi Streets with stations at Punchbowl Street and Ward Avenue. Although the "hypothetical" DTS alignment provides excellent service' to the Downtown waterfront, it does not provide direct access to the area of Kaka'ako makai of Ala Moana Boulevard. It is proposed in the Waterfront Plan to serve this area with a secondary transit system using scaled-down "people mover" technology. The Circulation Plan shows one promising alignment: a route along the Ward Avenue Extension/Ilalo Street connecting the Sand Island water shut- tle terminal,. between Piers 1 and 2, with the main transit corridor at Ward Avenue. This alternative would directly support the projected redevelopment of the Fort Armstrong area. Even with major improvements to waterfront vehicular circulation, rapid transit would be a vital factor in achieving ultimate waterfront development objectives. Preliminary studies indicate that the major road improvements proposed in this Plan, including the Sand Island Parkway and tunnel, only support anticipated development of the Kaka'ako Peninsula through the 2010 timeframe. Beyond this point, further development would require a creative mix of alternative access, planning, and design strategies, with a major emphasis on orienting commuter activities to maximize rapid transit utilization. 3-77 Hypothetically, a transit system of the type being proposed h same number of people (10,000 to 15,000/hour) as 4 to 5 lanes fic (2,500 to 3,000 /lane/hour) in each direction. In order to Kaka'ako Peninsula as currently planned, preliminary studies i tional laneage of this magnitude will have to be provided thr Honolulu area or transit ridership will need to approach its sys Intra-Island/lInter-11sland Ferry System. An intra-island ferry system is planned to begin service from Ha and Downtown in 1990. The temporary location of a terminal planned for Piers 13 and 14. A permanent site has been proposed festival marketplace at Piers 5 and 6. This is adjace rapid transit station which would permit commuters to quickly t to other locations within the urban core which are beyond the ing range. Ultimately, the system is planned to be expanded vice to the airport, Leeward Oahu and possibly the Neighbor I Water Shuttles/Taxis, Small water shuttles or water taxis are proposed to run initi Downtown area (Piers 5 and 6) and Sand Island to provide ped the park. (A reverse role is also possible where Downtown con on Sand Island and take the shuttle to and from work.) Wh Peninsula and Fort Armstrong areas are built up, provisions c an additional shuttle to connect that area to Sand Island as w( 3.4.3.2 Open Space/Recreation (Figure 17) The waterfront open space and recreational area is envisionE comprehensive system of great parks linked together by E parkways. This "lei of green" will traverse along the urban wate Island and Ala Moana Beach Park, to the Kaka'ako Downtown/Chinatown, Sand Island, and the Keehi Lagoon Such a concept would open the urban Honolulu waterfront to th 3-78 lished with landscaped promenades and mauka-makai view corridors. The physical connections and visual images achieve the goal of forming linkages be- tween mauka communities and their waterfronts. The vision of this emerald necklace forms a landscape of harmony and serenity in the waterfront area and includes area's where the natural environment such as Nuuanu Stream penetrates this green belt. The open space plan links water and mauka communities to mitigate the Ala Moana Boulevard/Nimitz Highway bar- rier which has hindered these community's access to their waterfronts. The Kewalo-Punchbowl relationship would be renewed with redevelopment of the Kewalo Basin landside facilities and opening up of the Ala Moana Park edge of the Basin to expand the beach as well as access to it with promenades and pedestrian bridges from the mauka Victoria Ward properties to Kewalo. Landscaping and pedestrian ways along Ward Avenue to the Blaisdell Center, Thomas Square and the Art Academy will enhance the visual and physical linkage along this Kewalo to Punchbowl corridor. The Kaka'ako/Ca pitol districts would be linked in a dynamic manner with the Cooke Street corridor forming the Diamond Head boundary and the Civic Center complex the Ewa edge. The State Capitol, lolani Palace, Honolulu Hale Judiciary buildings and the Federal complex would form a historic/cultural visual link to the waterfront. Mother Waldron Park would connect to the Kaka'ako Waterfront Park along Cooke Street. A third linkage to be renewed is that of the Downtown-Chinatown districts with their historic stretch of the original Honolulu waterfront. The natural link created by the Nuuanu Stream promenade can re-instill the mauka-makai community beginning with Foster Gardens and Aala Park, bringing the community down to the historic beginnings at the waterfront, breaking the Nimitz barrier with a series of pedestrian bridges by way of the Fort Street Mail and the Nuuanu Stream promenade. Yet another link would be created to the Sand Island State Park through the use of the water as a passageway with water taxis and shuttles to enhance the Honolulu waterfront experience. 3-79 H IA ANOE KEEHI LAGOON PARK CENTER KAPALAM STR Al: PROM AD ANOE IACE AREA KEEHI RECREATIONAL AREA MARINAS co WRING REA L OON t. MA A 3-80 OPEN SPACE/RECRE FOSTER BOTANICAL GARDENS F AALA PARK NUU U STREAM OMENADE FORT STREE MALL C ITOL DISTRICT THOMAS SO RE ep OL /,,,-BLAISDELL DOWNTOWN PROMENADE ALA MOANA BEACHPARK KAKA:AKO PARK KEWALO PENINSULA MAGIC ISLAND 3-81 A fourth revitalization of the mauka-makai community is the Kai Park. and recreational boating area. The significant infusion of investment into Keehi Lagoon and its surroundings, would res and ocean sports recreation complex, thereby becoming the K playground. The Lagoon's calm waters have attracted signific development of new marinas for over 1,000 recreational vesse facility, a canoe racing complex and major park lands. This the Kalihi/Keehi Lagoon waterfront district as the premier recr sport playground in the State. 3.4.3.3 Sewerage System Improvements to the sewerage system (Figure 18) in the Cent will be required even without major development within the wat ments that will have particular.importance to development in include the following: In Kaka'ako, the proposed 78-inch main on a portion of Keawe Street to Koula Street should be continued fro Ward Avenue. A new 42-inch relief line on Auahi Street from Kamakee 78-inch main on Ward Avenue will be required to reliev that carries sewage from Waikiki. In Downtown, a new 42-inch relief line will be required tc lei with the existing 32-, 34- and 36-inch mains on Ala M A 42-inch line in the area between Waiakamilo Road ar Pump Station to sewer developments proposed for the K The remaining portion of the 54-inch line from Waiakami inch Kamehameha Highway force main will require a 42 The Kamehameha Sewage Pumping Station will have to 26 mgd peak capacity to approximately 37 mgd. 3-82 � A new sewage pumping station with a peak capacity of approximately 6.7 mgd will be required along with a new 1 8-inch force main on Lagoon Drive to the 42-inch line on Aolele Street. � The Ala Moana Sewage Pumping Station will require an odor control sys- tem to insure proper operation within the proposed developments of the master plan. � The Sand Island Wastewater Treatment Plant has a capacity of 82 mgd. The outfall has a capacity of 202 mgd. The treatment plant is expected to reach its capacity by the year 1995. The City and County of Honolulu is presently planning to upgrade the treatment plant's capacity to 106 mgd. The possible options for plant upgrade include the possible modification of the treatment process from primary treatment to secondary treatment. The subject of treatment process modification is still being explored. by the City and County and the Environmental Protection Agency. While many of these improvements care required to serve the overall growth and development of the central city, they will need to be expanded and/or accelerated to meet the development needs proposed in the master plan. The descriptions above reflect those needs, but only the net changes are directly attributable to the waterfront project. 3.4.3.4 Storm Drainage System Virtually all of the existing and proposed storm drainage systems (Figure 18) in the central Honolulu area penetrate the waterfront planning area. Since most of them serve areas mauka of the planning area, only a small part of the improve- ments can be attributed to the waterfront project. However, many will require modifications as they pass throUgh the project area based on the plans described in this report. These systems and modifications are discussed below. The Kaka'ako Improvement District 2 drains will soon be under construction and will provide 50-year storm protection from South Street to Cooke Street. The portion of this system on Ilalo Street and Keawe Street includes two 11.5 by 9- foot box drains-that discharge into a 30-foot wide open channel. This system 3-83 KEEHI 24* KA _____-@INTERCHANGE - w4y Cc, PGRA KAM SPS S-5) 3e 54' Q Q9 SP "C" lp FROM NEW KEEHISPS ON IS L KEEHI TRIANGLE SAND LA WWTP 'x co Z/ 3-84 FUTURE SEWERAGE AND DRAINAG "/,o 03 41 (H-1) 13ERETANIA STREET KING STREE No 10. 41,q D ALA MOANA &l. LIEF ELI PARK SPS ss j I , T- 10 A IOULEVARD ALA;MOANA SPS L4 I s (3 1 ra 9" 1W --j11 7i 30'X8' CONCRETE CHANNEL Ll UNDER CONSTRUCTION 3-85 will also relieve the small drain that runs from Cooke Street to Ke Ala Moana Boulevard. The Cooke Street drain along Ala Moana Boulevard joins with drain. This drain is inadequate and must be relieved. Pre[ studies by HCDA stated that a new relief drain for the Ward Kamakee Street would be needed. The new relief drain would 10-foot box drains that would discharge into Kewalo Basin. The planned network of canals or waterways in the interior of t will be integrated into the existing drainage system. There are energy or driving force which may effect or aid in promoting p culation in the waterway system. One is tidal action, the secon currents, and the third is freshwater inflow. A depth of 5 to 6 Sea Level (MSL) for the interior waterways is planned an reasonable to insure adequate flushing of the system. The proposed interior storm drainage systems for the Kaka'ak directly outlet into the proposed waterways, thereby reducing quired drain lines. The mauka-makai waterway branch will rer foot wide concrete channel to be constructed by the Kaka'ako I trict 2 project. The concrete channel is pla nned to have a dep MSL, with a capacity of 1,013 cubic feet per second, sufficient t the 50-year flood. The new waterway will provide over twice t al area of flow, reducing the velocity of the storm waters, s capacity is expected as long as the proposed waterways ar tained. Should the waterways be allowed to become more sh tion, their effectiveness as drainageways would be diminishe pact upon the ability of the Kaka'ako drainage system to drain from the 50-year storm. Drains in the Downtown area range in size from 18 inches to 3 4.5 by 3-foot box drain on Alakea Street. They will require relief flooding from Nimitz Highway to the Harbor. The largest relief li 3-86 Street which will require a new 6 by 4-foot box drain and on Richards Street which will require a new 60-inch relief line. In the Iwilei area, the largest drainage system crossing Nimitz Highway is inade- quate and will require a 10 x 6-foot relief line from the harbor to Nimitz Highway. There are other inadequate drains in the Iwilei area but their drainage areas are small and the required relief lines are not very large. The Lagoon Drive area is well drained by pipes entering Keehi Lagoon. Develop- ment proposed in the area will require a new drainage system in the triangle area. This system will consist of drain pipes along the interior road that drain directly into the'harbor. The largest pipe size will be 48 inches at the outlet. On Sand Island, the major pipe drains are located on the Sand Island Parkway and empty into the Kapalama Channel or open ditches. The major outlet for the eastern portion of the Sand Island Parkway is a ditch that crosses the Coast Guard Property from the Sand Island Parkway. This ditch is inadequate and re- quires relief. A relief drain will run along the Sand Island Parkway toward the entrance of the Sand Island State Park and discharge into Honolulu Harbor. The new box drain will range in size from 10 by 6-foot to 16 by 8-foot. The Barbers Point Harbor area presently has no drainage facilities to accom- modate offsite drainage. A major drain is under construction to drain the James Campbell Industrial Park and protect the Harbor from off site runoff. 3.4.3.5 Water Supply System The recently formed State of Hawaii Commission on Water Resource Manage- ment is empowered to administer the new State Water Code. The State Water Code was developed to assure the maximum beneficial use of ground and sur- face waters by establishing rules for reporting and gathering meaningful data on all water uses and sources. The Code requires each County to prepare a Water Use and Development Plan to be used as a tool by the Commission to administer the Water Code. The Water Use and Development Plan will take into considera- tion the Honolulu Waterfront Master Plan as it is required to incorporate State 3-87 Projects. The findings of the Water Use and Development Plan at this time so the analyses of the regional infrastructure systE based on the assumption that additional groundwater sources developed to meet the projected water demand. It is also as new water sources can be directly used by the Low Service Sys system that can divert additional water to the Low Service Sys The master plan will require the development of approximatel water sources by the year 2000 and another 0.8 mgd by 201 additional 1. 1 mgd, primarily to meet commercial and office d developed beyond 2010, assuming that the growth in these ar stant and that the need is met in the waterfront area. Based or the 5.9 mgd demand resulting from the plan would require storage capacity of approximately 8.8 million gallons. Facilities in the Downtown area are vital to servicing eastern a order to move the water developed in the Pearl Harbor District trict to -Waikiki and East Honolulu, the existing transmission upgraded in order to keep water pressures in the Downtown ar psi range. This would require the existing 36-inch line from Lili Avenue be upgraded to a 42-inch pipeline. The tentative route ft Ala Moana Boulevard into Waikiki. The Downtown grid system will require upgrading to adequ proposed Aloha Tower development. Major improvements re include two new segments of 16-inch lines on Richards Street way to Merchant Street and from Hotel Street to Beretania Str on Smith Street from Nimitz Highway to Beretania Street anc Merchant Street from Nuuanu Avenue to Richards Street. A majority of the Water demand resulting from improvements ir Plan is attributable to development (in particular, the triangle Lagoon area. In order to meet this demand, a new 16-inch Ii 3-88 ing 24-inch line on Aolele Street will berequired to service operations on the tri- angle area. No other major improvements to the water system are foreseen at this time. The Kaka'ako Makai Water Master Plan, prepared by the Hawaii Community Develop- ment Authority and accepted by the Board of Water Supply, calls for a looped system of 8-inch and 12-inch pipes adequate to meet the needs of proposed plan developments. The 16-inch line servicing Sand Island from the Kalihi Kai area is adequate to serve the proposed development unless the rate of use sig- nificantly increases. If this were to happen, a new 12-inch parallel line would be required to provide service to the area. The water master plan for the Barbers Point Harbor has been accepted by the BWS and is adequate to provide for the future development of up'to 144 acres. 3.4.3.6 Electrical Power and Communications The substation at the Downtown power plant site is adequate to serve the area but would have no spare ca acity to serve proposed developments in the Fort P Armstrong area. A new substation in the Kaka'ako or Fort Armstrong area could be designed to also serve the Downtown area, thereby allowing for the removal of the substation at the power plant when the Aloha Tower area is developed. There are existing substations in the Kaka'ako and Kewalo areas, but proposed developments will require one additional substation in the future. A hew substa- tion is planned in the vicinity of the Ewa end of the Ala Moana Shopping Center. Other electrical improvements (Figure 19) in the waterfront include: 4 The proposed Keehi developments will require a new substation and 46 kv electric power transmission line from Kamehameha Highway. e The Barbers Point Harbor will require a new substation and 46 kv trans- mission line from the substation at Campbell Industrial Park. The Hawaiian Telephone Company central office serves the Downtown area. The company also maintains a field office in Kaka'ako. To provide improved ser- vice to the Kaka'ako area, Hawaiian Telephone Company is planning to con- struct a new central office mid-way between Atkinson Drive and Alakea Street. A new remote office will also be required on Sand Island in order to service proposed new developments. 3-89 4 46KV 138K v 427 4-0-- Z4' 1@46ACJ, v 4 12 Ely la, A27 4 TA 1-4 @tl" 12 AA 12' SAND ISLAND SUBSTATION TO NEW KEEHI SUBSTATION V 3-90 FUTURE WATER S ELECTRICAL POWE 2 8. WATER PUMP STATION 12' 42' 2 0. 20' ULL UL HAWAIIAN ELECTRIC CO. POWER PLANT AND SUBSTATION woo 1,4, eh A2" EV TRANS-." ij 4g 12' I IOUs: H 3-91 I I I I I I I I I I I A 1 (5 4.0 FINANCI I r- Ih I I @- This Chapter focuses on the projected public costs, financing alternatives and estimated public revenues for the master plan recommendations. Although es- timated private costs have been quantified where necessary to determine ground rents and tax revenues, the majority of the narrative deals with public -costs and benefits. This Chapter represents a collaborative effort between the firms of John Child & Company, Inc. (public revenue and cost benefit analysis), Dean Witter Capital Markets (public finance) and the Joint Venture (project costs, coordina- tion and writing). A summary of major findings is presented in Section 4. 1. Sec- tion 4.2 presents a review of major public costs. Section 4.3 reviews various al- ternatives for securing public financing to fund the identified public improve- ments. Section 4.4 analyzes the various parcels within the planning area iden- tified for private development to derive an estimate of the potential ground rent return the State could expect from development. Finally, Section 4.5 presents an analysis of the major public costs and benefits associated with the develop- Ment of the non-maritime uses within the planning area. 4.1 OVERVIEW AND CONCLUSIONS The implementation of recommended master plan improvements will require an enormous investment of public support, public and private capital, labor and other -resources to fully utilize the potential that exists within the Honolulu Waterfront. This Chapter focuses on the projected public costs, benefits and financing alternatives. An overview of the major findings and conclusions of this Chapter is presented below. 4-1 4.1.1 Costs Over the next twenty to forty year period, the plan envisions a to ment of approximately $700 million within the waterfront are maritime, recreation and infrastructure improvements, roughly s short (5-10 year) and long-term (10-20 year) phases (not includi $265 million to construct the proposed Sand Island Bypass Hig Maritime $310.7 Estimated Public Costs (Millions of 1989 Dollars) .......... .. ..... . . . Other $167.5 Urban Deve $104 Major maritime project costs include significant maritime i Honolulu Harbor and the development of new container term Point Harbor and the Kapalama Military Reservation. Major rec clude the development of major parks at Kaka'ako and Kai development of other public facilities such as the Kaka'ako amp ing center at Keehi Lagoon, an inland waterway within Kaka'ako tem of public promenades to provide public access to the water urban development costs include the construction of major on-s which will in turn allow for the subsequent development of iden cels with the waterfront. Major circulationlutilities costs inclu funding the construction of off-site infrastructure necessary to s 4-2 lands within the waterfront. Other costs include funds for major relocations precipitated by the plan, such as the Food Distribution Center and the Foreign Trade Zone, as well as funds for the acquisition of the Kapalama Military Reser7 vation and the development of a Marine Research Center at Kaka'ako. 4.1.2 Public Financing Alternatives Public financing will play a valuable role in plan implementation. By stretching the cost of public improvements over a period of years, public financing will sta- bilize the cashflow requirements of the project area and achieve a better match- ing of revenues and expenditures. It will also achieve a certain "equity" by spread- ing the costs of an' improvement over its useful life. At present, the State has only two financing mechanisms which pass Master Plan improvement costs directly to its users -- (1) special benefit assessment bonds for a portion of the urban development costs and (2) harbor revenues bonds for maritime improvements. However, maritime revenues will need to increase sub- stantially if relied upon to cover all of the Maritime costs. Recommended plan improvements should result in soaring real property tax revenues; however legal mechanisms do not exist by which the State can capture those revenues. Sales tax and hotel tax revenues will flow to the State and could represent a bondable source of security; however, even with the legal means to pledge such revenues, the State like other states, may have little inclination to do so since such revenues would strengthen its General Fund. Finally, although ground lease rentals can potentially be captured, such revenues, alone, provide an inherently weak source of security in a bond issue. To the extent the State cannot capture and pledge a predictable and established revenue flow to a bond issue, or use special assessment bonding, it necessari- ly most rely on general o bligation bonds, certificates of participation, pay-as-you- go financing from project area revenue flows, and/or private funds to pay for public improvements. However, the obstacles to implementing other forms of financing suggest possible elements of a basic strategy to reducing the depend- ency on general obligation bond financing. These include: 4-3 Increasing and broadening the base of revenues which ca bondable by State agencies -- e.g. maritime revenues. Coordinating with the City and County with respect to shar of increased property tax revenues from the planning are *Adoption of legislation which may increase the flexibility ol cial assessments and levying special taxes on the basis benefit. *Utilizing ground lease rentals for the following purposes financing (thereby reducing future bonding requirements) revenue base of a public agency with existing bonding cc, reimbursing a revolving fund, if one is established. The above guidelines will not completely eliminate the need for tion bond financing. However, the State may be able to limit th obligation to those facilities which provide mor e* regional benefit, parks and other recreation facilities, or which have no other fi tives. In limiting the use of general obligation bonds, the StatE limit its risk but enhance the potential return on its investment. 4.1.3 Public Revenues A significant development potential for office, commercial indu uses exists within the planning area. This development potent lated into the form of significant annual ground lease rentals, developers wishing to develop the public lands. The ground from public lands leased for private development represent a p public revenue which could be used to finance public improve planning area on a pay-as-you-go basis through reimburseme fund and or reimbursement for bond debt service payments revenue sources, discussed further in Section 4.5, such as re veyance and transient accommodations taxes can also be expe public revenue. 4-4 Based on conventional leasing assumptions and in consideration of the projected development phasing and estimated land values, the annual ground rental income stream from the privately-developed, publicly-owned lands within the planning area are projected to increase from about $8.2 million in 1993 to nearly $22.7 million in 2018, at which time it will stabilize until 2052 when original leases will begin to expire and new leases will be negotiated. Ground rent pay- ments and reversionary interests total nearly $1.5 billion over the entire projec- tion period (approximately 68 years), in constant 1989 dollars. 4.1.4 Cost/Benef it - Public costs and benefits associatedw'ith plan implementation include monetary as well as non-monetary "qualitative" aspects, such as benefits attributable to public parks and open space. The analysis conducted for the master plan focuses on the monetary costs and benefits associated with the implementation of the Master Plan. The analysis first identified and projected sources of revenue and expenses to the State and County governments resulting from plan implementation. Revenues were narrowly defined to include income generated from the private development of public land, directly through ground leases and indirectly through conveyance,. real property and transient accommodations taxes. Costs included all urban development, recreation, circulation/utilities and relocation costs iden- tified in Section 4.2. Projected maritime costs and those associated with the design and construction of the proposed Sand Island Bypass highway were ex- cluded in the analysis as both costs represent major regional or system-wide im- provements benefitting a user group extending far beyond the waterfront. Projected State and County operating and maintenance costs were then iden- tified and subtracted from the projected revenue stream. After operating expenses, the net revenue to the County is projected to increase from nearly $4.5 million for the five years ending 1995 to $32.8 million for the five years ending 2010. Thereafter, the net revenues would average nearly $11.1 million per year over the project's remaining economic life. 4-5 Similarly, the net revenue to the State resulting from development master plan improvements is projected to total nearly $43.6 mil years ending 1995, and would be expected to increase to a tota lion for the five years ending 2010. Thereafter, the net revenue about $30.3 million per year. Capital expenditures, excluding those associated with the maritin land Bypass Corridor, are projected at about $409 million., Onc the net State revenue from the recommended improvements cou capital investment within the first 20 to 25 years of the redevelop 4.2 MAJOR PUBLIC PROJECT COSTS This section reviews the costs of major public improvements des ter 3. Private improvements are assumed to be borne by private are discussed briefly in Section 4.3. The process by which the cc mined is discussed first, followed by a summary of overall costs ar of major short and long range improvements within each of categories (maritime, recreation, circulation/utilities, urban dev other). 4.2.1 Cost Methodology Major project costs were estimated using conventional engir standards applied to land use and facility plans to identify ove costs. The estimated construction costs of each project were ad by ten percent to allow for unanticipated contingencies. These inflated by an additional ten percent to provide for anticipated p and engineering fees. Thus, the costs discussed in this Section all of the above. All costs discussed in this section are in 1989 dc fsite infrastructure costs were first estimated in terms of total reg adjusted to reflect the approximate share attributable to propc development. These costs were then further adjusted to prorat share between the public and private lands within the plannin 4-6 proration procedure similar to that currently being used in Kaka'ako by KDA. Offsite infrastructure costs for the proposed development of the Keehi Triangle area were also excluded as these are assumed to be part of the private developer's cost. A similar proration procedure was used in estimating the public share of onsite infrastructure (such as major Kaka'ako roadway improvements). 4.2.2 Overall Public Costs Overall public costs of plan implementation amount to $719.5 million as identified in Table 4 below. Table 4: OVERALL PUBLIC COSTS (Millions of 1989 Dollars) Short Long Qategory Ranae Range Total Maritime [1] $70.0 $240.7 $310.7 Recreation 53.1 29.8 82.9 Circulation/Utilities [21 42.7 10.9 53.6 Urban Development 45.1 59.7 104.8 Other [3] 153.0 A-5- 167.5 TOTALS $355.6 [1] Includes $96.4 million for upgrading Barbers Point to major container ter- minal (long-range) [21 Does not include estimated $265.4 million for Sand Island Bypass & Tunnel [31 Includes $87.2 million for acquisition of Kapalama Military Reservation 4-7 4.2.2 Short Range Costs Short-Range costs include those projects planned for developme Maritime Short Range maritime improvements are estimated at $70.0 mill below. Major costs include the rehabilitation of Piers 24 to 29, t barge operations to, and redevelopment of Piers 39 and 40, anc to the Sand Island container terminals. Rehabilitation of Piers 24 to 29 $18,3( Relocation of barge operations to Piers 39-40 16,01 Central Sand Island container expansion 15,8f Barbers Point terminal improvements 9,8 Redevelopment of Piers 37-38 8,71 Keehi mooring system 7 Pier 36 Improvements 5 Subtotal $70,0 Recreation Total short range recreation improvements are estimated at $53. recreation improvements include the $13.8 million for the firE Kaka'ako waterfront park, $8.6 million for the proposed inland w the Kaka'ako makai area, and $7.1 million for the proposed 12,00( amphitheater. Kaka'ako waterfront par k (Ph 1) $13,8 Kaka'ako inland waterways (Ph 1) 8,6 Amphitheater 7,1 4-8 Keehi Lagoon Canoeing Park 6,435 Kalihi Kai Park 5,940 Kaka'ako bridges (Ph 1) 3,080 Promenades (Ph 1) 2,049 Expansion of Ala Moana Park into Kewalo Basin 2,002 Sand Island Swimming Beach 1,806 Kaka'ako parking 1,188 Sand Island Aquatic Center & Boat Landing 743 Redevelopment of Piers 12 to 15 249 Subtotal $53,126 Circulation/Utilities Total short range cieculation/utilities improvements are estimated at $42.7 mil- lion. This estimate does not include an estimated $0.5 million needed to initiate right-of-way studies for the proposed Sand Island/Kaka'ako bypass & tunnel due to the regional rather than waterfront benefits this facility will provide. The major project costs in this category consist of offsite improvements ($41.0 million). Of- fsite improvements include costs to develop the necessary offsite infrastructure such as sewer, water, drainage to service public lands within the planning area. Off-site improvements $41,002 Pedestrian bridges over Ala Moana/Nimitz (6) 1,696 Subtotal $42,698 Urban Development The major urban development improvement identified in the short term is the $45.1 million public share of constructing major on-site infrastructure (roads, sewer, drainage, etc.,) into the Kaka'ako makai area including the partial exten- 4-9 Sion of Ward Avenue into the makai area (private share estima lion). Other The "other" category totals $152.9 million and includes the majo ing the Kapalama Military Reservation from the federal govern lion) and the costs to relocate various uses within the Kaka'ak the Kapalama lands (i.e., relocation of the Foreign Trade Zone, and Y. Hata) to allow for the development of the first phase of the Acquisition of Kapalama M. R. $87,21 Relocation of Y. Hata to Kapalama 28,4 Relocation of FTZ to Kapalama 17,4 Relocation of. Produce Center to Kapalama 15,6 Marine Research Center 4,2 Subtotal $152,9 4.2.3 Long-Range Costs Long-Range costs include those projects planned for developme Maritime Long-Range maritime improvements are estimated at'$240.6 mill below. The major cost item, $96.4 million for improvements t Harbor, is scheduled for beyond 2010. As noted in Chapter 3, ments include the construction of a major new slip with up to fou berths mauka of the existing basin along with the improvement additional backland. Other major costs include the expansion of Container terminal ($42.8 million- includes $21.7 million for la redevelopment of Kapalama Military Reservation into a moder 4-10 minal ($30.6 million), and relocation of the grain and flour milling operations to Barbers Point Harbor ($18.3 million). Improvements to Barbers Point Harbor $96,396 Sand Island container yard expansion 42,833 Redevelopment of Kapalama for container operations 30,602 Relocation of grain & flour to Barbers Point 18,295 Dinner cruise ships at Pier 4 13,945 Redevelopment of Piers 19 to 23 13,596 Kewalo Basin expansion & circulation channel 10,319 Pier 1 & 2 cruise boat terminals 7,383 Sand Island Coast Guard improvements 4,252 Expansion of interisland. barge operations 3,049 Subtotal $240,671 Recreation Total long-range recreation improvements are estimated at $29.8 million. Major improvements include the $29.0 million for the proposed Kakaako Beach Park (major cost elements include shore protection, beach extension and submerged breakwater). Kaka'ako beach park $29,053 Kaka'ako passive park (Ph 2) 743 Subtotal $29,796 4-11 Circulation/Utilities Total long-range circulation/utilities improvements are estimated This estimate does not include an estimated $264.9 million nee( proposed Sand Island/Kaka'ako bypass & tunnel facility. Desig tion costs for this facility are noted in this report but are excluded cial analyses because the improvements are required to meet re tation needs for the Central Honolulu corridor irrespective of development. The major project costs in this category consist of ments ($10.1 million). Off-site improvements $10,111: Promenades 7 Subtotal $10,9C Urban Development Major urban development improvements identified beyond 200 $59.7 million) are focused on the Fort Armstrong area of Kaka' ments include the final phase of major infrastructure construction a "people-mover" system ($16.5 million) and inland bridges ahd v million and $4.2 million, respectively). Kaka'ako roadways (Ph. 2) $32,51 Kaka'ako people-mover system 16,5( Kakaako bridges (Ph. 2) 6,4E Kaka'ako inland waterways (Ph. 2) :4, 1 E Subtotal $59,6( 4-12 Other The relocation of the I.I.H. Snug Harbor marine expeditionary facility (from Kapalama to the proposed Keehi triangle) is projected for implementation near 2000 to allow for the development of the proposed Kapalama container yard. Total costs for this relocation are estimated at $14.5 million. 4.3 PUBLIC FINANCE A major objective of the Honolulu Waterfront Master Plan is for the Project Area to be financially self-supporting. That is to say, the revenues generated from. those who use or benefit from the Project Area should offset the public costs identified in Section 4.2 of the chapter and the costs of ongoing maintenance. Although over its lifetime the Project Area is projected to generate significant public benefit, revenue flow necessarily will lag public expenditures in the early years. Master plan implementation contemplates substantial upfront investment for land acquisition, relocation and public infrastructure costs (approximately $364 million in the short-range) whereas project area revenues from ground leases, sales tax, hotel tax and other sources will require a number of years to materialize. Public financing will ease the cash flow burden of the Waterfront's public projects especially in the early phases -- by stretching the payment for those projects over a period of years. For example, if the acquisition of the Kapalama Military Reservation were to be financed for a period of 20 years at an average interest rate of 7.5%, the debt service payments would be approximately $7.94 million per year as opposed to approximately $87.2 million up front. By stretching the payment for public projects over a period of years, public financing thus achieves the following two benefits for the Waterfront Area: (1) it permits a closer match- bg of public expenditures and Project Area revenues on a yearly basis and (2) it spreads on a more equitable basis the costs of public projects over their useful life and among those who benefit therefrom. In addition, the ability to generate upfront funding for public projects may allow an acceleration of project acquisi- tion and construction before an increase in costs due to inflation. 4-13 4.3.1. Overview The implementation of a financing program for the public project by the master plan involves a balancing of public policy objecti considerations within constraints imposed by State law. , As noted earlier, the public policy objective is a self-supportin which the costs of public projects are borne by those who benefi To that end, these objectives would be ideally served by those fin which are secured solely by the revenues generated from the W - ie. sales and hotel tax receipts, ground lease payments, real and other revenues. From a marketing standpoint, however, inve agencies generally balk at bonds secured by revenues which m materialize until several years after issuance. They require a so which is established, predictable and sufficient to cover debt se on a timely basis. As such, general obligation bonds would repr marketable financial vehicle because they are secured by the Stat credit and taxing power. The marriage of issuer objectives and market requirements oc limitations imposed by state law relating to bond issuance. A bo possess the legal authority both to issue bonds for a particular p pledge a marketable source of security therefor. Otherwise, a p lend itself to a particular financing vehicle and alternatives must t The purpose of this section is to review the public financing altern category of public projects referenced in the Master Plan. Consid to the following issues: *Financing techniques currently permitted under State law structure, security features, marketability, potential for i and ability to satisfy the public policy objectives. 4-14 *Alternative approaches and techniques that other states have imple- mented to finance similar public projects. 9 Mainland models and their applicability to the master plan implementation. 9 An overall approach implementing a strategy for financing Waterfront im- provements. 4.3.2 Public Financing Alternatives for Master Plan Projects A. Maritime Projects The master plan envisions approximately $310.7 million of maritime and maritime- related projects over the next 20 + years. Such projects include the rehabilita- tion of various piers, expansion of container operations, terminal improvements and other improvements. (See Section 4.2 for discussion of major project costs.) In Hawaii, as elsewhere, maritime projects can be financed by one of two means: harbor improvement revenue bonds or state general obligation bonds. 1. Harbor Improvement Revenue Bonds With a majority vote of the members of each State legislative house, the State of Hawaii may issue revenue bonds secured by revenues received by the Depart- ment of Transportation, Harbors Division (DOT Harbors) and deposited in the Harbor Special Fund. The bond security is grounded in the requirement that the Department "adjust, fix and. enforce rates" pertaining to harbors, wharfs and properties managed by it in an amount sufficient to pay debt service on its bonds, provide for operation and maintenance of its properties and reimburse the Sta 'te for general obligation bonds issued for harbor or wharf improvements. (Section 266-17, HRS) The issuance of harbor improvement revenue bonds for the maritime projects contemplated by the Waterfront Master Plan presupposes the existence of suf- ficient revenues after payment of operation and maintenance and certain other costs ("net revenues") to pay or "cover" the annual debt service on outstanding harbor revenue bonds and bonds issued for such maritime improvements. If bonds are issued under the State's existing bond resolution, net revenues must 4-15 cover such combined debt service by 1.50 times. DOT Harbors has advised us that the issuance of its Series 1989 bonds in January or February will exhaust its capacity to issue additional bonds under current rates and fees charged to users. DOT Harbors probably could eke out a modest amount of additional capacity if it were to issue subordinate lien bonds with a lower coverage requirement. However, such bonds would bear a higher interest rate and, for security pur- poses, may contain certain "anti-dilution" restrictions affecting the State's ability to issue future senior lien harbor debt. There appear to be two basic means by which net revenues could be increased to a level which would support the debt service attributable to the maritime projects identified in the Master Plan. First, DOT Harbors could increase the rates it charges to commercial users of its facilities. We note that such rate in- creases have been suggested by Venture Associates in its January 1988 Report To Director Idenn Ling and Evaluating Revenue 01212ortunities for The Hawaii Department of Transportation, and that apparently DOT-Harbors has scheduled rate increases in April and October to support the issuance of approximately $80 million of additional harbor improvement revenue bonds pursuant to its five year plan. An independent consultant would need to determine the extent to which such rate increases are commercially feasible and the amount of additional revenues to be generated therefrom. We further note that the -relatively small amount of Maritime projects in the initial phases of Master Plan implementation -- approximately $70 million (excluding the purchase of the Kapalama Military Reservation) over the next 10 years -- would produce a relatively modest burden on rates. However, that burden will significantly increase to support the Kapalama redevelopment and the Barbers Point Harbor improvement projects scheduled for the later phases of the Waterfront Master Plan implementation. Even with steady and substantial increases in rates, the resulting net revenues still may be insufficient to cover debt service attributable to these projects. A second approach for increasing available net revenues involves a broaden- ing of the revenue base available for debt service. The approach taken by many port authorities on the Mainland is to commingle harbor and airport revenues and ground lease rentals (e.g., Oakland, San Diego). While this approach could 4-16 produce the desired effect of funding the Kapalama redevelopm( Point harbor improvements, it involves an administrative overha isting system, probably legislation and possibly waivers und restrictions. While DOT Harbors could charge higher rates so as to incre capacity, such action would effectively transfer the cost of the W Plan implementation on commercial shippers. These shippers, in on the increased costs to the local economy in terms of higher 2. General Obligation Bonds As an alternative to Harbor Improvement Revenue Bonds, the S general obligation bonds to finance the maritime and maritime-r ments. These general obligation bonds could be of the non-r reimbursable type. Non-reimbursable general obligation bon from the general fund of the State and the full faith and credit ar of the State are pledged to such payment. Their marketability overall financial health of the State's economy and not the r generated by the projects financed. By State Constitution, State tion bonds may be issued to the extent that such issuance woul nual debt service on the State's outstanding general obligation ness to not exceed in any fiscal year, an amount equal to ME State's average annual general fund revenues for the three mediately preceding such issuance. Reimbursable general obligation bonds are issued for the purp undertaking or improvement from which revenues or user taxes From a bondholder's standpoint, the security for a reimbursable tion bond is the same as the usual general obligation bond. Ho sable general obligation bonds require, by law, a reimbursemer fund from the revenues generated by the public undertaking. general obligation bonds do not count against the 18.5 percen tent that reimbursement is received. 4-17 General obligation bonds represent the lowest cost of capital avai the public improvements for the waterfront area. The interest rat Hawaii general obligation bond may run approximately one-ha lower than the rate of interest on a harbor revenue bond. Mor obligation bonds do not require the establishment of debt service Accordingly, the same annual debt service payment can finance ments with general obligation bonds than with harbor revenue b General obligation bonds would effectively spread the costs of provements on to all State residents without regard to the bene the harbor users. To the extent that harbor improvements benefi harbor system, this would be an appropriate use of general ob However, it should be noted that the issuance of general oblig use up precious bonding capacity needed for other non-reve State projects. Given the potentially viable alternative of additic provement revenue bonds, the State may wish to preserve its ge bonding capacity for other uses. B. Urban Development Projects The Waterfront Master Plan anticipates several public improvery under the heading "urban development." These improvements C items of infrastructure in the Kak,a'ako area -- roadways, waterw -- that are needed to encourage private development in the maste In addition, a people mover system is planned for the final phase 4.2 for discussion of major project costs.) Under current law, fina projects can be implemented in two basic ways: special assess and general obligation bonds. Other potentially attractive strategi increment financing, will require additional steps before their imp the Waterfront project. 1. Special Assessment Financing To the extent that the improvements are considered to provide s particular private property owners or long-term land lessees, the could qualify for improvement district or special assessment fin 4-18 this approach, the Hawaii Community Development Authority (HCDA) would issue bonds payable from special assessments levied against the properties in the district. HCDA already has used this approach t o finance other improve- ments in the Kaka'ako area. Under current law, the assessment would be "spread" against the properties on the basis of frontage or area in accordance with the benefit received. The HCDA could achieve greater flexibility if the law were amended to permit the spreading of assessments on any basis of benefits received as.determined by HCDA. Special assessment bonds effectively transfer the cost of a public improvement to the private sector. Accordingly, they achieve the public policy objective of spreading the cost of an improvement on to those benefited by it. From the standpoint of marketability, assessment bonds are sold on an unrated basis and generally bear interest rates which are approximately 75-150 basis points higher than a general obligation bonds. Because the bonds are secured by a lien against the benefited real property, the marketability of and security for the bonds is. directly related to the underlying assessed value of the real estate. The most marketable of assessment bonds are issued for improvement districts with al- ready developed parcels. The least marketable assessment bonds are issued in connection with undeveloped land. Like HCDA's outstanding improvement district bonds, the benefited real estate should provide ample security for im- provement district bonds in the Waterfront Master Plan area. A drawback to the widespread use of assessment bond financing is that so much of the land in the Waterfront Master Plan area is publicly owned. As a possible means of overcoming this drawback, it would be necessary for a strong, long- term lessee to be in place with an underlying ground lease which extends far beyond the final maturity of the improvement bonds. Under current law, the people mover project may have greater difficulty in being financed through special assessment bonds. The statutes do not specifically authorize the issuance of bonds for such vehicles which, in general, tend not to be financed by property assessments. The usual means are leasing or private 4-19 funding and operation as apparently is the case of the current Restaurant Row. To the extent that similar urban development improvements arE Aloha Tower area, the options are more limited. Aloha Tower, De poration (ATDC) is empowered to issue bonds secured only b tals and other revenues generated from the projects it finances. are likely to be derived from the leases of the commercial and in its area. Although these leases may generate sufficient cash a commercial mortgage or provide an attractive return on invest .cial lease rentals alone may not provide a sufficiently reliable so for a marketable bond issue. Moreover, the private nature of the may cause any bonds issued by ATDC to be taxable. Unlike HC not possess the authority to issue improvement district bonds. 2. General Obligation Bonds To the extent that the urban development projects cannot rely L sessment financing for funding, general obligation bonds app the remaining alternative currently permitted under State law. these general obligation bonds would be of the non-reimbursab the undertaking -- infrastructure improvements -- are non-reVE The use of general obligation bonds, however, would entail the s tions relative to cost-effectiveness, spread of payment burden debt capacity as discussed in connection with financing maritim( 3. Alternative Approaches Tax Increment Financing. A potentially valuable source of put the urban development projects within the Waterfront Master PI the use of tax increment financing. In essence, tax increment isolate the increase in real property tax revenues attributable sessed valuation and pledge those. incremental real property secure a bond issue. Tax increment financing has been used United States, and especially in the State of California, to financ 4-20 and private redevelopment projects. Tax increment financing in the State is cur- rently authorized under Chapter 46 of the Hawaii Revised Statutes. From an issuer's standpoint, tax increment financing holds great a ppeal for several reasons. First, it represents a form of financing that is arguably self-sup- porting. The financing vehicle provides for improvements in the project area and the project area generates an identifiable stream of revenues which ultimately pay for the cost of financing the improvements. Second, tax increment financ- ing represents a form of financing which is well-understood and accepted by the marketplace. Third, given the anticipated diversity in the Master Plan area, the security for tax allocation bonds could be potentially very attractive. Despite the enormous potential of tax increment financing, there currently are practical obstacles to its implementation in connection with the Waterfront Master Plan. First, no tax increment districts have yet been created in the Waterfront Master Plan area. Thus, there currently is no flow of tax increment with which to secure a bond issue. Moreover, even if immediate steps were taken to create such district or districts, it. will take several years for the tax increment flow to build in sufficient quantity to support a sizable bond issue. Accordingly, the financing technique should begin to have greater value in the longer term. Second, under current law, tax increment financing req uires the approval of the City and County of Honolulu. The statutes permit only counties to issue tax in- crement bonds. However, the taxing structure in the State does not inherently provide the motivation for such issuance because the City and County would receive the increased property tax revenues from development in the Waterfront Master Plan area under any circumstances. Accordingly, for the State to benefit from the tool of tax increment financing, one of two events must occur. First, it could amend current law to permit the issuance of tax increment bonds by a state agency such as HCDA. This 'approach may be viewed as a disruption to the basic system of property taxation in the State and, at a minimurn, require County agreement to share in tax increment revenues. Alternatively, it could solicit the cooperation of the City and County to 4-21 share in the tax increment flow either by way of a reimbursement agreement with the State or the issuance of tax increment bonds for the master plan area. The inducement would be the property tax "windfall" that the City and County would receive from private development in the Waterfront Master Plan area. The Coun- ty, however, may argue that it should receive the tax increment because of the added costs of services attributable to the new development. In any event, tax increment can represent a form of Project Area revenue flow to the State only after the formation of tax increment districts and the completion of private development. At this point, the financing vehicle could be needed to finance public improvements or to provide reimbursement for previous public ex- penditures. Special Tax Bonds. Despite the potential attractiveness of special assessment bonds to finance urban development and improvements, an inherent limitation in the technique is the requirement of special benefit. Some. improvements such as roads, parks and certain public utilities may confer only a general benefit on particular land parcels. In California, a financing tool has been increasingly used to finance such items of general benefit -- "Mello-Roos". bonds, so named after the state legislators which drafted the statute. Under this approach, special tax districts are formed for the purpose of financing the costs of public improvements and services within the district. A special tax, rather than an assessment, is levied annually on parcels without regard to special benefit from the improvement, in an amount sufficient to pay debt service on bonds issued to finance such im- provements. The tax generally requires a 2/3 vote of registered voters in the dis- trict or if there are fewer than -twelve registered voters residing in the district, the 2/3 vote of property owners in the district. In many practical respects, Mello- Roos bonds bear great similarities to special assessment bonds in terms of security, marketability and collection of the tax, although Mello-Roos bonds provide far greater flexibility. Mello-Roos bonds have generally been issued in connection with large real estate developments; however, they have been in- creasingly used in connection with public improvements needed for already developed areas. "Mello-Roos" legislation currently exists in California, Arizona and Florida. Similar legislation is currently being drafted in Hawaii. 4-22 Non-Bond Techniques. Several techniques not involving bond financing have been used throughout the United States to pay for the costs of urban develop- ment improvements. These include: (1) the use of developer fees, (2) the trans- fer of public costs to developers in exchange for density bonuses or ground rent subordination, and (3) federal grants. Whilethese techniques each impose the costs on parties other than the State, their impact on the overall cost of the Waterfront improvements may be minimal, if not unpredictable. Federal grant monies, once a major source of financing urban improvements, have all but dis- appeared. Only the Community Development Block Grant (CDBG) program remains but provision of CDBG funds now is largely tied to low income housing. Moreover, the CDBG program is administered at the County level. The use of CDBG funds, if any, would then require a coordinated effort by the State and the County. It is noted that the President's proposed budget for Fiscal Year 1989/90 would eliminate the CBDG program. The public benefits that are available from the developer-related alternatives will depend on specific negotiations with each developer. C. Recreation Improvements The Waterfront Master Plan envisions approximately $86.4 million in recreation improvements. These projects essentially consist of upgrading and expanding public recreational facilities in the Waterfront area '(e.g., parks and an am- phitheater) and improving public access to those facilities. (See Section 4.2 for discussion of major project costs.) Financing options for parks and other recreation improvements tend to be rather limited. Parks are inherently non-revenue producing and, as such, require other sources of security to support a financing. As a further practical matter, parks provide regional benefit to the state residents rather than special benefit to par- ticular property owners. It is unlikely, then, that the kind of park improvements identified in the Waterfront Master Plan would qualify for special assessment financing. Under current state law, the options are: general obligation bonds and certifi- cates of participation. 4-23 1. General Obligation Bonds The use of general obligation bonds to finance recreational imprc necessarily inconsistent with the public policy objectives for the parks potentially will benefit everyone on an equal basis -- not ju owners and lessees of the Waterfront Master Plan area. Accord basis exists to spread the costs among a broader population general obligation bonds were used in Seattle to pay for regional such as parks and waterways. 2. Certificates of Participation Alternatively, the State could finance the recreational projects suance of certificates of participation. Certificates of participatio tional equivalent of bonds. Like bonds, they pay principal and holders over the term of the financing. The basis of a certificate structure is a financing lease between the public agency and a n benefit corporation. The lease would require the State to annu monies from its General Fund in an amount sufficient to meet a and interest requirements. Those payments, in turn, are assign who repays the certificate holder. Unlike general obligation bo agency cannot be compelled to raise taxes and revenues to pal its general fund is insufficient. The credit strength of a certificate of participation issue will depen( fund and operating strength of the public agency. To that end, t obviously represent the most creditworthy public agency to be i tificate of participation structure. By the same token, if the v streams from the Waterfront area can be commingled into anoth that entity may develop the fiscal strength to support a certificate issue. Developed in California, certificates of participation are widely u the United States as a means of financing the costs of land and In many States, they have become popular alternative to ge bonds because they circumvent state debt limitations, voter ar 4-24 ments and other restrictions. Moreover, certificates of participation represent a very marketable security --although they generally are rated one or two notches below an issuer's general obligation bond rating and will bear a higher interest rate. The relatively easy access to general obligation bonds in Hawaii has obviated the need to use certificates of participation financing. However, properly struc- tured certificates of participation financing would offer the advantage of preserv- ing state general obligation bond capacity. This is because certificates of par- ticipation technically do not constitute "debt" in the constitutional sense. Assum- ing the Waterfront project generates sufficient sales and hotel tax receipts for deposit in the state's general fund, the use of certificates of participation arguab- ly would be consistent with objective of a self-supporting project. 3. Tax Increment Financing The alternative of tax increment financing remains a theoretical possibility assum- ing a cooperative arrangement between the State and the City and County (see "Urban Development Projects"). D. Circulation/Utilities Public development within the planning area requires approximately $319 million of costs attributable to circulation and utilities projects. The utilities projects fall into three categories: water and sewer; drainage; and power/communications. The large majority of circulation costs are attributable to the $265.4 million Sand Island bypass and tunnel scheduled for the final phase of master plan implemen- tation. Because of the fundamentally different nature of these public costs, this section is organized in a slightly different manner than the previous sections. 1 - Utilities Water and Sewer. In most municipal utility financings, the public agency is able to recover its capital costs from user fees, connection charges and other revenues of a utility enterprise. Because the revenue stream -- especially from user fees -- is considered so reliable and predictable due to the essential nature of the service, they can support a very marketable and creditworthy bond issue. 4-25 In Hawaii, only the counties and county boards of water supply im ges. This presents a rather anomalous circumstance: the State the above mentioned capital costs yet, under current law, it recover its costs through rates. Rather, it must rely on the Coun ficient rates with which to reimburse the State over time. From a financing standpoint, the situation appears to leave thE basic options. First, it could finance these utility costs through tion bonds or certificates of participation as described in previ then, could enter into a cooperation agreement with the City a suant to.which the City and County would agree to reimburse th ing through those costs in the rates to the ultimate user. Alterr and County could assume these costs and finance them directly t bonds. This alternative presupposes that County has or can legi slative amendment the power to assume such costs. Financing the State's water and sewer costs through bonds pa fees potentially raises a question of equity. Such financing -- wh the City and County or by way of reimbursement to the State -- spread the capital cost to existing users rather than concentratin obligation among those users in the area of expansion wl@ich creased need. In order for the State to accomplish this objectiv to look only to the connection fees collected in the Waterfront ar fees attributable to such users. The credit markets consider con uncertain in timing and in amount to support a financing. Accor preclude the direct issuance of revenue bonds by the City and pedite its recovery of utility costs and to broaden the base of its p the State may wish to consider an approach adopted in Califor other high growth states. The approach involved the imposition availability charge levied annually against the beneficial user o parcel for the availability of water and sewer service. Whether or not the State needs to act as the issuer, the self-su of these improvements will require the cooperation of the City a 4-26 Drainage. The public financing options for drainage improvements assume a slightly different characteristic than the options for financing water and sewer costs. Because drainage improvements are non-revenue producing, the cost of such improvements cannot be recovered from user fees. However, drainage facilities may qualify for improvement district financing if a finding of special benefit can be made. At this time, the best candidates appear to be the improve- ments located in the Kaka'ako area or Sand Island. With respect to the drainage improvements which do not qualify for special as- sessment financing, general obligation bonding appears to represent the only viable financing option under current state law. Whereas certificates of participa- tion are appropriate for land acquisition and public facilities, the credit markets look unf avorably upon the use of certificate of participation for drainage, landscaping and similar infrastr ucture improvements. Electric, Telephone and CATV. Electric, telephone and CATV improvements may require little or no public financing, depending on the length of the payback period. Given the relatively minor cost of the improvements, the public utilities may be willing to pay for the upfront costs. 2. Circulation Like the recreation improvements discussed earlier, the Sand Island bypass and tunnel represent an inherently non-revenue producing facility. Even if the State were to impose a toll for tunnel, start-up toll roads are virtually impossible to finance on the basis of toll road revenues alone because of the absence of proven collection history or established traffic patterns. Moreover, the use of tolls, with rare exception, historically has precluded the receipt of federal grants. Accord- ingly, under current Hawaii law, only general obligation bonds would appear vi- able. With a project of such magnitude as the Sand Island bypass and tunnel, and the long time frame for its implementation, it is instructive to review the means by which similar roadway facilities have been financed elsewhere. 4-27 First, we note that State governments have relied upon Feder ministration funds for all or a portion of road costs. It is unclear wt Island bypass would qualify for such grants or whether such gra able in the next century when the project is scheduled for constl Given the uncertainty of federal funding, issuers in many states h sales tax revenues to pay for the cost of transportation improve nia counties have especially relied upon sales tax revenues to -fir of road improvements within their jurisdictions. In California, with counties are eligible to increase the sales tax by up to one perc the sales tax receipts generated from taxable transactions. in th to pay for transportation-related costs. The Counties of Los Ange Contra Costa, Alameda, Santa Clara, Riverside, San Mateo and had successful sales tax elections. Many of these counties, inc geles and San Diego, have issued tax-exempt debt supporte revenues. The State of Illinois is an example of a state which has adopted a payable from sales tax revenues. Under that program, the State proximately $550 million of sales tax revenue bonds to finance ge ture needs, including roadways. We note that the Illinois prog the exception rather than the rule, because states tend to be re bonds on the basis of revenues that otherwise would be paid to # States, however, may look to the expected sales tax receipts tc return on a particular public investment. More frequently, states will finance the cost of road improvement., fuel tax revenues, vehicle registration fees and other highway us includes Arizona, Oregon, Delaware, Michigan and Montana. T hind this approach is that the cost of highway improvements is p ly to the users in an amount relative to their use. 4-28 E. other Improvements The final category of projects consists of such miscellaneous items as relocation costs, the acquisition of Kapalama Military Reservation, the construction of the Marine Research Center and the development of fuel distribution and storage facilities on Sand Island. As with many of the projects referenced in the master plan, these projects also are non-revenue bearing. Accordingly, any public financing therefore must rely on some source of security external to these projects. Most likely, this will mean general obligation bonds or other form of State funds. The efficacy of pursuing any of the other alternatives discussed throughout this section will be greatly limited by project timing -- which is scheduled for the early phases of Master Plan, implementation. It is doubtful revenues from. the project area will have materialited at, such stage in an amount sufficient to pay for these costs on a current basis. 4.3.3. Mainland Models The Honolulu Waterfront Master Plan implementation involves a unique set Of financial, legal and public policy considerations. The timing and nature of its project needs, the relationships among applicable governmental entities and the sources of security available for bond issues are not duplicated in connection with any waterfront development on the Mainland. Nonetheless, from the standpoint of financing -- particularly in connection with the "urban development" -- it is instructive to review the approaches which led to the successes enjoyed by certain notable projects and their applicability to the Honolulu Waterfront. A. San Die6o, California 1. Approach Virtually all of the waterfront development in San Diego has occurred on land which is under the control of the San Diego Unified Port District. The Port Dis- trict, which coordinates harbor and tidelands development within the geographic 4-29 boundaries of the City of San Diego and neighboring cities, c operational departments: harbors, airports and properties. Be deep water port, the District recognized early on that it would competing with the Ports in Long Beach and Los Angeles. By c District always has viewed the shoreline as a special urban amer ingly, has heavily emphasized the area of property managerne the desirability of the waterfront area, the Port District providE downs and its standard leases require a base ground rent and gross revenues. The revenues generated by these leases and has placed the Port District in such a cash rich position that it p parks, madnas and other -public improvements of general be paying cash for a $140 million convention center for the benefit c Diego. 2. Applicability to Honolulu Waterfront While the property management division of the Port District is v a model for other waterfront agencies, its enviable financial posi circumstances not present with respect to the Honolulu Waterf Diego apparently never faced in its early years the level of expen improvements that the Honolulu Waterfront Master Plan currentl The improvements in San Diego seemed to be installed ofte revenues from all sources. In addition, the operation of both port as well as the harbor has significantly broadened its revenue to the financial resources available for public improvements. A has been an insignificant amount of bond issuance in conr shoreline development in San Diego. This broad level of bonda not currently available to Honolulu Waterfront. B. Port of Oakland 1. Approach Oakland's Jack London Square is a masterplanned waterfront land controlled by the Port of Oakland. The development emph cial, retail and recreational activities. The Port represents the c 4-30 involved in the development. Property development recently has usurped transportation as the principal focus.of the Port. It is being spearheaded by the Port's Properties Management Division, now one of two major divisions of the Port. The otheris the Transportation Division which is responsible for the opera- tion of the airport and the harbors. Uke the San Diego Unified Port District, the Port of Oakland generally has acted as a lessor of real property pursuant to which it receives a ground rent and participation in its lessee's cash flows. Unlike the San Diego Unified Port District, however, the Port of Oakland, at times, has been willing to subordinate its rents to outstanding mortgages as a means of induc- ing certain developments. With respect to public improvements in the area, the Port generally has paid for street improvements with excess cash, but has bonded for some of the more costly improvements, such as a parking garage. Such bonds were secured by the Port's general revenues, commingled in one fund from maritime operations, airport and property leases. The Port of Oakland is known for its modernized and competitive harbor facility. At present, the Port is proceeding with its most ambitious plans -- to serve as joint venture partner in connection with an office building development. While the return is expected to be handsome, the nature of the capital commitment to fund the project may affect the Port's overall creditworthiness. 2. Applicability to Honolulu Waterfront Compared to Honolulu, the scope of the Port of Oakland's waterfront develop- ment is rather modest. Its big investment is occurring at present after several years of steadily developing the commercial dimensions to the waterfront. Moreover, the commercial development has been benefited by the level of resources that flow into the Port from airport and harbor improvements. These revenue sources constantly have been used to fuel the success of the Port which, in turn, has facilitated property development. C. Boston, Massachusetts 1. Approach The waterfront of Boston falls under the jurisdiction of the Massachusetts Port Authority, the City of Boston and the Redevelopment Authority of the City of Bos- 4-31 ton. The Port Authority has operating divisions for the airport, s and property development. The property development division i cerned with generating sufficient revenues to support tradition tivities and to create jobs. For property development, the Por relied on federal funds for its projects. As an example, it receive funds from the Economic Development Authority to renovate t Fishing Pier to enhance its function as an active fish processing remainder of public land along the waterfront, the City has been to obtain exactions from developers who want to build along the example, in the Burroughs walk project, the developer agreed to ground parking, a new dock for the fireboats, offices for the fireb and a $475,000 contribution to a neighborhood economic program. The City generally has notissued bonds for public in the waterfront area. One exception was when it issued $12,000,000 in general obligation bonds for the development of a shipyard site acquired in 1978; private investment there, however $850,000,000. The Navy shipyard site is the location of the Aquarium, a hospital and various commercial and retail establis 2. Applicability to Honolulu Waterfront The Boston model appears to represent a more intense comme contemplated by the Honolulu Waterfront Master Plan. As suc much smaller scale of public contribution. Park improvements, r utility costs and major land acquisitions were not involved in the sa The Boston experience, however, illustrates the level of private can be spurred by a relative modest amount of public funding. D. Baltimore, Maryland 1. Approach The waterfront in Baltimore falls under the jurisdiction of three e Administration of the Maryland Department of Transportation, timore and the Inner Harbor Management Group (IHMG). The F tion charge is limited to cargo maintenance and traditional mariti 4-32 derives all funding from the. State and has not relied on public financing. It does not act as a developer. Much of the noted urban development along the waterfront has been managed by the IHMG, a private, non-profit organization that was created.in the 1950s. In addition to facilitating development, the IHMG can and has acquired property that later has been used for public purposes. The IHMG was especially important in its early years because the City did not have a planning department at that time. The City, however, has been willing to lend its general obligation bonding powers to finance needed public improve- ments. In addition, the City and the IHIVIG has relied upon federal and state funds, CDBG and UDAG funds and Title I moneys. The State contribution was $35 million for a convention center. The City motivated the State to make this contribution because of the tax benefits which would flow to it. With its waterfront currently flourishing, the City now is able to rely on the private development to fund additional infrastructure and is in a posit ion to command market rate leases from its developer tenants. 2. Applicability to Honolulu Waterfront The Baltimore waterfront involved a level of public funding that is roughly com- parable to the public urban development costs of the Honolulu Waterfront. However, a large part of its public funding sources derived from federal grant programs which have virtually disappeared. Thus, unlike the City of Baltimore, the State of Hawaii must rely on its own financial resources to pay for public projects.. Baltimore's success also points up the, value of a close working relationship between the City and State. It 'allowed the City to allocate the public cost of a convention center onto the State by reason of the tax benefits which flow therefrom. A similar relationship could produce equivalent benefits to the State of Hawaii with respect to tax increment financing. E. Seattle, Washington 1. Approach The Seattle waterfront falls under the jurisdiction of four public entities: the Port of Seattle; the Department of Natural Resources; the City of Seattle; and various special purpose public development authorities. The Port of Seattle, which is in- 4-33 dependent from the City, generally has had a maritime focus. a modest amount of commercial, restaurant and office develop With its financial resources from its maritime operations, it is beg land in the "uplands" area for the development of hotel, office facilities. The Department of Natural Resources owns the tid generally coordinates waterfront activity. Most of the urban wat ment in Seattle, however, has occurred on City-owned land. T is leased to public development authorities which administer thE ment. The City generally does not become directly involved From a public funding standpoint, the Seattle waterfront has reli sources to finance public improvements. These include: City C street improvements (a special levy measure Was turned dow Economic Development Authority grants, Urban Renewal fu monies for certain public facilities and private redevelopme general obligation bonds for such regional facilities as wat museum and an aquarium. 2. Applicability to Honolulu Waterfront The Seattle waterfront is governed by a political structure whic rently governing the Honolulu waterfront for complexity. While p of funds for urban development has been impressive,'the parti governmental agencies is notable -- especially the willingne@s issue general obligation bonds for regional facilities (waterfront and aquarium) benefiting a wide range of users. 4.3.4 Conciusion Public financing can play a valuable role in Waterfront Master F tion. By stretching the cost of public improvements over a perio financing stabilizes the cashflow requirements of the project ar a better matching of revenues and expenditures. It also achieve ty" by spreading the costs of an improvement over its useful lif 4-34 While the overall Waterfront area is expected to generate significant revenues for years to come, financing the public improvements identified in the Master Plan poses considerable challenges. The obstacles relate to the nature and timing of those revenues, and the ability to pass the costs of the Waterfront directly to its users. Table 5 which follows summarizes currently available techniques and othe r bonding alternatives for each category of public improvement as discussed above. At present, the State has only two financing mechanisms which pass the Waterfront Master Plan improvement costs directly to its users: (1) special benefit assessment bonds for a portion of the urban development costs and (2) harbor revenues bonds for maritime improvements. However, maritime revenues will need to increase substantially if relied upon to cover all of the Maritime costs. The potential exists to recover the costs of public utility improve- ments from rates; however, this will necessitate coordination with the City and County and public utility companies. The improvements to the Waterfront Master Plan area should result in soaring real property tax revenues; however legal mechanisms do not exist by which the State. can capture those revenues. Sales tax and hotel tax revenues will flow to the State and could represent a bondable source of security; however, even with the legal means to pledge such revenues, the State like other states, may have little inclination to do so since such revenues would strengthen its General Fund. Finally, although ground lease rentals can potentially be captured, such revenues, alone, provide an inherently weak source of security in a bond issue. To the extent the State cannot capture and pledge a predictable and established revenue flow to a bond issue, or use special assessment bonding, it necessari- ly most rely on general obligation bonds, certificates of participation, pay-as-you- go financing from Project Area revenue flows, and/or private funds to pay for public improvements. However, the obstacles to implementing other forms of financing suggest possible elements of a basic strategies to reducing the de- pendency on general obligation bond financing. These include: 4-35 Table 5: ALTERNATIVE PUBLIC FINANCING TECHNIQUES CURRENTLAW ALTERNAT Category of Financing Financing Improvement Technique comments Terhaigue Maritime Harbor Need to increase Improvement Net Revenues to Revenue Bonds rovide additional COnding capacity costs borne by maritime users. General Reimbursable or Obli ation Non-Reimbursable; Bongs lowest borrowing costs. Costs spread to all State residents. Urban Special Improvements must Tax Development Assessment benefit a private Increment Projects Bonds owner undedying real Financing estate must have sufficient assessed value to support bonds, higher borrowing cost. HCDA would be issuer. General Non-Reimbursable Special Tax Obligation Bonds Bon s Recreation General Non-Reimbursable Obli ation Bongs Certificates Easy access to State of Partici- G.O. bonds without pation (COPs) votq generally obviates need for COPs. Preserves G.O. capacity. 4-36 CURRENTLAW ALTERNATIVES Category of Financing Financing Improvement Tgchnique Comments Technique Comments Utilities Water and General State to recover Standbyl Broadens base of Sewer Obli ation costs from County in Availability revenues available Bongs rates charged to - Charge to reimburse State. waterfront users. Legislation is pr6bably required. Certificates of Participation Revenue Bonds County would be issuer. Questions of "equity' could arise if all users of system are required to pay for capital costs. Drainage General Non-Reimbursable Obligation Bon s Special Reqqlres finding of Assessment special benefit. Bonds Electric No public financing may be required Communication No public financing may be required Circulation General Revenue Bonds Requires legislation Obligation gayable from Sales and hotel tax Bon s ales Tax, alternatives may not Motor Vehicle be preferred because Tax, Vehicle such revenues would Registration, otherwise flow into Hotel Tax, General Fund, etc. Other General Project timing may Improvements Obli ation "preclude" other Bongs techniques 4-37 Increasing and broadening the base of revenues which ca bondable by State agencies -- e.g. maritime revenues. Coordinating with the City and County with respect to shad of increased property tax revenues from the Waterfront P Adopting of legislation which may increase the flexibility of cial assessments and levying special taxes on the basis benefit. *Utilizing ground lease rentals for the following purposes financing (thereby reducing future bonding requirements); revenue base of a public agency with existing bonding ca reimbursing a revolving fund, if one is established. The above guidelines will not completely eliminate the need for tion bond financing. However, the State may be able to limit th obligation to those facilities Which provide more regional benefit, parks and other recreation facilities, or which have no other fi tives. In limiting the use of general obligation bonds, the State limit its risk but enhance the potential return on its investment. 4.4 PUBLIC REVENUES A significant development potential for office, commercial indu uses exists within the planning area. This development potenti lated into the form of significant annual ground lease rentals, -developers wishing to develop the public lands. The ground from public lands leased for private development represent a p public revenue which could be used to finance public improve planning area on a pay-as-you-go basis through reimburseme fund and or reimbursement for bond debt service payments. revenue sources, discussed further in Section 4.5, such as real 4-38 veyance and transient accommodations taxes can also be expected to generate public revenue. 4.4.1 Methodology The steps involved to analyze the public revenue sources within the planning area are outlined as follows: 1. Identified the sites which are owned by the State of Hawaii that could be leased for private development. 2. Reviewed the master plan to determine the land uses for the selected sites. 3.' Evaluated the development potential of each site in terms of its development density and mix of uses. 4. Assessed the market support for the various uses and the availability of the necessary infrastructure in order to project the likely development phasing of the selected sites. 5. Estimated the current land values for the selected sites, assuming the com- pletion of the necessary infrastructure, and considering each site's physical characteristics, location and development potential. 6. Reviewed contemporary leasing practices for comparable properties. 7. Based on the projected development phasing, estimated land values and recommended lease terms., 8. Projected the ground rental income stream for the selected sites. 4.4.2 Site Identification The master plan includes 21 sites which could be leased by the State of Hawaii for private development, as shown in Table 6 below. The majority of these sites are between Kewalo Basin and Pier 14, as shown in Figure 20. Through the establishment of ground leases on the selected sites, the State of Hawaii would benefit from increasing land values and ground rents resulting from the implementation of the master plan. 4-39 Table 6: WATERFRONT DEVELOPMENT PARCELS [1 Land area Site Location Use (acres) CIVIX-01 Fort Armstrong Office 1.60 CMX-02 Fort Armstrong Office 1.93 CMX-03 Fort Armstrong Office 2.42 CMX-04 Fort Armstrong Office 2.33 CMX-05 Fort Armstrong Office 3.70 CMX-06 Fort Armstrong Office 1.76 C-01 Kaka'ako Makai Retail 1.76 C-02 Kaka'ako Makai Retail 1.88 C-03 Kaka'ako Makai Retail 1.45 C-04-R Kaka'ako Makai Office 1.28 C-05 Kaka'ako Makai Specialty [21 16.77 C-06 Kewalo Basin Retail & tour- 1.68 C-07 Kewalo Basin ist-oriented 1.82 C-08 Kewalo Basin facilities 5.29 C-09 Piers 5 and 6 Retail 4.00 C-1 0 Piers 13 and 14 Specialty [31 1.00 C-1 1 A/B Fort Armstrong Retail 0.56 C-11C Sand Island Retail 0.50 AT-01 Aloha Tower Business hotel 3.40 AT-02 Aloha Tower/HECO site Office NA 1-01 Sand Island Parking Industrial 9.50 1-02 Sand Island Industrial Industrial 40.00 [1] Parcels CMX-07 to CMX-9 (See Figure 20) are privately-owned and have therefore been ex- cluded from the analysis. Parcel CMX-10 is assumed to be acquired via a land exchange. Par- cel AT-02 is owned in part by the State. [2) The Entertainm ent Area is intended to feature entertainment, commercial, recreational, cul- tural and educational activities in a landscaped, park-like setting. [31 Piers 13 and 14 could include the wholesale fish market which could be relocated from Kewalo Basin. The development could also include a restaurant and related facilities set in a unique fish market environment. 4-40 FIGURE: 2d WATERFRONT DEVELOPMENT PARCELS C-10 (Al' Feet 0 500 1000 z" AT ... .... .... 01 mx- C) -4 01 C-09 c x m .64 10 N cmx cm@ 02 cmX 06 07 m % -.2 @@ , i, @' .4 1 C 06 W @T` N D.. '0" ,a: cmx- 03 C 07 .......... v:, . ..... '000 I P @R fl;lvl@@'. x AUT 1-02 -08 c 1-01 C-1 A/ c -01 C-02 C-03 .......... 04- mx- 05 -05 d e: HONOLULU WATERFRONT MASTER PLAN January 1989 4-41 4.4.3 Land Use Categories The selected sites in the Waterfront study area have been clz broad categories based on the proposed master plan. The cat 1. Commercial Mixed Use (CMX) 2. Commercial (C) 3. Aloha Tower (AT) 4. Industrial (1) General development opportunities within each category are the following subheadings. Commercial Mixed Use (CMX) Sites with a Commercial Mixed Use (CMX) designation co developed for office use. Such sites could provide a source o fice space which is anticipated to be required to meet the nee future office market. CMX development could also include a relatively small retail con purposes of this study, this ancillary retail component is est 10,000 square feet per acre of land developed, or between 80X total net rentable area. Class A office developments in Honolulu have typically alloca and 15% of the net rentable area for ancillary retail use, with ar of about 10%. These ancillary retail areas are usually occupied by tenants needs of the'office users in and immediately around the compl users include: Restaurants Convenience shops 4-42 Gift shops Florists Hair stylists. commercial (C) Sites with a Commercial (C) designation could either be devoted entirely to retail development or provide an equal amount of retail and office space, depending on their location and physical characteristics. Aloha Tower (AT) Development at the Aloha Tower sit e provides a unique opportunity to integrate Class A office development with hotel development, while maintaining the rieces- sary -space requirements for maritime uses. Ultimate development of the Aloha Tower site could be incorporated with redevelopment of the adjoining HECO site. Industrial (1) Industrial development on Sand Island will result in the creation of fully-serviced lands suitable for a variety of industrial uses and the opportunity for expanding the parking facilities serving downtown Honolulu.. 4.4.4 Development Potential The development potentials for the commercial and,commercial mixed use sites in the Honolulu Waterfront area are expressed in terms ofnet rentable area and based on three components: * Floor area ratio (FAR) * Ratio of net rentable area to gross building area ,6 Relationship between retail and office space. Variations in development potential assumptions are outlined as follows: 4-43 The Kewalo Basin Commercial redevelopment, comprisin@ 07 and C-08, are planned for development with a commer lage" that would feature a variety of retail shops, outdoor ca and tourist-related attractions. Retail development on these estimated to total about 63,000 square feet. Piers 5 and 6, identified as C-09, are assumed to be dev 80,000 square foot Festival Marketplace. *The Aloha Tower site, AT-01 and AT-02, is assumed to h ment potential which includes a 400- to 500-roorn hotel square foot office complex that incorporates the adjoining Piers 13 and 14, identified as C-10, could be renovated to r facilities for commercial fishing vessels, such as a wholes Retail development could be limited to about 10,000 squa to restaurant and related uses. 4.4.5 Projected Market Support The demand for hotel, commercial office and retail shopping u analyzed and presented in a separate market assessment and a in the development program presented in Chapter 3. Thew as based on a detailed analysis of those factors which influence supf and consider the competitive advantages and disadvantages of e Based on the hotel market assessment, a 400- to 500-room busi portion of the Aloha Tower site could be supported by 2000. The additional demand for office and retail area in the study areE total 2.0 million square feet and 350,000 square feet, respective[ Market support for other components of the master plan are di lows: 9 The Entertainment Area (C-05) is envisioned as a highly for people to spend their leisure time. Its unique orientati 4-44 within the Honolulu Waterfront could enhance its appeal to both residents and visitors. Lands for this specialty area could be available after 2000. � The, redevelopment of Piers 13 and 14 (C-10) into a wholesale fish market could provide a unique setting for a seafood restaurant and ancillary uses. This specialty area could be developed by 1996 and 2000. � The 1 O-acre parcel identified as 1-01 could offer about 1,000 at-grade park- ing stalls which, in conjunction with a water taxi system, could provide al- ternative parking opportunities for Honolulu's waterfront. The develop- ment of this parcel would be between 2006 and 2010. 9 Parcels within the Sand Island Industrial Park (1-02) are presently leased by the State of Hawaii to individual users on short-term leases. Market support for these lands is expected to continue into the future. 4.4.6 Development Phasing The development phasing for the selected sites in the study area are based on the: * Projected demand for the various land uses *Availability of the necessary infrastructure to service the sites. Projected development phasing for the various components in the Honolulu Waterfront study area are discussed below. Retail Retail development of a majority of the commercial sites in the study area by 2010 could be supportable, based on the projected demand requirements, den- sity assumptions, and the availability of the necessary infrastructure. The Entertainment Area (C-05) and Piers. 13 and 14 (C- 10) offer u nique commer- cial opportunities and could be developed between 1996 and 2010. 4-45 Office Office development within the Aloha Tower/HECO assemblag portable between 1991 and 1995. Aside from small scale devel C-03 and C-04-R, major office development opportunities on St are not projected until between 2001 and 2010, because of the development sites. Four sites along Ala Moana Boulevard owned by the B.P. Bish potentially be developed for office use and, therefore, compete V% on State-owned sites for office space users. Considering the av owned sites and the de mand for office space, development or Bishop Estate sites could occur between 1996 and 2010. Th sites could be developed after 2010. The development schedule of the ancillary retail space is anticip with the primary office development. Hotel The hotel development could begin between 1991 and 1995 in the necessary facilities and achieve a stabilized occupancy rat lowing five-year period. Industrial Market support for the existing Sand Island Industrial Park imp pected to continue into the future. The development of the San facility could begin between 2006 and 2010. In summary, development on a majority of the State-owned site Waterfront study could be supportable by 2010. The demand uses beyond 2010 has not been assessed, however, the remaini sites could be developed by 2020, assuming demand remains at between 2006 and 2010. 4-46 4.4.7 Land Values The potential land values for the selected State-owned sites are influenced by: Location 4 Physical characteristics e.Development potential Based on a review of land values for comparable properties in Honolulu, and considering the proposed changes to the Honolulu Waterfront, the aggregate value of the selected State-owned lands could be over $260.0 million (excluding those dedicated to maritime uses), in constant 1989 dollars. The land value estimates are based on the f ollowing assumptions: � The necessary infrastructure is completed. � The sites are unencumbered by existing leases or easements which might adversely affect land use and development. 4 Land use regulations governing development would be similar to those outlined under the current Land Use Ordinance. 4.4.8 Ground Lease Trends This section reviews the contemporary lease terms for long-term ground leases and concludes with ground lease recommendations for the selected land, Uses found in the study area. Contemporary Lease Terms Contemporary lease terms for non-residential properties are generally as follows: Total lease term between 55 and 75 years. 4-47 *Predetermined ground rents during the initial "fixed term years in length. Ground rent for the first 10 years based on an 8% annual re timated land value. *Ground rent during the second and third 10-year periods tween 50% and 75% over the rent during the previous peri * Ground rent during the remaining lease term renegotiated of 10 years and based on the then land value multiplied t market rate of return. * As additional payments, the lessee is typically responsibi charges, assessments and other expenses associated wit Ground leases covering retail and hotel sites also'include provisio age rents which would be paid in addition to minimum (fixed) rer For retail properties, the calculation of percentage rents is gene one of two formulas: * 1% to 2% of the gross sales volume generated by the retai * 7% to 20% of the gross rental income generated by the reta Percentage rents associated with hotel ground leases are typic percent of gross departmental revenues, shown as follows: 4-48 Hotel Departmental Percentage Revgnue- Rent Rooms 4.0-6.0% Food 1.0-3.0% Beverage 2.0-4.00/6 Concession and other 10.0-20.0% In both cases, percentage rents do hot typically apply until sales volumes or gross rental income have surpassed a predetermined "breaker" level. Market Lease Terms Based on the review of current leasing trends, the market lease terms for the State-owned sites could be as follows: 9 Lease term of 60 years. e Lease rents fixed for first 30 years. * Ground rent for the first 10 years based on an 8% return on the estimated land value. 9 Ground rents increased by 50% for the second andthird 10-year incre- ments of the fixed rental period. 9 Ground rent to be renegotiated for three remaining 10-year periods based on the then fair market value of the land multiplied by the then fair market rate of return for similar properties. * As additional payments, the lessee would be responsible for all taxes, char- ges, assessments and other exp6 nses associated with the property. The ground leases for the ret ail and hotel sites could also include provisions for percentage rents. The percentage rent associated with the retail ground leases could be based on 2% of the gross retail sales in excess of the breaker. 4-49 The percentage rent for the hotel ground lease could be ba departmental revenues, shown as follows: Hotel Departmental Percen Revenue Rooms Food Beverage Concession and other 4.4.9 Projected Ground Rents The ground rents generated from public lands leased for pr represents a source of revenues which could be used to finan projects in the Honolulu Waterfront master plan. Lease terms and conditions may vary between the selected as each lease is tailored to the specific needs of both the I However, at a minimum, each lease should provide for a fai derlying land value. The income stream resulting from the leasing of the selectec the following assumptions: Ground rents are based on an 8% annual return on th and are expressed in constant 1989 dollars during thE to facilitate the comparison to the development costs. The impact of percentage rents associated with the re is not addressed. The value of any site improvements at the end of the leaE to be nominal. The underlying land value provides th( ing the reversionary interest in the selected sites to the 4-50 The ground leases are assumed to begin at the mid-point of each five-year period of the development schedule, beginning with 1993. Based on conventional leasing assumptions and in consideration of develop- ment phasing and estimated land values, the annual ground rental income stream from the privately-developed, publicly-owned lands within the planning area are projected to increase from about $8.2 million in 1993 to nearly $22.7 million in 2018, at which time it will stabilize until 2052 when original leases will begin to expire and new leases will be negotiated. Ground rent payments and reversionary interests total nearly $1.5 billion over the entire projection period, in constant 1989 dollars. 4.5 PUBLIC COST BENEFIT ASSESSMENT Public costs and benefits associated with plan implementation include monetary as well as non-monetary "qualitative" aspects, such as benefits attributable to public parks and open space. The analysis conducted for the master plan focuses on the monetary costs and benefits associated with the implementation of the Master Plan. The analysis first identified and projected sources of revenue and expenses to the State and County governments resulting from plan implementation. Revenues were narrowly defined to include income generated from the private development of public land, directly through ground leases and indirectly through conveyance, real property and transient accommodations taxes. Costs included all urban development, recreation, circulation/utilities and relocation costs iden- tified in Section 4.2. Projected maritime costs and those associated with the design and construction of the proposed Sand Island Bypass highway were ex'_ cluded in the analysis as both costs represent major regional or system-wide im- provements benefitting a user group extending far beyond the waterfront. Projected State and County operating and maintenance costs were then iden- tified and subtracted from the projected revenue stream. The resultant net State revenues were then compared to the projected State capital expenditure. 4-51 4.5.1 Methodology The steps to analyze the costs and benefits of the master plan a follows: 1 . Classified the phasing of the public improvements of the ma year periods from 1991 through 2010 and beyond. 2. Identified and projected the public non-maritime capital expe 3. Identified and projected sources of revenue and expenses t County governments resulting from implementing the master pla 4. Compared the net revenue generated through the implemer master plan to the projected capital expenditure. 5. Estimated the payback period for the master plan. The analysis of the costs and benefits are presented under the headings. All projections are in constant 1989 dollars. 4.5.2 Capital Expenditures The capital expenditures associated with the various public projects would total approximately $700 million over 20 years a Section 4.2. These costs would be paid by the State of Hav@aii. Nearly $410 million or nearly 60% of the total expenditure wou maritime projects. These non-maritime expenditures are gr categories, shown as follows: 0 Recreation: Development of passive and active parks and phitheater, marinas, boat landings, aquatic center, inland promenades. o Urban development: Construction of roadways, bridges a tion systems in the Kaka'ako area. 4-52 *Circulation: Pedestrian bridges, additional promenades and selected of- fsite improvements to enhance circulation through the study area. [] Other: Marine Research Center and relocation and land acquisition costs incurred in the process of implementing the recommended plan. 4.5.3 Operating Revenues and Expenses Once implemented, various components of the master plan will provide income to the State and County governments. They would also require periodic main- tenance and incur operating expenses. The income and expenses associated with the implementing the -plan are discussed below. Revenue The major sources of revenue to the State include: Ground lease rents 6 General excise tax * Transient accommodation tax. The revenue to the County results from increased property values and real property taxes. The projected revenues from these sources are discussed under the following subheadings. Ground Lease Rents The ground rents generated from public lands leased for private development represents a major source of revenue. The ground rental income would extend well beyond the 20-year projection period. Based on the estimated land values and current leasing practices, the annual ground rental income is projected to increase from about $8.2 million in 1993, stabili'ze at nearly $22.7 million from 2018 to 2052, and gradually decline until the last ground lease expires in 2078. 4-53 This income stream would total about $25 million between 1991 creasing with market support for various land uses, and total over tween 2006 and 2010. - The subsequent ground rents and the reversionary interests in th sites over the following 68 years would total an additional $1.3 bi Transient Accommodation Tax The transient accommodations tax, also known as the hotel room at a rate of 5% on the gross rental proceeds from furnishing ac to transients for less than 180 days. The master plan includes a 400 to 500-room hotel on a portion of t Complex. The hotel could open between 1991 and 1995. Its targe be the business traveler. Based on the existing and anticipated competition -for busines average occupancy rate of the Aloha Tower hotel would be expec from about 55% to between 85% and 90% by 2000. The room rate about $150 per night. The room revenue for the Aloha Tower hotel is projected to incre $15 million per year between 1991 and 1995 to nearly $25 4iillic tween 2006 and 2010, based.on the anticipated levels of operati As a result, the transient accommodation tax revenue from the could increase from about $750,000 per year between 1991 and $1.2 million per year between 2006 and 2010. General Excise Tax The general excise tax is a tax on the gross proceeds of busine,-c The tax applies to all levels of business activities including con tion, manufacturing and wholesaling activities. The projected general excise tax from development of the Honc is based on projected sales revenue from the hotel and retail u 4-54 of the general excise taxes from office and industrial uses in the Honolulu Waterfront area would be dependent on the characteristics of the tenants, who are unknown at this time. Therefore, the general excise tax for office and in- dustrial development has not been included. The proposed hotel could achieve annual revenues increasing from about $23 million to nearly $40 million over the 20-year projection period, based on an- ticipated levels of operation and relationship between department revenues. The net rentable area devoted to primary and secondary retailing in the Waterfront area is projected to increase from about 177,000 square feet to over 500,000 square feet by 2010. An additional 200,000 square feet could be developed after 2010. The retail facilities could be expected to generate gross annual sales averaging about $300 per square foot. As a result, annual revenues would increase from about $53 million between 1991 and 1995 to nearly $152 million between 2006 and 2010 and stabilize at about $210 million beyond 2010. Annual general excise tax revenues are projected to increase from about $3.1 million between 1991 and 1995 to nearly $7.6 million between 2006 and 2010. The annual general excise tax revenue would stabilize at nearly $10 million in the years after 2010. Real Property Tax The master plan would ultimately have a direct and positive impact on the proper- ty values in the Waterfront area. As a result, the County will directly benefit from the higher property values through increased real property taxes. At completion the property values in the Waterfront area could total about $1.3 billion. The majority of these improvements are expected to occur by 2010. The real property tax for commercial, industrial, and hotel land uses in Honolulu is $9.45 and $10.71 per $1,000 of assessed values, shown as follows: 4-55 REAL PROPERTY TAX RATES (July 1, 1988 to June 30, 1989) Tax rate pe $1,000 of ne Land Use assessed valu Hotel $10.7 Commercial 9.4 Industrial 9.4 The annual real property tax revenue to the City and County projected to increase from $1.8 million to $8.1 million over the 20- period, based on the current tax rates and anticipated developm The real property taxes are projected to stabilize at about $12.6 n development at some point beyond 2010. Total Operating Revenue Based on the preceding analysis, the total revenue resulting fro ment could total about $52.8 million between 1991 and 1995, incre $167.4 million between 2006 and 2010. Thereafter, the annual projected to average about $43 million. About 75% to 80% of the projected revenues would be paid to t remainder, consisting of real property taxes, would flow to the C Operating Expenses As the Honolulu Waterfront develops, certain improvements wil tenance. The facilities requiring the most maintenance would incl public promenades, an amphitheater and public rights-of-way. F of this analysis, responsibility for maintenance of these facilities be that of the City and County of Honolulu. 4-56 The operating expenses associated with these facilities are a function of their area or size. Most of the facilities which require maintenance are scheduled for completion by 1995., The annual operating expenses for the facilities are estimated to range from $50 per seat for the amphitheater to $4,500 per acre for the parks, as shown below: ESTIMATED ANNUAL OPERATING EXPENSE. (in 1989 dollars) Expense Use Unit per unit Parks acre $4,500 Amphitheater' seat 50 Promenades foot 1 Parking areas space 2.4 Public rights- of- way mile 38,000 Expenses associated,w ith police and fire protection and State and County ad- ministration will also increase over the projection period. However, these expen- ses would result from population growth which is anticipated to occur regard- less of the redevelopment in the study area. Therefore, these expenses have been excluded. The total annual operating expense could increase from $930,000 to,$1.55 mil- lion over the projection period, based on the per unit operational expense es- timates and the proposed development schedule. 4-57 Net Revenue Based on the preceding analysis, the projected revenue to the St ty would exceed the associated expenses and result in a plan that sustaining over its economic life. After operating expenses, the net revenue to the County is projec from nearly $4.5 million for the five years ending 1995 to $32.8 mil years ending 2010. Thereafter, the net revenues would averag million per year over the project's remaining economic life. Similarly,* the net revenue to the State resulting from development improvements is projected to total nearly $43.6 million for the fiv 1995, and would be expected to increase to a total of $126.9 mil years ending 2010. Thereafter, the net revenue could average a lion per year. 4.5.4 Payback Period Capital expenditures, excluding those associated with the maritim land Bypass Corridor, are projected at about $409 million. OncE the net revenue from master plan improvements could pay ba6 vestment within the first 20 to 25 years of the redevelopment pro 4-58 I I I I .I I I I i I I A 1 0 1- 5.0 MANAGEMENT I @ @ - ,I II The Honolulu Waterfront Master Plan envisions a diversity of public and private projects and improvements during the next twenty years and be yond. The Plan provides a framework for reinforcing and expanding waterfront uses to create an environment that is at once a dynamic international port and an exciting gathering place for residents and visitors alike. Implementation of this vision will require a tremendous investment of time, ener- gy, expertise, and dollars. The ultimate success of the Plan will also hinge on the governmental agency or agencies that are charged with the design, financ- ing, construction, and management of major Waterfront projects and systems. Thus, the implementation/management framework for the Waterfront is one of the most critical issues to be addressed by the planning team. 5.1 PROBLEM STATEMENT AND PURPOSE OF THE MANAGEMENT FRAMEWORK The purpose of the management framework is to realize the development and use potential of the Honolulu Waterfront. Because management is--and should be--closely tied to the Master Plan,, it is helpful to review key characteristics of the plan itself: systems orientation, comprehensive, clear activity focus, consen- sus-based action, visionary, State initiatives with private-sector participation. Taken as a whole, the comprehensive master planning approach represents a new way of looking at the Waterfront. The question arises, then, whether im- plementation of the Plan requires a new type of management framework. Systems orientation. The Master Plan covers a large area, almost 1,550 acres. Within this area are a number of critical systems, such as harbor 5-1 operations, circulation, and public facilities. They are ca cause the various components are interrelated; changes affect the operations or condition of other areas. Implementation need: Planning and managemen broad enough to encompass meaningful tracts withi wide actions and consequences may be understood *Comprehensive. The Plan's wide geographic scope comprehensive plan for the entire Waterfront. The fir Honolulu, the Master Plan is a departure from earlier pie efforts. Implementation need: The flexibility provided by c( ning and management areas is important. Since mo tate is already developed, future, higher use of the V quire relocation and rearrangement of uses, including agency jurisdictional lines, as presently drawn. Clear activity focus. The gradual progression of the PI long-term proposals shows the emergence of three prim redevelopment from Kewalo Basin to Chinatown, industr Pier 23 to Kapalama, and marine recreational at Keehi L Implementation need: Given the underlying directi rationalize uses along the Waterfront, the manage should be equally clear in identifying the entities that these areas, i.e., to minimize administrative overlap. Public participation. The Plan described in Chapter 3 w ideas of many people in government, business, and t large. The Plan's openness to public input continues wit of this document and legislative deliberation. Implementation need: Public participation is not o receiving ideas and feedback, it is also a process.for a 5-2 sus on a plan of action. Broad-based consensus provides the man- date for relevant agencies to implement the Plan. o Visionary. In recent years, the value of the Honolulu Waterfront as a regional resource has become apparent and demand to use this area has surfaced from many sectors of the community. The Plan reconciles a variety of uses. It does so under an umbrella of common themes that provide strong images, such as "working waterfront," "lei of green,"and "people-gathering place." Images are rallying points for diverse groups and a vision can sustain a development process over many years. Implementation need: The management equivalents are organiza- tional goals and priorities. Clear foci help agencies to harness syner- gistic effects among discrete projects, creating a whole that is greater than the separate components. o State initiatives with private-sector participation. The Plan documents the extent of existing State presence in the Waterfront area as the dominant landowner and operator of public facilities. Implementation need: The Plan calls for increased State initiatives through investment in infrastructure and additional public facilities. These improvements are expected to enhance the market for redevelopment and generally will precede private investment. Never- theless, active private-sector participation is one of the ultimate objec- tives of the Master Plan. The financial program outlined in Chapter 5 begins to clarify the roles of the public and private sectors, balancing their respective strengths: government's commitment to the public trust and ability to shoulder large risks versus business's ability to respond quickly and innovatively to the market. 5.2 METHODOLOGY The discussion in this chapter provides the following: (1) identification of management functions that are necessary to implement the Plan and are, there- fore, criteria for evaluating alternative management systems, (2) preliminary find- 5-3 ings on existing local agencies and Mainland models, (3 management frameworks, and (4) the recommended framew( The present discussion distinguishes between Plan implement implementation, and focuses on the former. The difference bet of scale: Plan implementation refers to the entire area covere Waterfront Master Plan, whereas project implementation refer such as subareas or even parcels within a subarea. It also management as a two-tiered process. The first tier establishe sibilities for initiating, administrating, and coordinating progress second tier would manage project-level development., B projects are still conceptual, detailed project management sch ther study. The management study consisted of the following steps: * Review existing agencies that have jurisdiction in the wa *Identify future management needs arising from the Ho Master Plan. Evaluate local public agencies in terms of their institution dertake new responsibilities. *Evaluate Mainland models in terms of their respective their suitability to the Honolulu context. *Formulate distinct implementation strategies/manage which combine relevant local and Mainland component 9 Consider the advantages and disadvantages of each alt * Recommend a management framework. 5-4 5.3 OVERALL PLAN MANAGEMENT REQUIREMENTS A workable management framework for the Honolulu Waterfront will have to coordinate many complex development components. It should be noted that the most appropriate management framework is not necessarily a single or- ganization that would provide all of the management functions; it may be several organizations working together. The components of Plan implementation are expressed in the following list of management objectives. * Promote and carry out both long- and short-term plans for the waters and lands of the Honolulu Waterfront. e Develop and ad ,here to a series of guiding principles that provide long-term continuity. e Allow flexibility in project execution to accommodate changes in political, social, financial, and environmental circumstances. *Establish a mechanism for mediating conflicts in land use patterns and equity issues. Set guidelines for resolving "best use" criteria with water-dependent and comprehensive planning needs. *Communicate information to and from the users and regulators of the Waterfront area. Focus attention on public access and public trust issues. *Support channels through which constituencies with Waterfront interests can be represented, particularly those that are fragmented and unor- ganized. Encourage inter-governmental and inter-agency exchange of ideas and is- sues about the Waterfront as they affect their respective jurisdictions. 5-5 * Design and develop public facilities in the Waterfront a quality components of the urban environment. o Maritime Uses. Encourage the productivity and c maritime activities, including the expansion or modificati services to meet changes in cargo traffic and new ship * Urban Commercial Uses. Facilitate the development of ing activities, providing appropriate incentives so that b private sectors gain equitable returns on their investme o Recreational Uses. Expedite activities to upgrade and cess to and recreational facilities in the Waterfront area 5.4 THE EXISTING MANAGEMENT FRAMEWOF The starting point for determining a suitable management fram tify public entities and their responsibilities in the Waterfront a cies are listed below and described more fully in Section 2.5. State Agencies Aloha Tower Development Corporation (ATDC)--aftached to Department of Accounting and General Services Department of Agriculture Department of Business and Economic Development Foreign Trade Zone Department of Land and Natural Resources (DLNR) Aquatic Resources Division Land Management Division Office of Conservation and Environmental Affairs State Parks Division 5-6 Department of Transportation (DOT) Harbors Division Airports Division Highways Division Governor's Office of State Planning (OSP) Hawaii Community Development Authority (HC DA) --attached to DBED University of Hawaii City and County Agencies Board of Water Supply Department of Public Works Department of Parks and Recreation Federal Agencies Environmental Protection Agency Federal Aviation Administration (FAA) Fish and Wildlife Service General Services Administration National Oceanographic and Atmospheric Administration U.S. Army Corps of Engineers U.S. Coast Guard U.S. Customs Service U.S. Immigration Service U.S.- Military Sealift Command Figure 21 shows the pattern of land ownership and management responsibility involving four major State agencies: DOT-Harbors, DLNR, HCDA, and ATDC. One of the shortcomings of the existing management framework is the division between ownership on one hand, and authority to plan and develop on the other 5-7 @Lj .......... 5-8 hl FIGURE: 21 LAND OWNERSHIP AND jURISDICTION Feet ATDC Expanded Area 0 800 1600 ,7@1 DOT HARBORS DLNR OTHER PUBLIC & PRIVATE H DA xpanded Are@,r J L Note: HCDA & ATDC expanded areas @pproved by the State Legislature in 1988 4@ On 01111111 ATDC JL . ....... T HONOLULU WATERFRONT HCDA MASTER PLAN HCDA Expanded Area January 1989 5-9 hand. Overlapping jurisdictions are notable in the Kewalo Bas sula, and Aloha Tower areas. A further complication, albE resulted from HCDA and ATDC boundary expansions appr Legislature. Although the boundary for HCDA's.Makai eastward to include Kewalo Basin, the official Makai Area F modified as yet. Therefore, development controls are continC County development plan and zoning ordinances. Similarly, was extended westward to Pier 23; however, the Administrati ning guidelines have not been amended to cover this area. It should be noted that shared jurisdiction is not necessarily an tion. For example, Kewalo Basin will continue to be a me operated by DOT. At the same time, HCDA should provide on the future direction of the area and how Kewalo Basir development. Planning authority and operational authority car lel planes, provided there are adequate opportunities for coo Shared jurisdiction becomes more problematic, however, v enters, such as a private developer. A 1987 report on the Aloha Tower prepared by the Legislative Auditor cited the in provide clear title to the developer as one factor that stymiec type of situationvill have to be confronted under the Waterfrc two reasons. First, jurisdictional overlap occurs precisely in t nated for urban redevelopment, including targeted priority ar Master Plan relies on private developers for most new urban requiring some form of leasehold land conveyance. Reso redundancy will require careful case-by-case analysis basdd operational and development interests in the area. The following discussion briefly reviews the potential for cert cies to undertake new or modified responsibilities resulting fro This assessment is based on their institutional capacity, inclu legislated powers and authority, staff expertise and experience and practices, and public expectations. 5-10 Ha waii Community Development Authority (HCDA) HCDA has an Executive Director and a full-time staff who oversee the implemen- tation of the Kakaako Community Development District. Ongoing functions and responsibilities include enforcement of development district standards, super- vision of infrastructure development, coordination of legislative programs and rules, and public information activities. The agency has the authority to issue bonds for construction and acquisition of any public facility. It may also exercise the power of eminent domain. To fulfill its mission of promoting, and encouraging private reinvestment in Kakaako, HCDA has adopted a master plan which allows property to be redeveloped for more intensive uses and has enhanced real estate values throughout the district by improving public facilities and utility systems. Through the regulatory process, HCDA has successfully negotiated concessions from private developers that have produced public benefits. To date, HCDA has not had an opportunity to package redevelopment parcels or engage in competitive Req uest-for- Proposal (RFP) processes. Because much of the land in the Waterfront area is publicly owned, HCDA may have significant future oppor- tunities to develop this more active role. HCDA has prepared a Makai Area Plan for a portion of the lands and Waters within its jurisdiction makai of Ala Moana Boulevard. The original plan is now in- complete because of legislative action approving HCDA boundary expansion in 1987. For the most part, redevelopment activities mauka of Ala Moana Boulevard have been the focus of HCDA's attention and are likely to require the continued effort of existing staff for several more years. Therefore, additional personnel would be required to fully meet the planning and management needs of the makai area.Aloha Tower Development Corporation (ATDC) In 1988, the Governor appointed an executi ve officer for the agency. Also in 1988, a public hearing was convened to review rule changes that would allow ATDC to solicit new development proposals. 5-11 in the past, legislative consideration has been given to con jurisdiction with that of HCDA. The missions of both public co urban redevelopment and both are administratively attached of Business and Economic Development. Therefore, combi result in management efficiencies and economies of scale. Department of Transportation, Harbors Division Departmental policy has focused on maintaining a viable v meeting the needs of industrial, maritime operations and clie has co-existed with a custodial view of real estate managem lesser priority for developing 'complementary commercia waterfront that would enhance revenues and increase put water's edge. There has been some indication from Honolulu Harbor users tl@ and more active program is needed for the maintenance an various maritime facilities. This basic need should be addres recommendations for changes and improvements in the management framework. Like other State agencies, the Harbors Division acquires Department of Land and Natural Resources by Executive Ord the transfer of rights. This action is preceded by a request whi amount, location, and purposes for which land is required. Tl@ for properties held by DOT-Harbors is, of course, related to t vices; nevertheless, there is some flexibility in legal interpretati access to an array of commercial, office, industrial, and recre possibilities. DOT- Harbors' tendency to narrowly interpret th that can be developed signals the need to enhance staff ca management and/or development were to become a hig priority. A recent exception is the agency's sponsorship of Recreation Plan for a mixed-use recreation area centere 5-12 facilities. Actual implementation of this plan, however, may require expertise that is not fully available in the organization. Department of Land and Natural Resources (DLNR) DLNR's major roles as controller and regulator of public lands and water resour- ces would generally create a conflict of interest should it assume the role of land developer, or even a facilitator of private development.. 'New leadership initia- tives, mandates, and personnel would be required to expand DLNR's scope of activities. Moreover, a development-oriented direction may be contrary to the powers and duties historically ascribed to an agency that is charged-with con- serving and managing natural resources on the State's behalf. 5.5 TYPOLOGY OF MANAGEMENT STRUCTURES wnrH MAINLAND MODELS Several types of management structures currently operate in waterfront areas across North America. These structures are described and one or more work- ing models are cited from cities elsewhere. Port Authority Since the turn of the century, public port authorities have become an important part of the port industry. Most public port authorities derive their powers and obligations directly or indirectly from state law. In some states,.port authorities operate directly under state statute as state-level departments or as special dis- tricts. Others are controlled indirectly by states, with powers passed from the state to municipalities or counties, which, in turn, create the port authority. The types of port authorities vary among the states. Most ports operate within a legislatively defined local region. California ports, with few exceptions, are in- dependent agencies with powers granted by city government. In Washington and Oregon, port authorities are created under state enabling statutes, but operate at the local level. The ports of Texas derive their authority from the state, 5-13 but operate as county navigation districts. Many East Coast st statewide port authority. Despite differences in organizational bling legislation in the various states have several features in � The legislation creates a public role and responsibilit develop waterborne commerce. � A port commission is established to exercise that resp � The port authority is authorized to develop, build, fina facilities, and services necessary to the public port ent jectives. The importance of port authorities in waterfront redevelopme recent years because they have expanded their jurisdictions t outside the traditional waterborne transportation emphasis t bridges, and office buildings. These investments often endo with major financial resources. Although fiscally autonomous port authorities, such as the N described below, appear attractive to Hawaii, it is important t ferences between the Mainland and Hawaii. Many ports on control vast acreages along coastal and riverine waterfront these tidelands decades ago, at a time when the land was stil much of it considered a management burden. Savvy port m to develop lands gradually as market demand emerged. revenues, further investments were possible so that, today themselves in a cash-rich position able to fund non-maritim ments. In contrast, the Honolulu Waterfront is almost complet there is growing competition for future use of the limited land being able to build fiscal strength over a period of time, a Ha if one is established, would be expected to fund immediately a of capital improvements for harbor facilities and urban infrast al claims on Honolulu Harbor revenues are being made by ot 5-14 ports throughout the state that, nevertheless, require facility upgrade and expan- sion. Port of Los Angeles. A tidelands grant from the State of California has enabled the City to foster port development, which is managed through the City's Har- bor Department. A five-member Board of Harbor Commissioners, appointed by the mayor with City Council approval, oversees port development and opera- tions. The port operates on its own revenues and, to date, has not required any tax revenues. Po *rt of Long Beach. Located adjacent to the Port of Los Angeles, the Port of Long Beach is an autonomous public entity established under the City Charter. The City retains the right to approve the Port's budget. The Port is governed by a five-member Board of Harbor Commissioners appointed by the City Manager. Port of Oakland. The. Port of Oakland is a public enterprise established by the City of Oakland and is a component unit of the City. Operations include the Port of Oakland marine terminal facilities, the Oakland International Airport, and com- mercial property rentals. The Port is under the control of a seven-member Board of Port Commissioners and is administered by an Executive Director. The Port prepares and controls its own budget, administers and controls its fiscal ac- tivities, and is responsible for all Port construction and operations. Port Authority of New York and New Jersey. The Port Authority of New York and New Jersey, a public corporation, was established by an interstate compact approved by the U.S. Congress in 1921. Its jurisdiction covers an area within approximately 25 miles of the Statue of Liberty and includes 17 county govern- ments, 234 municipal governments, and more than 200 special-purpose authorities and commissions. The Port Authority Commissioners, six from each state, are appointed, by the governors of New York and New Jersey and ap- proved by their respective state legislatures. Massachusetts Port Authority (Massport). Massport is an independent spe- cial-purpose governmental unit, established by the Commonwealth of Mas- 5-15 sachusetts in 1956. The port authority has management c transfer throughout Boston Harbor. Massport also manages L al Airport, operates several bridges, and is a major landowner state enabling charter granted Massport broad government bonding authority, land use controls, and power to establish L Superagency Given the complexity of management mechanisms governing another proposal is to establish a single agency or supera prehensive authority to plan, finance, develop, and operate tivities. The superagency is a way to rationalize the overla geographical jurisdictions of agencies with interest in the wa whose fragmented power is an obstacle to the timely transition of abandoned or underutilized harbor areas. The agency ma poration outside of direct governmental control or it may be a p departmental status, although the breadth of its powers is likely measure of de facto autonomy. Another characteristic of the superagency is its active involve retail, commercial, and recreational uses and general public ac tionally, have been viewed as inappropriate in port areas. L thought was given to varied uses of downtown waterfronts on and coastal manufacturing had lost their viability in these loca San Diego. The San Diego Unified Port District is a public co by an act of the California legislature in 1962 and approved by of Coronado, Chula Vista, Imperial Beach, National City, an Port is governed by seven, non-salaried commissioners. Th appointed by the city councils of each of the five participating San Diego city council appoints three commissioners and eac councils appoints one commissioner each. Policies by v operates are established by the Board of Port Commissione tivities are supervised by the Port Director and carried out by 5-16 The District was established to manage the harbor, operate the international air- port at Lindbergh Field, and administer the public tidelands surrounding San Diego Bay, except for Federal properties. Strictly speaking, the District is another port authority, but given the breadth of its powers, it lies at one end of the spectrum of port authorities whose powers range from conservative to liberal. In San Diego's case, explicit authority has been granted to promote and develop commerce and recreation, as well as the more traditional port domains of naviga- tion and fisheries. Public Development Agency Public development agencies or corporations are created as sub-units of state or local governments to manage development within a designated area. The goals of the agency may include improvement ofsocial and economic condi- tions, preserving the character of historic areas, or improving the business climate for new private investment. Within its delineated boundaries, the agen- cy may retain governmental powers, such as eminent domain, urban renewal authority, taxation power, and controls over planning, zoning, and urban design. Furthermore, the public development agency may be used to facilitate land ac- quisition and to make loans of public funds, thus circumventing statutory or charter restrictions. Seattle. Pike Place Market, a 22-acre commercial area of Seattle was restored through an ambitious program administered by the Department of Community Development through its Pike Project Office. The Office maintained a tradition- al urban renewal posture, but worked closely with the Pike Place Market Preser- vation and Development Authority, a non-profit development corporation (see below) which had the authority to operate more creatively. Partly as a result of the its success with Pike Place Market, the Department of Community Develop- ment has developed a major Harborfront Public Improvement Plan which in- cludes efforts to bridge the Market and the Harborfront. Boston. When the Boston Redevelopment Agency (BRA), succeeded the City's Planning Board, it inherited an emerging waterfront redevelopment program, 5-17 which later became known as "The Hundred-Acre Project." BRA's efforts is the renovation and reuse of Franeuil Hall an and the wharf-by-wharf redevelopment of the adjacent waterf its current projects is redevelopment of the Charlestown Nav@ cal strength has grown steadily as revenues from a stri redevelopment projects are plowed back into a revolving fun New York. Battery Park City Authority (BPCA) is a public cc by the New York State Legislature in 1968 to develop Battery residential and commercial community. The 92-acre landfill BPCA. It is located at the tip of lower Manhattan along the HL adjacent to the Wall Street Financial District. Quasi-public (Non-prof it) Development Corporati The quasi-public organization has proven successful where t.r forts to guide development have not worked satisfactorily. It is to create a flexible organization that operates separat redevelopment agency, but under the general guidance of I Private corporation status allows a management group to ass third-party role in negotiations between local officials and de% cases, corporations have assumed equity positions, for exan venture development. Development corporations must register with a state corporat compliance with legal incorporation requirements. Non-profit E tax benefits. After the corporation is approved, it may execut local government in which planning and management rE defined. The degree of autonomy granted the private cor depending on the nature of the project and the state's enabI quently, the corporation will assume all responsibilities that a formed by a local community development agency. 5-18 Toronto. Harbourfront is a 92-acre, mixed-use redevelopment project on the central Toronto waterfront. Public and private sector investments are coor- dinated by the Harbourfront Corporation. The federal government owns shares in the corporation which has a local nine-member Board of Directors. The Cor- poration received start-up funds from the federal government, but is currently self-sufficient. Baltimore. Charles Center-inner Harbor Management, Inc. is a non-profit, no- stock corporation that is under contract with the City to manage the Inner Har- bor Plan. Baltimore's Inner Harbor is a combination of independently conceived attractions tied together by the waterfront and common pedestrian circulation systems. Waterfront Management Council (Commission) Waterfront councils are special-purpose governmental bodies formed specifical- ly for the purpose of dealing with coastal areas. They may be regional, encom- passing multi-county or multi-city areas, or they may be limited to a single municipality or district. State enabling legislation is usually required. Waterfront councils are empowered to control land use and development within their zones of jurisdiction. Land use planning studies, environmental assess- ments, shoreline access plans, and waterfront development proposals are ex- amples of planning functions frequently assumed by these councils. They may also assume a regulatory function as part of their management responsibilities, usually by a permit that is required before a landowner can make significant al- terations to shoreline property. This permit is in addition to other development approvals, thus adding another layer of bureaucracy. Nevertheless, some coun- cils have become successful forums for mixing representatives from all levels of government, private businesses, and citizens groups. San Francisc 'o. The San Francisco Bay Conservation and Development Com- mission (BCDC) is a regional waterfront commission. It was established by the California legislature in 1965 to regulate uses along a 100-toot band of shoreline 5-19 surrounding San Francisco Bay. Following formal approval of was given permanent status in 1969. 5.6 ALTERNATIVE MANAGEMENT FRAMEWORH To simplify the analysis, the planning team looked at three primE harbor maritime development and operations, (2) urban and rec ment and operations, and (3) planning and coordination. management frameworks exa *mine different relationships amo ments and their overall relationship to the Master Plan. This breakdown of functions recognizes differences in the ma of maritime versus non-maritime land uses and facilities that ma) as follows. Harbor Maritime Development and Operations Expertise: Shipping technology, harbor administration, marit ning (space allocation and layout) User groups: Limited number of fairly well-defined clients, ong with this constituency, relationship largely between organized Financing: DOT-Harbors manages its own special funds, an fees to fund maintenance programs and some harbor facility restructuring opportunities include the possibility of expanding t recovering revenues from urban redevelopment sites. Urban (and. Recreation) Development and Operati Expertise: Real estate development, "people-oriented" urban User groups: The general public (individually and collectivel groups--not all of whom are organized and have formal spoke 5-20 Financing: Private sector investment (direct and through exactions), public in- centives (development bonuses), bond revenues and loans, lease revenues, tax revenues, special assessment districts. Possible need for early, strategic invest- ments, for example, a public open space program to create initial attraction and pedestrian circulation system to improve access. A characteristic that often dis- tinguishes recreation from other types of urban land uses is that it generates no revenues. Four different management frameworks are outlined below to show how the major actors would relate to each other and to the Master Plan. Alternative Framework 1: Superagency Key Characteristics: * Consolidated waterfront redevelopment area or harbor district HA * Single organization operating tinder a broad mandate Description: The superagency would be solely responsible for implementing the recommen- dations of the Master Plan and for reviewing and updating the Plan on aregular basis. Its two primary divisions would be: (1) harbor operations and (2) proper- ty management and development. Financial and operational targets and proce- dures should be established at the division level; however, the planning staff would coordinate major projects for facility and land use development. The agency would be accountable to the governor and legislature through a Board of Commissioners which sets overall policy and direction. Financing. The proposed superagency would be set up as a financially self- sustaining entity. Revenues would co-mingle in a common fund to support the agency's operating and capital expenses. It is recognized that the agency would require substantial start-up funds (or annual State assistance) until investments 5-21 generate revenues sufficient to cover initial expenses and e revolving fund for further public improvements. Mainland Models: The San Diego Unified Port District has a mandate which co commerce, fisheries, and recreation." Among major U.S. port portunities in San Diego are unsurpassed. The specific charge ture to promote and protect recreational interests is seen as a Diego's Embarcadero district, like the Honolulu Waterfront, is an public recreation areas. Active industrial and shipping uses within this stretch, yet the various uses have been accommod The Port District's property management is a successful enterp land arrangement allow the public to recapture dollars fro profitability of private businesses. As the leases expire, the la reassessed. Although port authorities in other cities are becoming more aggr ing their responsibilities, particularly in the area of property m still share jurisdiction for the waterfront with other public sector ample, Massport must contend with the Boston Redevelopmen the Port Authority of New York and New Jersey has New York C of Ports and Terminals. Relationship with Existing Local Agencies: Establishment of a superagency would require the creation of tity which could be accomplished in one of two ways: Consolidation of jurisdiction for land management over th its assignment to a single agency. State agencies that have major property management r the Waterfront area include DOT-Harbors, DLNR, ATDC, though development in the mauka and makai areas of Ka 5-22 coordinated, the former has unique development needs and is correctly excluded from the Waterfront Master Plan area. Any territorial consolida- tion should not absorb all of HCDA's district, but only the makai portion. On the other hand, all of DOT-Harbors' Oahu jurisdiction should be folded into the superagency. This would allow more efficient management of har- bor operations islandwide, including reassignment of resources and func- tions, and also would provide a larger revenue base that can support smaller operations. The superagency may also have jurisdiction over neighbor island ports and, therefore, acquire the authority to develop non-maritime uses in these locations as well. Alternatively, separate State-charter ed port authorities may be established at the county level. Expansion of the authority granted to one of the agencies. Given its dominant presence on the Honolulu Waterfront and the techni- cal complexities involved in running port operations, DOT7Harbors would be most suitable for assuming broader responsibilities. In-house proper- ty management expertise would have to be supplemented, although con- tracting with third-party developers is an option for actual project execu- tion. Advantages: * A single set of priorities for the Waterfront area, thereby reducing jurisdic- tional overlaps. * High visibility, demonstrating strong State support for the Waterfront. 9 Access to a potentially larger pool of financial resources and the ability to allocate resources internally from high revenue-geherating activities to those that provide less income, but are nonetheless important to the public interest. 5-23 Disadvantages: *Political implications of creating a powerful new governm *Potential difficulties in resolving conflicts among different superagency's mission. Potential for lost development opportunities if only one ag of implementing the Waterfront Master Plan. The pres waterfront-related agencies may increase the number o thus, increase the probability of producing winning proje Alternative Framework 2: Lead Urban Waterfront E PLAN Agency 000 Key Characteristics: Central planning agency to oversee the Waterfront Mast( HARBOR URBAN Establishment of a "harbor district" and an "urban waterfr Expansion of the port operator's property management au development of non-maritime facilities. Regulatory authority over activities in the harbor district Active implementation of redevelopment in the urban v@ through a separate development arm, possibly a non-pr Description: The central planning agency would have responsibility for overal tation, as well as periodical review and update of the Plan. It V the activities of the two main actors in the waterfront area: a p a non-profit development corporation. However, a different tyr is maintained with each of them. 5-24 The port operator would have jurisdiction over all maritime and non-maritime ac- tivities within the designated harbor district, the area used for waterborne transportation and commerce. Major facility development within the harbor dis- trict would require a permit from the planning agency to ensure compliance with the Master Plan. On the other hand, for the area planned primarily for urban redevelopment (namely Kewalo Basin to Chinatown), the planning agency's role would extend beyond regulatory authority to active promotion, design, and development. Al- though the planning agency retains the prerogative to control policy, substantial public powers would be conveyed to a non-profit development corporation. Modeled after the Charles Center-Inner Harbor Management organization in Bal- timore, this corporation would have the flexibility of a private business. Its func- tions would include: coordination of activities among public agencies, design and construction of public improvements, and recruitment of developers. for specific parcels. Financing. This management framework is amenable to any one of several op- tions for distributing net revenues: (1) return of all proceeds to the State's General Fund, (2) pooling into a common fund for all Waterfront development, (3) channeling into a Harbors Fund in which monies could be spent on maritime facilities statewide, or (4) separating into discrete funds for harbors, recreation, and urban redevelopment--each with its own budgetary control. In any of these cases, a key issue is the provision of replacement port facilities due to displace- ment by non-maritime uses. Mainland Models: Among successful mixed-use waterfront developments on the Mainland, it is more common to find examples in.which the focus is limited to urban uses, than those integrating urban and industrial port uses. The sampling below includes different types of agencies with different development strategies. 5-25 Baltimore's Charles Center-Inner Harbor Management, Inc. is o much like a private enterprise, reflecting its origins as an initi business community. The Corporation's "neutral" stance vis-a its ties to the private sector have been important factors in attra Under its contractual arrangement, the Corporation is able to c tial negotiations with developers interested in buying or leasing it can negotiate joint public-private ventures between the developers. Safeguards to protect the public interest includ Corporation's books. and a requirement to share any windfal public sector. The Corporation operates from a revolving fu which are reimbursed by the City monthly. These costs have a than one percent of private investment. Battery Park City Authority has received considerable acclaim f development strategy which includes fairly rigid guidelines restr shape, and appearance of buildings. At the same time, BP courage diversity by packaging relatively small parcels for whic competitively. BPCA has facilitated the development procesE single, generic Environmental Impact Statement for the entire formulating a common master lease. Harbourfront Corporation in Toronto, Canada is a creature of th ment. At 92 acres, Harbourfront is almost identical in size to B Yet in other respects, the two projects are very different. Where detailed plan specifications, Harbourfront Corporation worked flexible guiding principles. In part, the Corporation's strategy soft and uncertain market for waterfront development in Toront of $27.5 million was approximately one-tenth the size of BPCA',, Nevertheless the Corporation used this money to good purp modest facility and landscaping improvements and cultural p would attract the public to the site at minimal cost. This strate@ ficient private investment so that the Corporation was able to b cient within its target of seven years. 5-26 The Pike Project Office, administratively situated in the Seattle Department of Community Development, acted on behalf of the City to implement the 1974 amended Pike Place Market Urban Renewal Plan. The Office performed tradi- tional redevelopment tasks, including property acquisition, relocation of resi- dents and commercial tenants, provision of capital improvements, property dis- position, rehabilitation, and grant management. Because successful implemen- tation of the plan required that key properties remain in public control, the Pike Place Market Preservation and Development Authority, a non-profit public cor- poration, was created to develop, operate, and manage major commercial and residential properties. PDA and the City worked closely in the early stages of the Market's rehabilitation; however, PDA eventually became the central develop- merit vehicle. This experience has shown the effectiveness of two organizations working in tandem: the City focusing on strategic planning and PDA assuming day-to-day implementation responsibilities. Relationship to Existing Local Agencies: Of the existing agencies, the Office of State Planning is most appropriately posi- tioned to take on the function of the central waterfront planning coordinator. Within OSP, a separate Waterfront Project unit could serve to distinguish this function. Another potential candidate for the planning coordination role is the Department of Business and Economic Development, the parent agency of HCDA and ATDC. DBED is less suitable to serve as a regulator of maritime facility development, although there is compatibility between DBED and the proposed port operator in the area of trade promotion. Creation of a more diversified port operator would require expanding the powers of DOT-Harbors, whether it remains a division of DOT or is established as a separate entity. Creation of a lead urban waterfront development agency could be accomplished by consolidating ATDC and the makai portion of HCDA under the banner of a new entity. 5-27 Advantages: � The planning agency would have the ability to encoura development, rather than being dependent on the initi ganizations. � The planning agency would also be a clear intermedian flicts between public entities, between government and pr and between regulators and users. *Autonomy of port operations is maximized, while provid for the orderly transition of land uses. � As in the case of Charles Center-inner Harbor Managem tract could be renewed yearly, thus ensuring that the fu are tailored to the needs of plan implementation, rather manent ones that have grown obsolete. � A non-profit corporation allows the possibility of employi of development tools than otherwise might be available cy. � A development. corporation organized along the lines of ture may increase the confidence of potential financial s Disadvantages: Even with strong public support for urban renewal, suc ment is still dependent on larger market forces. Exr development agency and incentives for optimal perform a realistic assessment of local economic conditions. Th tion of a "lead" agency in and of itself would not eliminate dinate the efforts of other relevant agencies. *Expectations for more autonomous harbor managemen authority, must be evaluated against the absence of a 5-28 reserves to fund large front-end costs for port improvements and urban infrastructure. Alternative Framework 3: Waterfront Commission Key Characteristics: � Representative body to coordinate the Waterfront Master Plan � Regulatory process Description: HARB The State Legislature would create a waterfront commission with representation from different state, local, and federal agencies, organizations with interest in the waterfront, and the general public. The Legislature would also adopt formally the Waterfront Plan. The Commission's tasks would include: (1) administration of a permit process for shoreline development, (2) periodic updating of the Master Plan, and (3) development of more detailed plans for special areas, as deemed appropriate. Financing. The financial arrangement is not a distinguishing characteristic of this management model. The Commission itself would not be involved in project financing. Mainland Model: The San Francisco Bay.Conservation and Development Commission (BCDC) is a regional waterfront commission whose particular mandates are embodied in the Bay Plan. BCDC's primary goals are to protect the natural resources of waterfront areas, to assure that developers provide maximum feasible public ac- HARB cess, and to reserve shoreline sites for water-oriented priority land uses, such as ports, water-related industries, airports, wildlife refuges, and water-related recreation. It maintains substantial control over a 100-foot band of shoreline covering 9 counties and 36 cities. H CAR 8 CHA R B 5-29 Relationship to Existing Local Agencies: No significant change is proposed for the internal structures cies; however, major developments in the Waterfront area woul the newly created Commission to ensure compliance with the The appointees to this special-purpose body would represent interests (San Francisco's BCDC has 27 members). The day of the Commission would be handled by one of several groupr Provision could be made for the Commission to have it staff Another variation is for staff support to be provided by an One possibility is OSP, in which case, the Commission visory and decision-making arm of the Waterfront Proje( vice could also be provided by the Coastal Zone Mana OSP, in which case, the Commission's permit could be the CZM consistency review and findings process for pr the Waterfront area. A third, more remote candidate, is Conservation and Environmental Affairs in DLNR to prov Advantages: Collective representation in a single forum by a wide rang provide an opportunity to discuss and consider key issu waterfront. The Commission could be an effective vehicle for raisin for the waterfront by disseminating information about dev Disadvantages: A regulatory mechanism is more effective for controlling d actively promoting it. For example, while many people h decline of San Francisco's working waterfront, BCDC ca incentives to reverse this trend. 5-30 The Waterfront development permit adds another layer of "red tape." Alternative Framework 4: Informal Waterfront Coordination Key Characteristics: o Minimal change in the relationship among existing waterfront agencies HARBOR o Changes in enabling legislation to expand the powers of core waterfront agencies sufficient to implement their respective portions of the Waterfront Master Plan. Description: This framework is based on "business as usual," although agency mandates could be modified officially to require capital programming consistent with the Plan. It is likely, however, that successful implementation of the Plan under this scenario will depend on ad hoc channels: crusading efforts of particular govern- ment and business leaders, informal coordination among bureaucrats, monitor- ing by the media, and the urging of citizens. Financing. The fiscal arrang Iement would not differ significantly from what ex- ists at present. However, provision could be made for transfer of funds from urban redevelopment to port improvements. For example, displacement of cargo shipping facilities from Fort Armstrong could be tied to construction of re- placement facilities and/or lease payments to the Harbors Fund. Mainland Models: Some of the most active waterfronts, from both maritime and non-maritime perspectives, are located in cities characterized by fragmented authority and overlapping jurisdictions. Although they lack overarching authority, individual agencies that incrementally have revitalized their waterfronts. These cities in- clude: 5-31 * Baltimore: Baltimore Port Administration, City of Baltimo Housing and Community Development/Charles Cen Management, Inc. * Boston: Massport, Boston Redevelopment Authority e New York City: Port Authority of New York and New Je York Department of Ports and Terminals, City of Ne Economic Development for South Street Seaport District, Authority * Seattle: Port of Seattle, City of Seattle Department of Con ment, Pike Place Market Preservation and Development Relat.ionship to Existing Local Agencies: The integrity of existing agencies would not be altered; howev to undertake new responsibilities would be expanded as nee the Master Plan. Advantages: � Agencies are empowered to be more effective within the activity. � Availability of a common plan provides direction for in-h forts. The various waterfront constituencies will have access to ing their specific interests, so that compromise and ne the public, political arena. Disadvantage: No agency with responsibility for overseeing the "big pict Plan; all actions are voluntary. 5-32 5.7 RECOMMENDED FRAMEWORK No single framework, as constructed above, was felt to provide a satisfactory means of implementing the Honolulu Waterfront Master Plan. Discussions with public officials and comments received from businesses, community groups, and members of the general public pointed to a modified management framework which draws on various elements from the four models, but is also more close- ly matched to the local context. The recommended framework, therefore, is a synthesis based on particular strengths in each of several agencies and the col- lective strength that a diversity of organizational structures and priorities can provide. Plan Implementation and Coordination through a Waterfront Advisory Committee Key Characteristics: e Updates of the Waterfront Master Plan and overall guidance and coordina- tion to be provided by a policy-making Waterfront Advisory Committee comprised of key agency directors. 0 Actual implementation to be carried out by line departments and special State agencies and authorities that may contract with one or more private, non-profit development corporations or project management firms. Description: The Waterfront Advisory Committee membership would consist of the Directors of the Off ice of State Planning, Department of Transportation, Department of Land and Natural Resources, Budget and Finance, and the Executive Director of the Hawaii Community Development Authority. The Director of OSP would be designated Chairman of the Committee; OSP would also provide staff support. 5-33 The Waterfront Advisory Committee would be charged by provide overall guidance and coordination for the Waterfro development process. The Committee's role would thus incl functions: *Coordinate the implementation and timing of major Wa ment projects. * Review budgets for Waterfront-related projects propose cies. * Mediate significant conflicts that may arise among State to Waterfront projects. * Provide overall policy-level guidance for the incremental improvement of the Honolulu Waterfront. Actual project implementation would be carried out by individu ganizations. DOT-Harbors would continue as the agency char@ ment and maintenance of maritime sites and facilities. It is re DOT-Harbors' existing management systems be augmented t ponents: (1) advisory committees consisting mainly of port use commercial ports in the "Port Hawaii" system, and (2) a Spe Fund that would allow DOT-Harbors to respond quickly to una gently needed major maintenance and improvement projects. It is strongly recommended that the implementation of urba projects in the Kewalo Basin to Chinatown waterfront zone be single state government agency. This stretch of the waterfront potential for public gathering places, cultural facilities, and hig cial projects. It is therefore highly desirable that the overall pla well as more detailed design standards and project-specific req plemented in a coordinated and consistent fashion. Currently, t cial urban development agencies with adjacent jurisdictional Aloha Tower Development Corporation and the Hawaii Commu 5-34 Authority. Of the two, HCDA is clearly the stronger agency in terms of manage- ment Oxperience, accomplishments and staff strength. It is therefore recom- mended that ATDC be absorbed into HCDA, and that HCDA be charged with the coordination and implementation of' urban redevelopment projects in Honolulu's urban waterfront district-- from Kewalo Basin to Chinatown. As one of the Master Plan's priority projects, development of the Keehi Lagoon recreational facilities is expected to occur in the near-term future. A new private, non-profit corporation could be formed and enter into a contractual agreement with the State. The corporation would have a small staff with experience and ex- pertise in project development. . Staff functions would include coordinating publicly-funded improvements, preparing an RFP for the proposed development,, implementing the RFP process, negotiating an agreement with the developer, and providing management and oversight services during. the development process. Provided this process works well at the Keehi site, the same entity or a similar one could be called upon to manage the development of other Waterfront recreational projects. Alternatively, the Keehi Lagoon recreational development program could be managed by a private project management firm, or implementation could be carried out by a team consisting of DOT-Harbors staff and consultants. OSP staff would supervise periodic review and update of the Master Plan. Infor- mation compiled and monitored on an ongoing basis would provide technical reference for the committee as a whole. Furthermore, OSP would continue to serve as the public's point-of-contact,for Waterfront progress and planning is- sues that are not project-specific. Financing. The recommended management framework would be able to util- ize the public and private financing tools identified in Chapter 5, provided ade- quate statutory authority for such use has been granted. Nothing inheren t in the management structure precludes the use of any recommended financing mechanism. 5-35 Relationship with Existing Local Agencies: This framework would not require the creation of any major n though existing agencies would be restructured. The Waterfro mittee would report to the Governor and formulate general pla for the operational agencies. The Committee would be bac powers requiring relevant agencies to consider its recommen also have the status and visibility of a "blue ribbon" committee. As noted above, DOT-Harbors would remain unchanged, exce mendations may affect internally generated initiatives. HCDA' tion would be expanded to include the Waterfront area prese ATDC. This expansion of HCDA's responsibilities would requir in staff strength. Advantages: The Committee could be established expeditiously since no nev created. Given the group's membership and their access to t Committee will be able to provide leadership from the top level ministration and to support a cohesive package of proposals fc sideration. Restructuring within existing State agencies would be miniMiZE framework that involves several agencies makes coordination n the same time, however, it maximizes the number of agencies current projects. Diversity in the types of projects and develo undertaken increases the chances for establishing momentum area. Proposals for each of three broad planning areas: urban re dustrial maritime, and recreational maritime, will be implemen tions whose respective mission and staff expertise are appropr development needs and priorities. In the first two areas, HCD bors have ongoing relationships with particular constituent gr 5-36 tablished communication channels should be kept open to ensure the voices of! those affected by change are heard. Disadvantages: No single organization is given overriding responsibility to implement the Master Plan and there is no mechanism to enforce compliance with the Plan. Because departmental committee members have different interests to protect, consensus may be difficult to achieve. An active and effective Committee would depend on a combination of strong internal leadership; strong support and coordination from a higher source, such as the Governor's Office; and strong pressure from outside sources, such as the public, business community, and media. Advocates of a separate ATDC may not agree with the proposed expanded role of HCDA. However, creation of the Honolulu Urban Waterfront District under HCDA would rectify ATDC deficiencies, such as the inability to use a potentially important financing tool: issuance of improvement district bonds. Also, since redevelopment efforts are housed in the same office, maximum coordination can be achieved to integrate. the areas mauka and makai of Nimitz Highway-Ala Moana Boulevard. 5.8 PROJECT MANAGEMENT REQUIREMENTS The Master Plan calls for scores of individual projects that will develop new or expanded maritime, urban commercial, recreational, transportation, and other public facilities. Each project will have somewhat different requirements for management expertise, style, and structure. Nevertheless, there are several common objectives at the project level which are derived from the broader goals of the Master Plan: Utilize organizational forms and financing tools currently permitted under state law or for which there is strong. reason to believe a proposed statutory change would be approved. Minimize risks to the State. 5-37 � Pursue implementation strategies that create opportu private partnership and do not put public agencies in co private sector. � Encourage private initiatives, for example, through lease sufficient duration to amortize improvements. � Devise appropriate mechanisms that allow the State to share of private benefits created by public investments. � Provide for public participation in the project planning an It is premature to recommend specific action plans to implem are still in the conceptual stage. The actual steps of project im be detailed and complex, requiring legal review. These mana@ will vary according to the nature of the projects: who are the int what are their needs, what is the land disposition, who will deve p roposed sources of funding, how should revenues (if any) be will operate and maintain the project once it is completed, ar operating expenses come from. The answers to such imp remain largely unresolved and will be hammered out as the pro take shape. A common thread among the projects should be joint public-private participation wherever possible. The task a mine their respective roles and contributions. 5.9 CONCLUSION The purpose of the management framework is to realize the d use potential of the Honolulu Waterfront. The Master Plan bring tive to the Waterfront, one that is systemic, consensus-base State-initiated with strong private sector participation. To imr planning approach, changes are needed in the way the Waterfr managed. 5-38 The management framework is conceptualized as being two-tiered: first, a struc- ture that will realize the overall "vision" of the Waterfront Master Plan, and, second, a network of organizations that will actually implement specific projects. In this chapter, four different frameworks were examined as models of how the major administrative actors would relate to each other and to the Master Plan: Superagency Lead Urban Waterfront Development Agency Waterfront Commission Informal Waterfront Coordination The recommended framework is a modification of Alternative Framework 4. It would rely on the initiatives of several agencies working in tandem under the coordination and direction of a newly formed Waterfront Advisory Committee. The Committee would be composed of five major agency directors: the Direc- tors of the Office of State Planning, Department of Transportation, Department of Land and Natural Resources, Budget and Finance, and the Executive Direc- tor of the Hawaii Community Development Authority. The Master Plan's systemic view of the Waterfront has led to three general development areas. In response, the management framework provides for a single agency to be charged with primary planning and development respon- sibilities in each of those consolidated areas: HCDA for the waterfront redevelop- ment district from Kewalo Basin to Chinatown, DOT-Harbors for the industrial maritime area from Pier 23 to Kapalama, and a private, non-profit corporation or similar management entity for the marine recreational area at Keehi Lagoon. A vision as grand as the new Honolulu Waterfront will require shared resources and timely, decisive action. The recommended management framework stream- lines State administration of a valuable public resource. Public agencies are aligned with their main mission and the types of development they are best equipped to manage. The management framework is also compatible with full deployment of the public and private financing tools that have been recom- mended. 5-39 I - I I I I I I I .1 I A 1 0 6.0 ENVIRONMENTAL T- I Ih I I I This Chapter presents an assessment of the environmental impacts resulting from implementation of the Waterfront Master Plan. 6.1 SCOPE The purpose of this section of the Pre-final Master Plan Report is to provide a preliminary assessment of the project's possible adverse environmental impacts and appropriate mitigating measures. A project of this size and scale will inevitab- result in some significant impacts, both short- and long-term. Technical studies conducted for this report analyzed alternative actions to minimize these poten- tially negative consequences. Descriptions of possible impacts are general for the purposes of this report. This chapter is not intended to fulfill the requirements of Chapter 343, HRS, whereby the expected findings of an environmental assessment should determine the need for an environmental impact statement overall. Instead, specific develop- ment projects identified for implementation in this master plan will require separate environmental impact statements through which full disclosure of im- pacts and mitigating measures will be made. Major potential impacts and their mitigating measures are: 0 A special study conducted for the master plan project, evaluated the feasibility of relocating and consolidating the petroleum facilities in the plan- ning area. This concept was based on public concern over the potential health and safety hazards. Although the study indicated that relocation and consolidation was possible, the lack of suitable relocation sites and the high cost of reconstructing the facilities made such a program in- feasible at this time. Current recommendations are to formalize the safety inspection procedures to insure the highest level of safety standards are maintained at these facilities and to encourage and plan for the eventual relocation of vehicle fuel storage and distribution operations to Campbell Industrial Park. 6-1 *Traffic volumes in the Ala Moana Boulevard/Nimitz Hig expected to increase by 34 percent even without the While a combination of transportation alternatives such a high occupancy vehicle systems may offer some relief, si ments, such as a new highway and underwater tunne Kaka'ako and the Airport via Sand Island, may be neces through traffic congestion in this corridor and to incre waterfront in the long run. * The master plan identifies three proposed offshore Ian angle, and the Kaka'ako and Kewalo Peninsulas which new land areas for recreational, educational and com Preliminary ocean engineering and marine biology stu master plan indicate that these fills can be developed w impacting natural and recreational marine resources. e Development of the Honolulu Waterfront will result in dis relocation of some current activities and facilities. Relc tified for the waterfront plan were divided into two major - industrial and marine-related. Within the short-term the Reservation land and the Keehi triangle site will be avail of displaced industrial activities. Marine relocation si scope to areas currently available within Honolulu Har part, relocation of selected uses within the harbor would efficient arrangement of land uses. 6.2 MARITIME INDUSTRY Harbors Division statistical data for the last five years, supp Army Corps of Engineers commodity statistics, have been u Study. Fiscal year 1986-87 is used as the study base year. a total of approximately 7.25 million short tons of cargo werE the port, both inbound and outbound.' 6-2 Containerized cargo, domestic and foreign, is the largest cargo class at 3.4 mil- lion short tons accounting for 45 percent of the total port tonnage. Over 150 acres, or 58 percent of the port land area, are devoted to handling containers. Petroleum products form the second largest class at 1.4 million short tons or about 19 percent of the total tonnage. However, only 10 acres or less than 4 percent of the port area is required to service this cargo. Containerized cargo activity merits particular emphasis. Not only is it the port's largest cargo movement, but it has the fastest growing volume. As it continues to exhibit growth, it places a demand upon the port's land and water resources greater than. all other cargo classifications combined. The growth in con- tainerized cargo and autos, the dominant water borne cargo activities, is at- tributed to Hawaii's increasing population (both resident and tourist), state pur- chasing power, construction activity and personal income. 6.2.1 Existing Conditions Honolulu is the State's principal port. All general cargo, including mainland and foreign containers destined for Hawaii, is received through Honolulu. Cargo with neighbor island destinations is transshipped through the port by feeder vessels. There are about 258 acres of land in Honolulu Harbor devoted to cargo transfer and storage activities. In addition, there are 30 acres of terminal area under con- struction at Barbers Point Harbor. Mainland and foreign containers are handled at Fort Armstrong, Piers 1 and 2; and Sand Island, Piers 51-53. Neighbor island containers are handled at Piers 24-29. Refer to Figure 22, Honolulu Harbor and Vicinity. Piers 1 and 2 - Fort. Armstrong Fifty acres are available for cargo operations including space presently occupied by a container freight station and FTZ subzone warehouse. Current production involves a mixture of container, neo-bulk, and roll on-roll off cargo traffic. 6-3 HONOLULU HARBOR 7w @N' 30 F 35 , 19 15 V44 41 40 -9 37 38. 14 2A 2 13 12 42 \22 21 11 110 tj 0 Li L IJ 32 31 30 518 29 28 A L 10 51A 9 8 2 S A Ml 44 6-4 Piers 4-17 These piers are not cargo piers and were excluded from the cargo analyses. Piers 18-23 These piers are devoted to a variety of maritime uses including break-bulk,- neo- bulk, dry bulk, and liquid bulk cargos and tug boat berthing. In ail, there are 20.5 acres makai of Nimitz Highway. Sugar, flour, and grain facilities are generally adequate for present and future demand. Piers, 24-29 Originally, this part of the harbor was designed to accommodate ships and cargo transfer methods in use up to about World War 1. The slips are marginally usable today for barge operations and small ships. The interisland mixture cargo opera- tion at these piers is a barge operation. The piers and backland are intensively used to the point of congestion both on the landside and waterside of the opera- tion. Transit sheds are dilapidated, inadequate to shelter the. cargo, and malplaced for the service for which they are used. Piers 31-33 There are about 11 acres usable for cargo operations. The area has a transit shed covering 7.3 acres and marine fueling stations along the wharf face fed by pipelines from the tank farms in back of Piers 29, 30, and 31. The piers are presently used for general cargo, newsprint storage, bunkering, and supplying transient fishing vessels. Pier 34 This is primarily a liquid bulk pier with connecting piping to the local storage facilities at Pier 30 and across the Kapalama Channel to airport fuel storage tanks. With 35 to 40 feet of water, it serves well as a liquid bulk terminal with remote storage. Cement barge loading is also accommodated at this pier. 6-5 Pier 35 The margina(wharf fronting this terminal is 705 feet long with 27 to 35 feet. The backland extends about 150 feet from the wh about 2.5 acres usable for general cargo and small dry bulk ope cargo consists of bulk cement barged to the neighbor islands, general cargo. Fishing vessels are berthed here for.minor maint voyages. Pier 36 Known as the "Pineapple Pier," Pier 36 supports the interisland It is operated by Dole Company for general cargo and pineap barges. There is little backland needed at the pier because tt mauka of Nimitz Highway serves as remote backland. Pineap loaded from barges directly onto trucks and hauled directly Empty crates are hauled on the return trip. Miscellaneous genE as supercargo on the barges. Piers 39 and 40 The combined piers contain about 40 acres of backland (includi vation land) and the 4 berths are each about 1,000 feet long wit depth. The piers were built for World War 11 service and have covered storage. This terminal complex is used for mixed p cargo neo-bulk, automobiles, and dry bulk (with remote backl,- Snug Harbor - Kapalarna Military Reservation A shallow draft (25 feet) slip about 400 feet long and 100 feet University of Hawaii Oceanographic Support Facility fronting tf a parcel of land belonging to the Federal government an Kapalama Military Reservation. Improvements consist of ware The military reservation lands are to be-sold at auction and m 6-6 for conversion to a container terminal in time to meet the demand for container cargo by the year 2000. Piers 51A and 51 B Pier 51 A is contiguous with Pier 51 B, but the two are used separately. Pier 51 A is used both as a container terminal with chassis storage and as a liquid bulk ter- minal with remote backland storage. The liquid bulk cargo is jet fuel. The mixed use is compatible under present conditions because the container ships have priority use and the frequency of both container ships and liquid bulk ships is low enough to avoid major conflicts in berth utilization. Pier 51 A is listed as having a berth length of 556 feet and water depth of 40 feet. Larger ships must occupy part of Pier 51 B for berthing. Backland used for Pier 51A container operations is about 16 acres. Pier 51B is used for barge berthing in connection with Piers 52 and 53; however, it fronts an existing container yard and could be used for container handling. Only bunker fuel is reported as cargo activity. Pier 51 B is listed as 800 feet long with 40 feet of water. depth. Piers 52 a nd 53 Piers 52 and 53 combine for a tota I berthing length of 1,746 feet and have 40 feet of water depth. They have a contiguous backland of about 90 acres. The piers and backland are operated as a container terminal with containers grounded in the yard. Interisland container transshipment is accomplished on site by load- ing barges at the terminal. In addition to container cargo, a portion of the ter- minal is used for liquid bulk cargo (,molasses). Pier 60 Pier 60 consists of a lowlying bulkhead earthfill of about 5 acres having a berth- ing area for barges bringing sand and concrete aggregate materials from neigh- bor islands. It lies in the Keehi Lagoon complex and has access via Kalihi Chan- nel. Pier 60 is next to a major concrete batch plant serving Oahu. 6-7 Barbers Point Harbor Barbers Point Harbor consists of a single basin of approximate with a 450-foot wide channel entrance. Water depth in the en 42 feet and in the basin is 38 feet. Along the Diamond Head ginal wharf 1,600 feet long and a paved backland of 30 acres i tion and due for completion in 1990. Authorized by Congress bor was designed to accommodate shipping vessels 720 feet I loaded draft. 6.2.2 Future Conditions Without the Project- The following conditions are expected to occur even without t cargo throughput will increase from approximately 7.2 million s to 11.0 million short tons in 2010, an increase of 53 percent. Co exhibits the largest growth, increasing from 3.4 to 6.5 million crease of 88 percent, equivalent to an average annual growt Containerized cargo will account for 58 percent of the total 20 an increase from the 1987 share of 47 percent. The trend is tinue beyond 2010. The neighbor island cargo traffic will grow rate, from 0.5 percent to 3.0 percent annually, or to 1.0 millic year in 2010. Projected cargo volumes will require additional physical resour water areas, by the year 2010. An additional 65-75 acres an are peeded to satisfy 2010 cargo handling demand. Cor facilities require 40-50 acres and two berths; the neighbor isla require 22 acres and two berths. Together, these two activitie maritime cargo needs, accounting for 86 percent of projected ments for the year 2010. 6-8 6.2.3 Future Conditions With the Project, Probable Impacts and Mitigating Measures Present container cargo operations at Piers 1 and 2 are proposed to be replaced by urban uses including an urban activity park and other commercial/office mixed uses. The deep water berths at Piers 1 and 2 would be retained for cruise ships and transient vessels. However, the Waterfront Master Plan recommends that the State buy Kapalama Military Reservation land (available for auction in early 1989) behind Piers 39 and 40. This action would help shift cargo handling operations away from an area undergoing urban redevelopment (Kakaako Peninsula). Without' relocation, problems could emerge because of incompatibility between industrial harbor operations and nearby residential, commercial and recreational activities in Kakaako. An additional 53 acres of Kapalama Military Reservation land are expected to be- come available for auction in the future, and the State proposes to acquire this acreage to meet the need for expanded maritime containerized cargo operations by the year 2000. The proposed shift of container operations from Ft. Armstrong to Kapalama, and Piers 39 and 40 would, in time, probably result in increased ship traffic near the Ewa end of Honolulu Harbor. However, the increase in traffic complexity and delays is a natural process for any maturing port. It is a common phenomenon in other ports. Ship arrivals and departures are currently scheduled and controlled to assure efficient traffic movement in and out of the harbor. As cargo container move- ment and operations increase, the practice of timing ship arrivals, departures, and movement within the harbor would need to be more closely coordinated among the various maritime companies, with DOT-Harbors continuing to take the lead in the ongoing effort. Close coordination would be critical to avoid con- 6-9 gestion and to alleviate the concerns for safe vessel movern disruptions. An economic feasibility study of future demands for maritime fi containerized cargo, at Barbers Point Harbor is proposed. I would include a benefit-cost analysis. If the analysis so in studies would be initiated as appropriate. The study would feasible alternatives to Barbers Point in the long range options 6.3 TRAFFIC/TRANSPORTATION 6.3.1 Existing Conditions The Honolulu Waterfront project will primarily affect Nimitz/Ala Mauka-makai streets that carry the majority of the traffic to an Moana are Kalihi Street, Waiakamilo Road, Nuuanu Avenu Alakea Street, Punchbowl Street, Ward Avenue, Piikoi Street, an Nimitz Highway/Ala Moana Boulevard is a major divided high important link between the airport area, Downtown, and Waiki lanes in each direction from the Keehi Interchange to Sand Isla From Sand Island Access Road to Iwilei, there are three thrOL direction. Between Iwilei and Kakaako, Nimitz widens to four la tion. From Kakaako to Waikiki, Nimitz Highway continues on as Ala with three lanes in each direction. Exclusive left turn lanes ar medians at major intersections. Separate phases are given t ments at signalized intersections. The posted speed limit on is 35 miles per hour. The highway right-of-way width varies fro feet. 6-10 Nimitz Highway serves as the major access to other roads serving the waterfront area including Lagoon, Drive and Sand Island Access Road. Ala Moana Boulevard serves as the major access to the Kakaako Makai area. Presently, the bulk of the traffic to/from Honolulu to other population centers is served by the H-1 Freeway, Kamehameha. and Nimitz Highways, and the Moanalua Freeway between Leeward Oahu, Likelike and Pali Highways between Windward Oahu, and the H-1 Freeway and Kalanianaole Highway between East Oahu. 6.3.1.1 Existing.Traffic Volumes and Capacity of Highways Because Nimitz' Highway/Ala Moana Boulevard is one element of a large network of arterials, it is important to'assess the overall regional traffic condition. Peak hour traffic volumes and estimates of'street capacities for the year 1985 were used to evaluate the operation of the existing regional highway network. Volumes and capacities were researched and estimated for the Middle Street, Nuuanu-Waolani Stream, and Manoa-Palolo Drainage Canal screen lines. Screen line traffic volumes for the year 1985 were obtained at traffic count sta- tions from the State Department of Transportation. The capacities of the highway network crossing the screen lines, including freeway, arterial, and local streets, were estimated using procedures from the Highway Capacity Manual (Special Report 209, 1985). Capacities of the streets were estimated under conditions of maximum capacity. The values of arterial capacities were estimated by the nearest congestion point in both directions. Traffic volumes and the volume to capacity ratios (V/C) of the highways and streets crossing the screen lines were determined, and are'listed in Table T. 6-11 Table 7: 1985 SCREEN LINE VOLUME AND CAPA Eastbound Westb Roadway Volume V/C Ratio Volume Middle Street Screen Line Nimitz Hwy 2300 0.64 3600 H-1 Freeway 3700 0.69 4200 Kamehameha/ Dillingham 1600 0.73 1500- Other Streets 2300 0.65 2900 Nuuanu-Waolani Stream Screen Line Nimitz Hwy , 2500 0.70 2800 H-1 Freeway 4700 0.87 4400 King Street 1600 0.52 0 Beretania 250 0.28 2900 Vineyard 1200 0.44 1200 Local Streets 2000 0.37 2700 Manoa-Palolo Drainage Canal Screen Line Ala Moana 1800 0.67 1700 H-1 Freeway 6100 0.85 3100 Kalakaua Ave. 1700 0.94 1400 King Street 1900 0.53 0 Waialae Ave. 0 ---- 1600 Local Streets 2100 0.33 4100 6-12 6.3.1.2 Waterfront Area Intersections -- Peak Hour Volumes and Capacity Rec orded and estimated traffic volumes for the year 1988 and intersection capacity analysis were used to evaluate the operation of Nimitz Highway and Ala Moana Boulevard. Key intersections along Nimitz Highway and Ala Moana Boulevard were analyzed using the "Planning Analysis" procedure to estimate in- tersection capacity from the Highway Capacity Manual. Planning analysis es- timates the capacity of an intersection by adding conflicting traffic movement volumes. If the sum of the conflicting movement volumes is below 1,200, the in- tersection is below'capacity; from 1,201 to 1,400 the intersection is near capacity; and above 1,400. the intersection is over capacity. The results of the.analysis are shown in Table 8. Table 8: EXISTING CAPACITY ALONG NIMIT7_/ALA MOANA Morning Afternoon IntersecAlion Pgak Hour Peak Hour Lagoon Dr. Under Under Sand Isle Access Rd. Over Over Kalihi St. Over Over Waiakamilo Rd. Over Over Bishop St. Under Under Alakea St. Under Near Punchbowl St. Under Near South St. Under Under Ward Ave. Under Near Atkinson Dr. Under Under 6.3.2 Future Conditions Without the Project Land uses on Oahu are pr6jected to increase in intensity, as indicated by projected increases in population and employment. Projections extrapolated 6-13 from the DBED M-F series indicated that Oahu is estimated t percent in population and 30 percent in employment, from 19 increased intensity of land use is expected to increase traffic c Afternoon peak hour traffic crossing Kalihi Stream in the Ewa an directions is expected to increase from 22, 100 vehicles in 1985 t in 2010, an increase of about 34 percent. Traffic crossing th Manoa-Palolo Drainage Canal, and Manoa Stream is expected 25,500 vehicles in 1985 to 32,000 vehicles in 2010, an increase cent. Traffic and congestion during off peak hours are also expe The traffic engineering consu Itants found that the forecasted trc, the project would be sufficiently significant such that additional central urban Honolulu would be necessary. While the determin for such laneage would usually be addressed in the context o the team evaluated three alternatives: (1) a Sand Island Park Middle Street to Kakaako, (2) a Nimitz viaduct and tunnel, laneage mauka of Nimitz/Ala Moana. Other needed improverne elimination of on-street parking on King Street and re-stripin through lanes with a bus stop by-pass. If further studies by t ment of Transportation find that a new, major corridor is indeed the waterfront area, the Sand Island Parkway and harbor entr Ward Avenue may be the most viable solution. Major t westbound would be via a tunnel roadway from Ward Avenue t Parkway tunnel. Two eastbound lanes from the Parkway woul( Moana Boulevard, with an exit onto Ward within the Peninsula westbound on Ala Moana Boulevard would be underground, crc heading makai. The second lane westbound would begin as E makai of Ala Moana along the makai leg of Ward Avenue. This proposed configuration offers the benefits of increased ac Peninsula with no at-grade traffic crossing of through traffic wit fic heading either east or west. 6-14 At major intersections such as Waiakamilo Road and Ward Avenue along Nimitz, major intersection improvements would be needed even with the Sand Island Parkway. The traffic engineers recommend that at Waiakamilo and Nimitz, 2 lanes are needed for the southbound approach, one for the northbound, and one lane for both the east and westbound approaches. At Ward and Ala Moana Boulevard, one lane should be added on the southbound approach, and two lanes in the 0astbound direction. 6.3.3 Future Conditions With the Project, Probable Impacts and Mitigating Measures Overall, traffic conditions in the study area with the waterfront proje ct will be somewhat worse than without the project. The project would add traffic to specific subareas and roadway points. The traffic study assumed that either the Sand Island Parkway or the Nimitz viaduct/tunnel lanes would be built, and traf- fic impact results are shown in Table 9 below by comparing the traffic increase and capacity level for the project versus the traffic without the project. These in- tersections represent the most critical intersections through the study area and serve as major or primary access points to the waterfront subareas. Table 9: 2010 TRAFFIC IMPACT (Afternoon Peak Hour) WITHOUT PROJECT (1) WITH PROJECT (2) Intersection Critical Vol. Capacity Critical Vol. Capacity Lagoon Dr. 1320 Near 1720 Over Sand Isle Access Rd. 1000 Under 1060 Under Waiakamilo Rd. 1330 Near 1820 Over Bishop St. 950 Under 1070 Under Ward Ave. 1380 Near 1760 Over (1) With Sand Isle Parkway or other major new facility & needed improvements. (2) With Sand Isle Parkway or other major new facility and proposed waterfront land uses. 6-15 The mitigating measures below have been proposed by the r gineers. These pertain primarily to the impacts by the waterfro without the project, various improvements are required such as type facility, as represented by the Sand Island Parkway. While t be situated in the waterfront area, it is not a mitigating measure development of the area. It is required by the anticipated gro and employment predicted by the Department of Business Development for the year 2010. Moreover, intersection im needed to achieve the capacity levels in Table 6-3 above. Keehi. With the proposed industrial and recreational land uses the project would significantly increase traffic. Keehi developm traffic growth due to other development on the airport and the industrial area will cause congestion at the intersection of La Nimitz Highway. Mitigating Measures. Add a single-lane frontage road along for traffic turning right from Lagoon Drive merging onto Nimitz e 400 feet downstream and at a point with adequate sight distanc the existing intersection configuration to permit left-turn capacit to Lagoon Drive. lwilei/Kapalama/Sand Island. Several access roadways (Sar and Puuhale Roads, Mokauea and Kalihi Streets) serve th Forecasts indicate that intersections on Nimitz Highway would near capacity. Truck traffic volumes will change depending on t section, with westbound volumes increasing due to the growt area. Major impacts are probable at the Waiakamilo and Nimit section if Nimitz Highway remains in the same configuration. Mitigating Measures. It is recommended that one lane north to improvements already required without the project. Add a head ramp from Waiakamilo southbound to Nimitz eastbound add one lane westbound from Waiakamilo to Kalihi Street. 6-16 Chinatown Waterfront. Propqsed land uses would be minor generators of traf- fic; e.g., fire station, sale of fish, interpretive center, and park. Most patrons are expected to walk as part of the contemplated pedestrian promenade. ' Aloha Tower/Downtown. The Aloha Tower area uses by 2010 could be retail, office space, and a 400-500 room business hotel. The primary ingress and egress point will be Bishop Street at Nimitz Highway. With the development, traf- fic would increase but would not be a significant impact, assuming present Nimitz Highway laneage. Little impact is expected at Bishop and Nimitz Highway if Nimitz remains in the same configuration. Mitigating Measures. The master plan recommends a pedestrian grade- separated walkway between Downtown and Aloha Tower to bridge the Nimitz Highway corridor. Kaka'ako Peninsula. The Peninsula is served by several access points to Ala Moana Boulevard. Two major types of traffic generating uses are contemplated. First, office and commercial uses are planned. This type will have the greater impact on the peak hour traffic. The second type of use is the recreational or entertainment type of use--the waterfront park, amphitheater, performing arts center, and museum complex. The peak period for use of these facilities will be during the off-peak traffic hours; i.e., weekend or evening hours. Based on the low level of weekend traffic on Nimitz/Ala Moana, these uses would be com- plementary in terms of traffic generation and available road capacity.., Thus, while, more detailed time-of-day, mode of arrival, event characteristics, and traffic forecasting analysis would be needed for traffic signal and other control require- ments, these uses would have traffic impactswhich could be mitigated. Significant impacts are expected due to commercial and office space develop- ment. Traffic impact will vary by intersections serving various uses and destina- tions in the peninsula. Major intersections will be over capacity. High traffic con- gestion is likely during the weekday peak hours. Weekend traffic will operate below capacity. Friday evening traffic will be congested with time overlap be- tween commuters and attendees of amphitheater or cultural events. 6-17 Mitigating Measures. Road widening at intersections would t mit Ala Moana Boulevard intersections to operate at or below tion to lane improvements required even without the project, it that two lanes be added to the northbound approach. It is re the westbound and northbound left turns be banned during tl@ Shuttle bus routes and service through the downtown and KakE be implemented. Also, if a system is constructed, improvemer locating rapid transit stations within walking distance of the order to serve major developments. Other mitigating measures include: Institute and manage carpool/vanpool programs for em Develop and institute transit fare programs for employe Plan and implement special event traffic control plans for ing management. Evaluate and when appropriate, implement staggered w 6.4 AIR QUALITY 6.4.1 Existing Conditions Air quality standards applicable in the Honolulu Waterfront stu of the State of Hawaii and the U.S. Environmental Protection A fur dioxide (S02) and lead (Pb) standards are the same at bot ment. Nitrogen dioxide (N02), carbon monoxide (CO), and c ards are more stringent at the State level than those used by th ment. The State has operated a number of air quality monitoring stati in the general vicinity of the waterfront. Ozone measuremen collected at a Sand Island sampling site. The longest operatin@ 6-18 at the State Department of Health building at the corner of Punchbowl and Beretania Streets several blocks mauka of the waterfront area. The data from these stations suggest that, with the exception of GO, all State and Federal standards are probably being met within the waterfront area. In the case of GO, State standards are probably being exceeded in the vicinity of a number of major intersections along Ala Moana Boulevard and Nimitz Highway during peak-hour traffic and low windspeed conditions. While Honolulu's prevailing northeasterly tradewinds provide the natural ventila- tion which generally maintains an acceptable level of air quality, these winds can- not be relied upon as the sole means of air pollution control. This is due to the numerous periods of absence of brisk tradewinds. The principal air pollution sources in the area are motor vehicle traffic along Ala Moana Boulevard, Nimitz Highway, and adjacent streets; motor vehicle activity associated with industrial activities, including container yard operations; ship and boat operations; petroleum storage and handling facilities, and the power plant. 6.4.2 Future Conditions without the Project Based on traffic impact analysis, forecasts indicate that population will increase by 25 percent, and employment by 30 percent from 1989 to 2010 even without the project. There will be an expected corresponding increase in traffic, which will result in even higher levels of carbon monoxide emissions. Even without the waterfront project, HECO has plans to close its Downtown power plant within the next several years. This action would contribute to lower emissions and improved air quality in the Downtown area in the short term. The longer term outlook would be an even greater magnitude deterioration of air quality with continued growth in the number of mobile and stationary sources in urban Honolulu. 6-19 6.4.3 Future Conditions with the Project Intensified urban use of the waterfront lands will likely attract sources, or motor vehicles, into an already congested area. I this may not result in a net increase in mobile source emissio fsetting effect of the Federal motor vehicle control program. At future, however, the traffic growth rate may exceed the vehicle tion rate and air quality will begin to deteriorate again. 6.4.4 Probable Impacts and Mitigating Measures Closure of HECO's Downtown power plant and the relocation sources will contribute to lower emissions and improved z Waterfront area. Possible closure or relocation of other existin@ ces such as concrete batch plants would also have a positive ef in the waterfront. Intensified use of the waterfront will also result in increases in dE cal energy and increases in solid waste generation. Subseq have offsite impacts at the locations where power is generated ( where municipal solid waste is burned (Waipahu/H POWER). A sions from these stationary sources will increase, thereby co deterioration of air quality in this location. In the Barbers Point Harbor area, emissions from industrial sou by Campbell Industrial Park have a significant negative impact c sides the existing sources, a large gas turbine, a coal-fired r refinery expansions are being planned. Unless future emission air pollutants from these sources will significantly contribute to of air quality in this area. 6-20 Increasing Numbers of Mobile Sources As the number of mobile sources in -the waterfront area continue to grow, con- trol of emissions will be increasingly difficult. While mobile source emissions have declined sharply in Hawaii since the early 1970's due largely to the federal motor vehicle control program, they can be ex- pected to start rising again in the future as the increasing volumes of motor vehicle traffic overcomes previous improvements in per vehicle emission stand- ards. Evidence of this impending scenario may already exist in the Department of Health's air quality monitoring data. The number of violations of the State's 1-hour carbon monoxide (CO) standard has dropped sharply since 1971, but has leveled off in the last 3 years. At present, no new motor vehicle emission standards are scheduled to take effect. Less polluting alternative means of moving people within the area, such as a rapid transit and other high occupancy vehicle systems, would need to be developed. The net result of such actions would be a reduction in the number of vehicles on the road at any given time, and thus, there would be a reduced occurrence of CO emissions from individual vehicles. Also, as new parking facilities are planned for the waterfront, careful consideration should be given to designs that minimize motor vehicle operation. Many of the proposed people- oriented facilities in the waterfFont would be located downwind (relative to prevail- ing northeasterly tradewinds) of air pollution sources. Adequate buffer zones and strict enforcement of air pollution control rules will be necessary to minimize impacts on future users of these waterfront facilities. 6.5 NOISE 6.5.1 Existing Conditions Noise indices are commonly used to deal with fluctuating noise from traffic and aircraft. For example, equivalent noise levels over a one-hour sample of traffic noise provides a single number in decibels (dB) to express the complicated time- 6-21 varying situation. Also day-night noise level (Ldn) is used to defi ber for traffic and aircraft noise averaged over 24 hours, includin ty for the noise sensitive period between 10:00 p.m. and 7:00 a Traff ic Noise from traffic on the Ala Moana/Nimitz artery is shown to hourly noise levels of 65 dB to persons on lanais in highrises at to 350 feet from the roadway. During evenings, when traffic vo by about one-third, the average hourly noise levels would be a Aircraft Figure 23 provides the most recent Ldn noise contours for 198 noise contours were generated using the FAA's Integrated No computer program which takes into account the flight tracks, th time of operations, as well as the noise and flight profiles of eac The noise levels take into account the measured single event tained over the years from fixed Remote Monitoring Stations ( Noise Monitoring System (NIVIS). RMS's in the project area a Sand Island Wastewater Treatment Plant, Aloha Tower, and Ke In the Kakaako Makai area away from Ala Moana Boulevard, ai tributed 22 to 41 percent of the total noise environment due to tive contributions from traffic and machinery (e.g., reefer vans) Industrial and Commercial Activities Examples of industrial activities that can not reasonably enclosures are container handling facilities; ship and boat rr repair operations; truck terminals; salvage, scrap and junk st batch plants; large saw mills; etc. Noise compatibility criteria p Federal agencies generally assume that buildings are closed f conditioning. Because of our favorable climate, many industri are open or are naturally ventilated. This condition makes the 6-22 susceptible to noises from surrounding areas as well as not being quiet or com- patible neighbors themselves. As a benchmark, workplace activities which involve the us e of powered tools or machinery, will generate noise levels in excess of 65 dB at the 'operator position. Hearing damage criteria for the workplace is approximately 85 db. Naturally ven- tilated residential units and other naturally ventilated noise-sensitive uses should not be planned where the day-night noise levels are greater than Ldn 60 when taking aircraft noise into account. 6.5.2 Future Conditions without the Project The population in urban Honolulu is expected to increase by approximately 25 percent and employment by about 30 percent by the year 2010 even without the waterfront project. With this projected growth, estimated vehicle trips in the waterfront area would. probably increase by 34 percent.- Such increases imply greater levels of noise pollution which would be inevitable in areas of the urban core where major employment centers and services are located. 6.5.3 Future Conditions with the Project Traffic If, in the future, the projected increased traffic volumes can move at today's speeds, then it can be shown that the increase in hourly traffic noise levels should rise from 0.7 to 1.5 dB, depending on the location along the traffic routes. The actual increase in noise level will probably be less if congestion along the road causes the effective average operating speed of the vehicles to be reduced. Moreover, unlike aircraft noise, buildings will effectively block traffic noise to lis- teners at lower elevations. Thus, the makai regions behind structures on Ala Moana Boulevard should be substantially shielded from traffic noises. 6-23 (6-0 6-24 AIRCRAFT NOISE C FOR YEARS 1987 Note: L-J= 00 DID 11 IDLi Lj) L i ------ % J/P T7 % % 000 00 0 6-25 A new major arterial crossing Sand Island with a tunnel to the area could cause a significant increase in noise levels in the exi including camping sites located on Sand Island. The walkways and commercial complexes along the propose well as the parks and special uses in the Fort Armstrong reasonably quiet except for noises from slower moving local tr that the elimination of fully-developed containerized cargo han the Fort Armstrong area will reduce the contribution of noise fr trucks and buses on Ala Moana Boulevard from about 71 percE of the total traffic noise. Aircraft The noise contours contained in Figure 23 may reflect extre, where the 1992 contours show some increased noise exposur ing condition in Keehi Lagoon and no significant changes in the despite an increase in operations. This is primarily due- to the some quieter Stage 3 aircraft would be in use. The 2007 conto cated but do reflect a case where the majority of the aircraft are nificant noise reductions are seen in most of the project area des operations than in 1992. The amount of the projected noise from zero to more than 10 dB at the various locations within th Industrial and Commercial Activities Noise levels from industrial/commercial activities such as thes likely continue to increase as demand for such services and pr with economic growth and diversification on the Honolulu Wate 6-26 6.5.4 Probable Impacts and Mitigating Measures Traffic Noise from traffic on Ala Moana Boulevard and Nimitz Highway is not expected to increase, significantly. The increase in the hourly noise level (Leq(60 minutes)) or the day-night noise level (Ldn) ranges from 0.7 to 1.5 dB depending on the location along the arterial. The actual increase in noise level will probably be less if congestion along the road causes the effective average operating speed of the vehicles to be reduced. The new major Sand Island Bypass crossing Sand Island with a tunnel to the Fort Armstrong area could have a significant traffic noise impact on existing park areas including camping sites located on Sand Island. Earth berms with noise barrier walls along the southern side of the roadway could be used to reduce traffic noise impact on the park. Aircraft Noise There should be significant reduction in aircraft noise impact within many por- tions of the study area when the older, noisier Stage 2 aircraft are phased out. Noise from military aircraft also contributes to the impact in portions of the project area. Changes in the type of military aircraft and operations also can affect the Ldn contours. Thus, predictions of HIA noise impact into the future can show great variability. The Ldn aircraft noise contours in the study area caused by Honolulu Interna- tional Airport (HIA) can change when aircraft types and operations are modified. There should be significant reduction in aircraft noise impact within many' por- tions of the study area when the older, noisy Stage 2 aircraft are phased out. Presently, task forces comprised of government and airline officials are working on the development of an economically feasible plan to determine the rate of 6-27 phase-out for the older aircraft which now comprise about 80 p commercial fleet. The following are comments pertaining to specific waterfront As benchmarks, the DOH, Kakaako Community Development LUO noise regulations are: for apartment districts DOH and K are about 60 Ldn; LUO noise limits for residential/apartment u Ldn; for industrial or non-dwelling areas, DOH noise limits equE LUO limits equate to 69 Ldn. a The Triangle Industrial/Commercial Park in Keehi Lagoo noise reductions from 75 Ldn and greater to less than 7 * The Keehi Lagoon Triangle Yacht Race Facilities and Oc plex will have reductions from about 80 Ldn to the range o The authorized mooring area in Keehi Lagoon will have the range of 75-80 Ldn to about 70-73 Ldn. *The Pier 60 Marina and the Canoe Race Course sho reduction of about 5 Ldn. The northern portion of the proposed Sand Island Beach a reduction, but less than 5 Ldn. *The existing Sand Island Park should experience no, o reduction. 9 Much of the Sand Island container/cargo area should ex reduction. * The proposed container cargo area, the interisland. barge general cargo, fueling, and miscellaneous harbor activitiE a 5 Ldn reduction. e The proposed Kaka'ako landfill peninsula park shoul change. 6-28 The majority of the Kakaako Makai peninsula and Ala Moana Beach Park will experience a reduction of less than 5 Ldn. *Barbers Point would not have any significant reduction of noise impact from aircraft. Maritime, Industrial and Commercial Operations, Probable Impacts and Mitigating Measures Because of our favorable climate, many industrial activities here are open or are naturally ventilated, whereas the same businesses on the mainland would have to be. closed for heating or cooling purposes. Simple walls of metal decking or single plywood panels often would provide adequate noise containment. The major cost is the installation and operation of the air conditioning or mechanical ventilation systems, not heavy sound retardant building elements, such as walls, windows, and doors. Change in Use at Fort Armstrong It is shown that the elimination of fully-developed container handling facilities in the Fort Armstrong area will reduce the contribution of noise from heavy diesel trucks and buses on Ala Moana Boulevard from about 71% to 57% of the total traffic noise. Noise Sensitive Land Uses The amphitheater proposed for the Kakaako Waterfront Park is to be located on 6 to 8 acres and would accommodate between 10,000 to 12,000 people. The location and design of the amphitheater would minimize potential noise impacts on surrounding properties by directing sound towards the ocean as much as possible. Modern design and construction techniques would equip a facility .suitable for a variety of performances. Two acoustical issues associated with this complex are: (1) noise from aircraft overflights interfering with performances, and, (2) sounds from the amphitheatre possibly causing annoyance to residents in the area. 6-29 Tradewind departures from HIA represent about 95 percent of t tures from the airport. Currently there are about 21 scheduled c the evening between 7:00 p.m. and 11:00 p.m. when concert of the departures are interisland jet aircraft from runway 08L, ar cause a maximum noise level of about 79 dBA in the area. Fifteen departures would be transoceanic air carriers from the r ing about 70 dBA maximum levels. Military light tactical let air afterburners could cause maximum levels in excess of 90 dBA Kona-wind flight patterns, which represent 5 percent of the a HIA, schedule about 30 arrivals of commercial jet arrivals betwe 11:00 p.m. These arrivals would impact concerts during Kona maximum noise levels of 74 to 78 dBA would occur for Boein the nearest flight track. Military aircraft landing on the same fligh 90 dBA maximum levels. From these flight patterns and noise levels, it can be seen tha sages generally would not be masked by commercial jet activi dued passages could be disturbed. Military aircraft operation detectable even during loud passages. In the future when quieter Stage 3 aircraft are deployed into th maximum noise levels should be reduced substantially during tures, perhaps typically by 7 to 10 dBA. However, there prob departures during a given period of time. During Kona.-wind flig probably will be approximately the same maximum noise level noise levels are not substantially decreased in Stage 3 aircraft. more aircraft landings are predictable in the future during con It is difficult to predict annoyance to potential nearby residen from performances in the proposed amphitheater. This is prim actual sound sources are loud speaker systems which belon@ ment groups and are considered a part of their artistic expres 6-30 of events at the proposed facility were required to use the house sound system and a resident sound engineer, the control of intrusive noise to neighbors could be accomplished. However, recently the U.S. Supreme Court ruled that New York City's effort to control sound levels at a bandshell in Central Park was a violation of the performers' freedom of expression (Ward vs. Rock Against Racism, USSupCt No. 88-226). Another complication is the trend to use large sub-bass amplifiers and speakers which produce essentially omni-directional sound that cannot be effectively directed away from residential areas. Another important factor is the ambient or background noise level that normally exists in the neighborhood of the amphitheater. If a quiet ambient noise condi- tion usually exists, then people get accustomed to enjoying outdoor areas and lanais in the evening. If buildings have lanais overlooking the boulevard, many people would tend not to utilize them because of uncomfortably high motor vehicular traffic noise. In light of aircraft and amphitheatre noise, residential uses are not recommended for the Kakaako Makai area. 6.6 OCEAN ENGINEERING 6.6.1 Existing Conditions The coastal reach of the Honolulu Waterfront study area which stretches from Magic Island/Ala Moana Park westward to the Reef Runway has been significant- ly modified by human activity during this century. Dredging and filling of shoreline and reef areas have physically altered the coastal characteristics, and the marine environment has been stressed by inland development, channelization of streams, and urbanization of the watershed. 6-31 Wave Climate The south shore of Oahu is sheltered from the predominant north generated waves as well as the winter North Pacific swell. Thus, the shore is relativelyrnild except during the summer months swell can produce moderately high surf conditions. The south posed to infrequent Kona storms and hurricane waves appro southeast through southwest directions. The west shore of Oahu (Barbers Point area) is sheltered from t northeast tradewind -generated waves, but is somewhat expos North Pacific swell and summer southern swell. The west shore to infrequent Kona storms and hurricane waves approaching west. Nearshore Bathymetry Nearshore bathymetry is highly variable along the Honolulu W the extensive modifications by dredging and filling of the coastal low fringing reefs front portions of this shoreline, while other shor been created by filling out over the shallow reefs. Numerous ha navigation channels have been dredged through the nears throughout Keehi Lagoon. Opportunities exist for seaward extension of existing shoreline the nearshore ocean bottom is relatively flat and does not provid of high or unique value. These areas are located off Sand Island E Peninsula. The nearshore bathymetry in the vicinity of Barbers not ideally suited for shoreline fill extension due to the relatively bottom and the high unit costs for land reclamation in deep w range maritime requirements may prove that offshore expansic is a viable option to accommodate larger ships if the interior lar available for harbor expansion. 6-32 Littoral Processes There is little sand movement along the south shor e within the study area since much of the shoreline has been filled over the fringing reefs and the numerous navigation channels through the nearshore areas effectively cut off any con- tinuous longshore movement at the shoreline. The Ala Moana Park shoreline is the only extensive recreational beach within the study area. This beach was augmented by artificial beach fill and is not present- ly replenished naturally because of the deep dredged channel fronting the entire park shoreline. The Barbers Point shoreline is comprised of hard coral limestone or beach rock material and the nearshore ocean bottom is a fairly uniform hard coral and rubble surface. There is no significant sand beach in the vicinity and negligible littoral drift along the shoreline. Nearshore Currents Coastal currents are predominantly tidal with velocities typically about 1/2 knot along the Honolulu Waterfront coastal area and somewhat higher off the coast of Barbers Point. The Ala Moana Park dredged area is an example where the local shoreline alterations have influenced the circulation patterns. In its present configuration, this dredged area is poorly flushed. Coastal Flood Hazard Coastal flood hazards include tsunamis, hurricane wave-induced coastal inun- dation, extreme stream flows or storm drainage flows, and long-term consequen- ces due to rising sea level. Tsunami heights within the project area have been reported to be 6 feet or less, and no shoreline reach is within a Zone V (high velocity tsunami wave flood zone) as delineated by the Flood Insurance Rate Maps (FIRMs). Shoreline areas within FIRM flood zones are designated Zone AE (base flood elevations determined) or Zone A (undetermined base flood elevations). 6-33 Zone AE base flood elevations are typically + 5' Mean Sea Le along the Honolulu Waterfront, and +8' MSL along the Barb shoreline. The areas designated Zone A are susceptible to h coastal inundation. Estimated maximum stillwater level due to hurricanes is about along the Kewalo-Kakaako shoreline reach. Major streams fc year flood characteristics have been determined by the Fec Management Act (FEMA) include Kalihi Stream and Moanalua charge into Keehi Lagoon. Shore Protection Structures Most of the shoreline within the study area is provided with some protection due to the fact that much of this coastal reach has dredge and fill activities. The types of shore protection structur ing on the use of the shoreline area and the ocean bottom char blemound breakwaters protect an artificial beach at Magic Islan ry seawalls protect portions of the shore that are not exposed tivity, rubble revetments protect other reaches that are expose of wave activity, and various types of vertical bulkheads are fo, terior harbor basins. In some cases, the existing structures which were built to reta have deteriorated over the years due to lack of maintenance, reaches vulnerable to erosion damage. The seaward shore such a case, where the U.S. Army Corps of Engineers is und struction of 2,000 feet of new shore protection structures to pr coastal reach. The seawall along the Kakaako Peninsula shc various stages of disrepair, requiring improvements to preve damage. No erosion problems are evident along the Barb shoreline. 6-34 6.6.2 Future Conditions Without the Project Rising Sea Level Long-term consequences due to the global rise in sea level are relatively insig- nificant in the near future. It is estimated that the relative sea level rise for Honolulu by the year 2010 will be 0.3 feet or less. However, it is expected that the sea level will rise at an accelerated rate in the distant future due to general global warming, with possible relative rise of about 1.8 feet by the year 2050 and 5 feet by the year 2100. While long-term planning and. policy decisions should consider the probability of future increased rates of sea level rise, there is no cause for alarm or action regarding engineering of structures to mitigate the effects. Any action to protect against sea level rise can be carried out in a relatively short time period relative to the rate of potential rise in relative mean sea level. 6.6.3 Future Conditions With the Project, Probable Impacts and Mitigating Measures Ala Moana Park The present circulation and flushing of the dredged area fronting Ala Moana Park is inadequate to maintain good water clarity. Therefore, any shoreline or offshore development should not further restrict the exchange of water over the reef. Any offshore development at the reef edge is also likely to obscure the ocean views from the beach. and park areas. Opportunities exist for improving the circula- tion and flushing aspects within the Ala Moana Park dredged area by dredging of a circulation channel through the reef to provide a direct opening to the sea for positive circulation. Consideration must be given to balancing the degree of channelization with the increased wave energy levels at the shoreline and the potential for increased cur- rents due to return flows through the channel. Also, if protection of existing surf 6-35 sites is the priority consideration, siting and alignment of any cir through the reef may be restricted. A curved channel alignment will minimize the possibility of incre gy levels entering through the circulation channel. Gross estim the circulation channel can be designed to enhance circulatio the Ala Moana Park dredged area without significant adverse creased wave energy or high velocity flows. Kewalo Basin and Peninsula Opportunity exists for minor filling and shoreline extension of the in conjunction with dredging of a circulation channel to impro within Ala Moana Beach. Any additional filling of the peninsul tend substantially seaward of the present channel "jetty" due to to the surfing sites at the edge of the fringing reef. The per "squared off" by filling the southeastern part of the triangle peni fecting the surf sites. The dredged material from the circulation channel could be use the fill requirements for the Kewalo Basin peninsula fill extensior expansion will require shore protection measures to contain th prevent storm wave damage. Marine Research Complex The combination of the master plan development activities t proposed artificial reef sanctuary and research area, as well as research facilities and offshore test range, could result in a worl search center within metropolitan Honolulu. A visitor's center c as part of the U.H. research complex to enhance the concep ocean park. 6-36 Possible Kaka'ako Fill Extension The Kakaako Peninsula shoreline and offshore are Ias provide an opportunity to expand the Kakaako Park seaward by augmenting the makai end of Ft. Armstrong with new fill for fast land. Shoreline fill extension to the -12' contour will require substantially more massive shore protection structures than that necessary for the existing shoreline. Because of the deeper water depth, larger waves can be expected to impact the shore during extreme storm conditions. For a maximum breaking wave height of about 17 -feet, the non-overtopping crest elevation would be on the order of about 25-30 feet. The wave protection struc- ture fronting the west end of the Reef Runway is a good example of the neces- sary shore protection requirements for possible shoreline fill extension to the 12- foot depth contour. Mitigating Measures Planned uses and activities in the shoreline area need to be considered from the standpoint of selecting appropriate shore protection measures that are com- patible with the planned uses and that provide an acceptable level of protection to the landside improvements. Wave overtopping could be expected during ex- treme storm wave conditions, and damageable structures should be set back about 50 feet or so from the ocean front with provision for adequate drainage of overtopping water. A landscaped promenade would be a compatible land use within this setback zone. While a recreational beach could be considered as part of the Kakaako fill exten- sion it will require stabilization with breakwaters or with a submerged shoal. A submerged shoal structure is preferable since it would not block the seaward views, and can be designed to enhance the surfing conditions. The submerged offshore reef will provide wave protection to the Diamond Head-facing shoreline, while the seaward and Ewa-facing shore will require revetment protection. For the purposes of this stage of the conceptual. planning effort, it is assumed that the shoal is comprised of a designed artificial reef of rocks. 6-37 The submerged reef is intended to serve as a surf shoal as shore protection. If intended merely as shore protection, th crest would not have to be as wide and the fill volume cou reduced. However, the surf shoal concept is recommended hance the existing surf site known as "Flies." It would provid from the Kewalo Basin entrance channel with convenient Kakaako Park, and would enhance recreational snorkeling tunities during calm wave conditions. This reef breakwater/su interfere with the existing Point Panic body surf site, nor the U Look Lab offshore test range area. By locating a new beach area off Ft. Armstrong, body surfers would have improved access to the water at the Ewa end of th sula. This would enhance the use and safety factors of the su by enabling, for the first time, a beach entrance to these sites the Peninsula. Currently, due to the adverse conditions o Kakaako shoreline, surfers enter the water through the KewE channel (where waters are calmer) which often conflicts with and out of the Basin. Also, the proposed artificial reef sanctuary would be located s the shore such that divers and others using this feature sho tance from the transit routes of the harbor cruise and recreati These types of ships currently are traveling from the Ewa end points Diamond Head of the Kaka'ako Peninsula- the Kaka'z cally a transit route for these vessels rather than a planned p Pier 6 The proposed Pier 6 intra-island ferry landing site will be su surge conditions from southern storms due to its exposure the Honolulu Harbor channel. This would probably require tt alternate, more protected landing in the vicinity of Piers 8 to 13 of severe surge. Depending on the vessel's structural char 6-38 with appropriate response characteristics would be able to utilize Pier 6 as a land- ing site under most surge conditions. Sand Island The entire east, south and west shores of Sand Island are designated as the Sand Island State Park Recreation area. Park improvements have been com- pleted along the south shore and plans are underway to complete the remain- ing west shore bordering Keehi Lagoon. While the 2,700 feet of shoreline along the western end will be unprotected, this reach appears to be relatively stable due to the shallow reef flat and present shoreline configuration. Creation of a sheltered swimming beach was proposed at the west tip of Sand Island as part of the.Keehi Lagoon Recreation Plan Update Study. The recom- mended plan includes construction of a shore-connected breakwater at the seaward edge of the reef fronting the seaplane channel, placement of beach sand fill on the lagoon side of the breakwater, and minor dredging of the reef flat adjacent to the seaplane channel. This shallow reef flat could also be used to. create new "nesting islands" for shorebirds displaced. from Keehi Lagoon. A narrow undredged strip of reef flat would separate the shallow swimming area from the deep seaplane channel with large boulders placed on the reef strip to visually mark the boundary. The breakwater would serve multiple uses by shel- tering the water area within the seaplane channel, preventing continued erosion along the Keehi Lagoon shore of Sand Island, and improving opportunities for shoreline fishing from the breakwater. Keehil-agoon Marinas along the Kalihi-Kai and Lagoon Drive shoreline, a canoe race complex in the northeast corner of the lagoon, and a multi-purpose development in the shallow central triangle portion of the lagoon are proposed. Any significant al- teration to the fringing reef fronting Keehi Lagoon is not recommended because this reef area provides shelter to the interior water areas and is a significant natural resource. 6-39 Additional constraints to development on the fringing reef incl maintain water flow over the reef and through the channels t degradation of water quality within the lagoon, FAA height and within the clear zone and approach zone to the Reef Runway, h protected use status under lease from the State until the year 20 to provide unrestricted vessel traffic through the Kalihi Channel,, functional access to the ocean for the boats within Keehi Lago An opportunity for enhancing public use of the shallow reef flat an elevated walkway from Sand Island across the reef to the Ka elevated pedestrian causeway could be designed to allow ade over the reef, and could be an extension of the protected s proposed for the west tip of Sand Island. 6.7 MARINE BIOLOGICAL RESOURCES 6.7.1 Existing Conditions The study area extends roughly from the mouth of Ala Wai Canal and encompasses the majority of Honolulu's commercial, indu centers. It is an area with a long-term history of direct and indi of the marine environment. The nearshore waters demonstra diversity and density and, in the case of Honolulu Harbor and particular, a prevailing poor water quality. Despite a history o vironmental abuse and neglect, certain areas within the Honolul port a number of water-dependent activities, including recreati collecting, surfing, and skin and scuba-diving. Ala Moana to Kaka'ako The waters off Ala Moana Beach to Kewalo Basin and Kakaako a are classified Class "A" according to the State Department of HeE standards. 6-40 Class "A" waters are to be protected "for recreational purposes and aesthetic en- joyment." These are not to act as receiving waters for any discharge which has not received the best degree of treatment or control compatible with the criteria established for this class. Further, no new industrial or sewage discharges will be permitted within embayments (Section 11 -54-03(c) (2), Department of Health Water Quality Standards). The shoreline and offshore areas of the Ala Moana park complex are heavily fished, with most activities occurring along the breakwater, the rock walls form- ing the boundaries of the Ala Wai Yacht Harbor, and on the shallow reef flat f ront- ing the ocean side of the dredged channel off the park. The breakwater is also a popular location for limu collecting during calm seas. Nearshore waters front- ing Ala Moana Beach Park demonstrate a prevailing high turbidity because the dredged channel fronting the park is inadequate to promote an exchange of water over the reef. Eight species of coral and at least sixty-five species of fish have been recorded within the nearshore waters fronting the park. A shallow reef fronts Kewalo Basin and coral cover ranges from 17 to 30 per- cent. Nearshore there is a rubble and boulder bottom grading to larger boulders over sand toward the reef margin. The margin and reef front are composed of consolidated reef rock, broken in places by depressions and sand patches. The reef platform slopes gradually offshore to a depth of about 30 feet, then drops to 40 feet. The reef front is largely consolidated limestone, massive coral heads and coral rubble. Sea urchins and nudibranchs are abundant and sea cucum- bers, starfish and lobsters are present throughout the area. Fishes are abun- dant in the nearshore waters with between 40 and 106 species routinely ob- served. A surfing break known as Point Panic, located outside the Kewalo Basin entrance channel, is used by both board and body surfers. It is one of the finest bodysurf- ing sites in Hawaii. A second, equally popular surfing area called "Kewalos" is on the immediate southeast side of the channel entrance. This site like Point Panic is heavily used during the summer south swell conditions. 6-41 A shallow, disturbed reef fronts the present rock seawall al shoreline. The reef margin and reef front are composed of rock, broken by depressions and sand patches. The ree gradually offshore to a depth of about 30 feet, then drops to 40 ranges from 17 to 30 percent. Fish are abundant and sea cu and an occasional lobster are present. The reef flats support water-dependent recreational and commercial activities, suc and scuba diving. Interisland tugboats with barges in tow, utilize the nearshore w for alignment and mobilization when proceeding. into or out of Pole fishing is popular from the seawall fronting Kakaako an specially equipped surfboards in adjacent offshore waters. Honolulu Harbor Honolulu Harbor is located in Mamala Bay. While the Mamal designated Class "A" under the Department of Health standar harbor area is designated Class B. Class "B" waters are to be protected for small boat harbors, c dustrial shipping, bait,fishing, compatible recreation, the supr tion of aquatic life, and aesthetic enjoyment. The harbor is a receiving basin for a number of pollution sourc for its generally poor water quality. Sedimentation from upla of the primary pollution sources within the harbor. Burrowing shrimp, polychaete worms, crabs, and a few hydr comprise the major faunal elements in areas with unconsolid ments. Ten species of coral have been identified'within clos HECO power plant intake and outfall basins. The waters prov for at least forty-seven species of common reef fishes which dant in the vicinity of the thermal effluent outfall of the power used by recreational fishermen. 6-42 Sand Island A'fringing reef flat lies immediately seaward of the island. Algal coverage averages 30 percent on the inner reef, but is likely to vary seasonally. Corals are sparse and relatively few fish inhabit the reef flat. Much of the shoreline is part of the Sand Island State Park. Only small or very poor beaches occur along the shore, and these are subject to ongoing erosion which has exposed old landfill material in the intertidal and subtidal zones. Pole and net fishing are major ac- tivities along the southwestern side of the island. Limu is collected on the reef flat west of Sand Island, and surfing is a popular activity off of this area. KeehiLagoon Keehi functions as the only baiting site on the south side of Oahu when Pearl Harbor is closed for military security purposes. Harbor development, storm drainage, urbanization of upland areas, stream channelization, and dredging of seaplane runways have impacted the marine communities of the lagoon. One of the greatest recent alterations occurred when the Honolulu International Air- port Reef Runway was developed. Marine surveys conducted following construction of the reef runway suggest that marine communities continue to exist in highly disturbed environments. Five marine environments occur within Keehi Lagoon: fluvial, lagoonal, barrier reef, Kalihi Channel, and the outer reef. Examination of invertebrates, fixed algae, and sediments have indicated long-term high organic loading of the lagoon. Seven- ty-six species of invertebrates were inventoried during one study of the benthic environment of the lagoon. Urban stormwater runoff con 'stitutes a water quality problem with Kalihi Stream representing a major pollution source. Barbers Point Harbor The nearshore environment fronting the harbor receives a considerable amount of scouring due to wave activity. Coral coverage is high offshore of the scoured area. Fish diversity is high and macroinvertebrates other than corals are scarce. 6-43 Bodysurfing, pole, line, and net fishing are popular recreational side of the harbor entrance. 6.7.2 Future Conditions Without the Project There will probably be continued direct and indirect degradat ces without the project. 6.7.3 Future Conditions With the Project, Probab Mitigating Measures The Honolulu Waterfront Master Plan projects are expected to ditions of the overall marine environment in the long run. The the conditions anticipated by project area. Ala Moana Beach Park Circulation Channel A circulation channel between Ala Moana Beach Park and th Basin peninsula is proposed for the purpose of improving tf through the reef which would enhance water quality. Marine Science and Research Center The development of a Marine Science and Research Cente Peninsula Park near Kewalo Basin would require seawater pipelines. This development proposes to consolidate and ce ing but scattered marine research activities in the Kewalo Be Peninsula areas, such as the U.H. Marine Mammals Lab, Fisheries Service, Pacific Biomedical Research Center (P Laboratory. Stabilization of Kaka'ako Waterfront Park Shore(ine and Shoals Offshore Offsetting the minor adverse consequences of the ocean intakE at Kewalo and the stabilization of the Kakaako shoreline woul 6-44 of manmade nearshore surf shoals and man-made offshore reef habitats. Topographic relief provided by new man-made marine habitats would increase the appeal of the area to skin and scuba divers. Such structures are likely to be colonized eventually by a greater diversity of marine organisms than presently occurs in the area. In the short-range, construction in the waters off Kewalo Basin and Kakaako would result in silt, sediment, and nutrient loading in the water column. This would reduce water quality in the immediate and surrounding areas. Fishermen, divers, and surfers who may presently utilize the area would be displaced during. the construction phase of the projects. Siltation curtains would be used to minimize the amount of turbidity caused by underwater construction work. Long-term impacts would be positive however. Improved circulation would reduce the prevailing high turbidity levels associated with the existing channel and swimming area fronting Ala Moana Beach Park and improve overall water quality. Over the long run, improved circulation and flush- ing is expected to increase the biological diversity within the existing channel and adjacent reef flats and add appreciably to the aesthetic quality of nearshore waters fronting Ala Moana-Beach Park. Various Dock and Shoreside Facilities in Honolulu Harbor Construction of various dock and shoreside facilities would cause short-term dis- turbance of the benthic environment in the harbor. However, Honolulu Harbor has a history of periodic maintenance dredging, and significant long-term ad- verse environmental consequences have not been associated with these past dredging events. Extension of Sand Island State Park The long-term environmental consequences of shoreline park development. on the marine environment are expected to be positive, despite minor short-term impacts related to construction. Stabilization of the shoreline would also prevent the recurring exposure of landfill materials which pose a potential public safety 6-45 hazard. Any improvements in water circulation associated vi upgrades would improve water quality along the makai reache facilitate flushing within the Keehi Lagoon area. Keehi Lagoon Triangle Filling the Keehi Lagoon triangle to create the industrial/recrea potentially eliminate most benthic marine life and habitats in th turbed, heavily silted embayment. The proposed filling could disturbance of the baiting (e.g., nehu) sites. However, in the lo pected that some of these would be restored through the process. Possible impacts on shorebirds could be mitigated by constru( ing islands on the shallow reef flat adjacent to the Sand Island presence of various new industrial, commercial, and maritime u would probably result in additional point-source and non-point of the lagoon waters. Fishing opportunities on the shallow reef flats, channel slop basins would be lost as would the habitat for the various fishes of recreational, subsistence and commercial fishing importan shallow reef flats would also eliminate limu collection in the fille The new breakwater constructed off the southwest corner C protect the proposed swimming beach would serve several u the water area within the seaplane channel, preventing continu the Keehi Lagoon shore of Sand island, and improving opportur fishing from the breakwater. It should be noted here that a full environmental impact state underway for the Keehi Lagoon Recreational development pro be addressing impacts and mitigating measures discussed ab Engineering and Marine Biological Resources sections. 6-46 6.8 INFRASTRUCTURE AND PUBLIC SERVICES 6.8.1 Existing Conditions Wastewater Systems The waterfront area is serviced by major sewer lines on Ala Moana Boulevard and Nimitz Highway. Another major sewage line runs down Ward Avenue to Auahi Street and enters the Ala Moana Sewage Pump Station off of Keawe Street. The sewer line on Nimitz Highway from Kalihi Stream to the Hart Street Sewage Pump Station is inadequate. Preliminary engineering studies are underway for a portion of this sewer line fro m* Waiakamilo Road to the Hart Street Sewage Pump Station with construction of the proposed improvements to be completed by mid-1990. The sewer line from the Ala Moana Park Sewage Pumping Station along Ala Moana Boulevard to the Ala Moana Sewage Pumping Station is adequate and no plans exist for any major upgrades. The 72 - inch x 72 - inch sewer line on Auahi Street from Ward Avenue to the Ala Moana Sewage Pump Station is planned for replacement by a new relief sewer line. A portion of the sewer line on Auahi Street from Koula Street to Keawe Street will be constructed as part of the Kakaako Improvement District 2. The remainder from Koula Street to Ward Avenue will be constructed as the East End Relief Sewer Project. The existing line will be maintained as a relief line. All of the primary sewer lines in the City and County of Honolulu are presently being analyzed for adequacy in the Islandwide Sewer Adequacy Study for the Department of Public Works of the City and County of Honolulu. The study is ongoing and is not expected to be completed until mid-1989. There are two major force mains that transmit the raw sewage from the Hart Street and Ala Moana Sewage Pumping Stations to the Sand Island Wastewater Treatment Plant. 6-47 From the Hart Street Sewage Pumping Station, a 48-inch fo main carries the sewage from Pier 33 across the harbor to Pier wastewater treatment plant. From the Ala Mcana Sewage Pu 78-inch force main carries the sewage from Pier 1 under the F Entrance Channel to the Sand Island Park and on to the treat original 60-inch Ala Moana sewage force main under the harbor nel is maintained as a backup to the 78-inch force main. For the fiscal year 1987-88 the Hart Street Pumping Station pum of 15.5 mgd while the Ala Moana Pumping Station pumped an mgd. The two sewage pumping stations have capacities of 6 mgd, respectively. The capacities of the two pumping stations a to be exceeded by the year 2010. Water Supply Systems The water system in Downtown Honolulu is within the Low Servic Board of Water Supply of the City and County of Honolulu. This from Makapuu Point in the east to the Moanalua Drainage Div The primary sources of the Low. Service System are the Pun Kaamilo, Moanalua, and Wilder Wells, the Halawa and Kalihi Shaf Beretania, and Kaimuki Pumping Stations. Pump demands arE pumps or by pump reservoir systems. These sources are prese near full capacity. The Low Service System presently distributes water from the toward Makapuu Point. The system is a combined transmission system. The sources are primarily located in the western portic while the majority of the reservoirs in the system are located in tion of the system. In 1988 an average of approximately 57.7 mgd of potable wat met by the Low Service System. Of this amount, 32 mgd Downtown Honolulu to the demand centers in the east. Boost 6-48 Kaimuki and Kapahulu areas are utilized to maintain the water levels in the reser- voirs in the area from Waialae to Hawaii Kai. The filling of these eastern reser- voirs by the water sources in the western portion of the system is a major factor in the operation of the Low Service System. The, water supply system of the Downtown Honolulu area includes water mains over 60 years old. Some water lines are still smaller than the Board of Water Supply's present minimum diameter of 8 inches. Drainage Systems The drainage system of the waterfront area contains some drain lines -con- structed as long ago as 1921. Since then, the design standards for drainage have undergone many changes as more information and experiences were gathered by the design community. The majority of the existing systems were not designed to the new City and County Drainage Standards and are no longer considered adequate. In the waterfront area, the land is rather flat and low in elevation which accentuates the drainage problems because there are large tributary areas upstream. Most of the drainage systems cannot accommodate the 50-year flood except for a portion of the Kakaako area drainage system recently upgraded by the Kakaako Improvement District 1. Electrical Power and Communications Systems Electric, telephone and cable television (CATV) demands in the waterfront area are presently served via existing overhead pole lines and underground duct sys- tems. The overhead and underground facilities are within road right-of-ways or easements granted to the utility companies. Hawaiian Electric Company's generation capacity is approximately 1,300 MW, with a present peak demand of approximately 1,000 MW. Existing on-site facilities include the Honolulu Power Plant which is located in the Aloha Tower area. The power plant is capable of generating approximately 120 MW of electricity and is currently used during peak loading periods. Existing substations serving the waterfront include: Keehi sub- station, Mapunapuna substation, Kapalama substation, Sand Island substation, 6-49 lwilei substation, the Honolulu Power Plant, Kakaako substation tion, Makaloa substation, and Ena substation. Existing telephone facilities in the Waterfront area are served fr Telephone Company central office located on Bishop Street and office. Facilities from Kakaako to the area mauka of Nimitz Kapalama Canal are served from the central office, and the a Kapalama Canal are served from Kalihi. Also, Hawaiian Teler presently maintains a base yard in the Ft. Armstrong area, adja Bond Building. The site is leased from the Bishop Estate until t CATV service in the Waterfront area is currently provided by Oc isting CATV facilities are served from Oceanic Cable's headqu cated on Waimanu Street. The Barbers Point Harbor site is essentially without utilities. El and CATV requirements for the areas in the vicinity of the harb served via existing overhead pole lines and underground duc overhead and underground facilities are within road right-of-wa granted to the utility companies. Existing telephone facilities for areas in the vicinity of the harbor the Hawaiian Telephone Company Waipahu central office via t remote office. 6.8.2 Future Conditions Without the Project Wastewater Systems The sewage collection system along Nimitz Highway and Ala IV will require major improvements in order to meet the increase the Honolulu area by the year 2010. The 54 inch line on Nimi Kalihi Stream to Waiakamilo Road will require a relief line as w inch sewer lines on Ala Moana Boulevard from Nuuanu Stream Sewage Pump Station. The Kamehameha Highway Sewage F 6-50 require upgrade and other sewer lines mauka of the Nimitz Highway and Ala Moana Boulevard corridor will be over capacity. The capacities of the two pump- ing stations are adequate with or without the project. However, the Sand Island Wastewater Treatment Plant with a design capacity is 82 mgd, is expected to be near capacity within 5 to 10 years even without the project. Land has been set aside next to the treatment plant for expansion., The Division of Wastewater Management of the Department of Public Works is presently studying the situation but cannot prepare definite plans until a Waiver of Secondary Treatment Permit is approved or denied by the Federal Environ- mental Protection Agency. Water Supply Systems The sources for the existing Low Service System are presently pumping to capacity. There is very little additional water supply available for major develop- ments in the Honolulu area. The Board of Water Supply is aware of the situation and is making every effort to develop new groundwater sources throughout the Island of Oahu as well as investigating the potential of alternative means of potable water development, such as effluent reclamation and desalinization. Relative to transmission of water in order to meet the greater water requirements of areas, such as Waikiki, where demand is expected to increase, the Low Ser- vice System must be improved with the construction of larger distribution and transmission mains. To meet the future requirements of Kakaako Mauka, further improvement is planned for construction with Improvement District 2 and the other Improvement Districts to follow. The Board of Water Supply is presently planning a new trans- mission main from Liliha Street through the downtown area to Kuhio Avenue in Waikiki with a preliminary alignment along Ala Moana Boulevard, These pianned and future improvements will allow the Board of Water Supply to maintain water system pressures in the downtown area within the 170-foot to 180-foot head 6-51 range. These improvements will minimize the occurrence of br associated with high operating pressures. Drainage Systems The major drainage system upgrade project is the Kakaako I trict 2. The Improvement District construction is scheduled to s Upon completion of Improvement District 2 the area from Keaw Street near the waterfront will have the adequate drainage fa modate the 50-year flood. Improvement District 1 improved t tern from Punchbowl Street to South Street. The major project ment Districts will be the Ward Avenue Relief Drain which wi along Kamakee Street and discharge into Kewalo basin. Electrical Power and Communication Systems HECO anticipates that the Honolulu Power Plant will be require Shortly thereafter, when substitute power generation is availab to shut-down and dismantle the power plant. While HECO d firm plans to develop the power plant site and/or to relocate another, site, an opportunity exists for a highrise mixed-use o this site because of its prime downtown waterfront location. This potential re-use of the site seems to indicate that a substitu tion facility would be necessary within five to six years. Hawaiian Telephone Company is planning to upgrade their fa modate the Kakaako Mauka redevelopment project. Major i clude obtaining a site midway between Alakea Street and Atk and constructing a new central office. Anticipated completio 1990. In the Barbers Point Harbor area, HECO will be upgrading th commodate the Ko Olina Resort. Major improvements includE 6-52 substation and constructing 46-KV overhead lines along a utility corridor paral- leling the OR & L right-of-way. Similarly, Hawaiian Telephone will be upgrading their facilities to accommodate the Ko Olina Resort. Major improvements include constructing a new central of- fice which it expects to complete by 1990. 6.8.3 Future Condition's With the Project Wastewater Systems The proposed waterfront developments will require new sewer lines, force mains, and pumping stations in the Kakaako and Keehi Lagoon areas, and possibly re- quire upgrades to the existing collection, treatment, and disposal system as well. The sewage generated by the developments will be brought either to the Hart Street and or to the* Ala Moana Sewage Pumping Stations. Water Supply Systems The proposed development will not increase the water demand within the study area when compared to the projected ultimate demand of the area as presently zoned, except for the Keehi Lagoon area. The,development of the waterfront area will increase the demand for water in the downtown and Kakaako areas when compared to the existing demand. The development of the waterfront area will probably require participation in the source development and transmission main construction plans of the Board of Water Supply. Drainage Systems As the Waterfront area is developed according to the Master Plan, new enlarged drainage outlets can be constructed to improve the existing systems. New larger drainage structures will also be required. eventually upstream of these outlets. 6-53 Electrical Power and Communications System Kewalo Basin. Based on the loads forecasted for the activities the area, it is anticipated that a new substation will be required to demands if a substation is not provided in the Kakaako redevel KV distribution feeders from the substation will be connected formers located adjacent to project facilities via switching vault the 12-KV distribution feeder routes. Hawaiian Telephone plans to upgrade their facilities to ac Kakaako redevelopment project. Major improvements are capable of serving the activities programmed in the propos redevelopment plan. Existing overhead facilities may be relocat Fort Armstrong Area. The substation at the Honolulu Powe provides power to the downtown area. Spare capacity availa tion is not adequate to serve significant developments in the Ft. Armstrong areas. It is anticipated that a new substation V@ serve the project demands. A substation provided in the Ft. Am allow removal of the substation adjacent to the Honolulu Powe In addition, existing overhead facilities in the Ft. Armstrong a cated underground; a network of underground ducts and han provided in the redeveloped areas to facilitate cable installatio Based on the activities programmed for the Ft. Armstrong e areas, there are no probable impacts which would require upgrE and CATV facilities to accommodate the demands of the mast Keehi Recreational Area. Based on the forecasted loads for substation would probably be required. '12-KV distribution fee( substations would be extended to service transformers loc project facilities via switching vaults pTovided along the 12-KV d routes. 6-54 Existing overhead facilities may be relocated underground; a network of under- ground ducts and handholes should be provided in the redeveloped areas to facilitate cable installation. Based on the activities programmed for the area, there are no probable impacts on the existing capacities of the telephone and CATV services. Sand Island. Based on the f brecasted loads for this area, a new electric sub- station would be required. 12-KV distribution feeders from existing substations will be extended to service transformers located adjacent to project facilities via switching vaults provided along the 12-KV.distribut.ion feeder routes. Hawaiian Telephone would probably require a remote office to accommodate the demands of this area. General requirements *forthe remote office include: a site approximately 60' x 90', site approval by Hawaiian Telephone, and ap- propriate easement corridors for line extension to the office site. There would probably be no impact on the existing CATV facilities that wou Id call for substantial upgrades, except for providing additional ducts and cabling. 6.8.4 Probable Impacts and Mitigating Measures Wastewater System The proposed Waterfront development will probably not greatly impact the ex- isting and planned sewerage systems of Honolulu, except in the Keehi Lagoon area. The future development in this area has been planned in the Keehi Lagoon Recreation Plan Update. The Hart Street and Ala Moana Sewage Pumping Sta- tions have adequate capacity to deliver the future sewage flows to the Sand Is- land Treatment Plant, but, as stated earlier, the treatment facility is nearing capacity. The upgraded treatment plant must be sized and have adequate capacity to treat the sewage generated by the proposed Waterfront develop- ment. 6-55 Water Supply System The development of the Waterfront area will probably increase water in the downtown and Kakaako areas when compared demand. This increase in water demand will impact the Low which will soon have difficulty delivering water to major deman east, such as Waikiki. This anticipated increased demand pose transmission and storage and with the capacity of the existing The development of the waterfront area will probably require pa source development and transmission main construction plans Water Supp .ly of the City and County of Honolulu. In the Kak development arrangements have already been made with t waterfront development will also require coordination with the sion and the Division of Water and Land Development of the Der and Natural Resources. Drainage System The proposed developments will probably improve the draina@ area. The study area contains many of the outlets of the maj tems of downtown Honolulu and the Kakaako area. Except k designed Kakaako drainage systems described above, these d cannot adequately accommodate the 50-year floodP As the ar new enlarged drainage outlets can be constructed to improve New larger drainage structures will also eventually be required u outlets. Construction of the necessary infrastructure improve temporary traffic congestion on Nimitz/Ala Moana Boulevard co this inconvenience will be short-term. Electrical Power and Communications System Relocated overhead lines and underground cable installations 6-56 will be installed similar to the existing facilities, following standard utility company practices. HECO, Hawaiian Telephone, and Oceanic Cable are responsible for maintenance of the lines and facilities for their best and efficient use, therefore it is expected that these facilities would have minimal negative impact on the sur- rounding areas. All offsite work will be constructed and maintained followingthe utility company's standard practices. Inland Waterways The planned network of canals or waterways in the inland area of Kakaako Penin- sula will be integrated into the existing drainage system. There are three sour- ces of energy which may cause a positive flow or circulation in the waterway sys- tem. One is tidal action, the second is wind-induced currents; and the third is freshwater inflow. The Ala Wai Canal would be a close example of what is en- visioned for the Kakaako inland waterway system. A depth of -6 feet Mean Sea Level (MSL) for the waterways is reasonable based on the following considera- tions: Because there would be no apparent driving force for positive circulation flows through the waterway system, the tidal prism is the major influence in flushing of these water areas. The flushing efficiency is determined by the proportion of water removed over a tidal cycle. The proportion of water removed on the ebb tide is equal to the ratio of the theoretical flow into the waterways (tidal prism) to the total volume of water (tidal prism + MLLW volume). For a 2-foot tide range over a water depth of -5 feet MLLW (-6 feet MSQ, the proportion of water removed over one tidal cycle is 28%. Thus, a gross assumption of the residence time is about 2 days, whereby the waters would be completely turned over within the 4 tidal cycles of the 2-day period. The deeper the canals, the less the flushing efficiency. *A depth of about 1 @5 feet should be allowed below the maximum vessel draft to account for extreme low tides, vessel behavior, and uncertainties in the bottom characteristics. Thus, for a design depth of -5 feet MLLW, 6-57 the maximum allowable vessel draft is 3.5 feet, which is quate for small motorboats at less than 35 feet in length. * The top elevation of the shoreline bordering the can enough freeboard to prevent overtopping and inundatio high water levels. The design still water level (SWL) sho ricane setup effects plus storm drainage flows. An ave elevation of about + 5 feet MSL would probably be appro recorded tsunami height at Fort Armstrong was 5 feet. * The prevailing tradewinds can be utilized to some extent of the waterways. Wind data from the Honolulu Airpo tradewinds blow from the northeast with a speed of apprc during 50% of the year. A wind blowing across the w produce a surface flow out of the waterway having proximately 2% of the wind speed. The wind-induced fl ticularly useful for aiding in the exchange of the stratifi which may not be exchanged by tidal action. The net freshwater inflow to the waterways due to land d sible additional flushing mechanism. The degree to whi( inflow will influence the waterway flushing is indicated b freshw 'ater inflow during a half tidal cycle to the tidal pris the direct effect of freshwater inflow to a large tidal wate unimportant. However, for the relatively' small vol proposed the freshwater inflow may be important. The proposed interior drainage systems for the Kakaako Ma directly into the proposed waterways, thereby reducing the siz drain lines. The waterways will be at least 100 feet and have below mean sea level. The mauka-makai waterway branch wil 30-foot wide concrete channel to be constructed by the KakaE District 2 project. The new waterway will provide over twice th area of flow, reducing the velocity of the storm waters, so no los is expected as long as the proposed waterways are properly 6-58 Public Services: Fire Protection The Pawaa, Kakaako, and Kalihi Kai Fire Stations service the project area. The Kakaako station, located near the intersection of Queen and South Streets, ser- vices the area from Punchbowl Street to Kamakee Street. The Pawaa Station provides service to the area between Kamakee and Piikoi Streets. The Kalihi Kai Station located on Waiakamilo Road and Nimitz Highway services the areas from Downtown going Ewa to Lagoon Drive and Sand Island. The City and County of H onolulu staffs and maintains the Pier 15 fireboat station in Honolulu Harbor. Waterside activities and vessels are serviced by this station. Probable Impacts Adequacy of existing fire protection has yet to be determined for specific develop- ment projects. Adequacy of services will be determined in future, project-specific environmental impact statements. Police Protection The Waterfront project area is located within the Honolulu Metropolitan District I which extends from Hawaii Kai to Pearl City. District I headquarters are current- ly located in Pawaa, but are in the process of relocating to a site on Hotel Street between Beretania and Alapai Streets. This new proposed location would be closer to the project area. Currently, there are 2.5 police employees per 1,000 population on Oahu. Additional police service for the projects will depend on demand (calls for service), and the rate of development within the District. The DOT Harbor Patrol provides protective services to the Honolulu Harbor waterside vessels and activities. 6-59 Probable Impacts Adequacy of existing services will be determined in future envir statements for specific projects in the Waterfront. Parks and Parks Maintenance Additional urban park space is proposed for development i Master Plan. The new park is to be located in the Kakaako P belts along the waterfront pedestrian promenades will be d shoreline parks and to enhance the shoreline corridor. Thes quire additional operating funds for parks maintenance. Based ing costs for Honolulu urban parks (Magic Island and Sand Is annual costs for parks maintenance would be approximately per acre (1988 estimates). 6.9 PETROLEUM FACILITIES 6.9.1 Existing Conditions At present the petroleum-oils-lubricant (POL) facilities occupy 2@' ly-owned land fronting Piers 30 and 31. The landside area is and distribution of POL. Bunkering of ships occurs along Pier Due to the recurring community concern over the potential hazards associated with the proximity of POL facilities to Do and Kalihi-Palama, a special study was commissioned as part project to explore the feasibility of relocating and consolidating and distribution facilities and some of the jet fuel tankage. Current Petroleum Distribution Systems The Honolulu Harbor petroleum complex represented by the m of Chevron USA, Shell Oil Company, Pauley Petroleum, Pacifi Aloha Petroleum, and Unocal consists of storage tanks a 6-60 facilities through which 90 percent of all the state's petroleum passes. Storage tanks hold three grades of diesel, commercial jet fuel, residual o il, and asphalt.' Honolulu markets consume over 75 percent of the total throughput and are ser- viced by tanker trucks loading at five truck racks. The remaining 25 percent passing through this complex is loaded onto petroleum barges for transport to the neighbor islands. Approximately 80 percent of these products are piped from th e Campbell Industrial Park refineries together with Gasco synthetic natural gas. Nearly 70 percent of the deliveries from the five truck loading racks in this petroleum complex occur between Pearl City and Hawaii Kai. Chevron and Uno- cal service stations, the largest suppliers of retail gasoline, are clustered in this region. Tanker truck deliveries to trucking, bus, and contractor company under- ground storage tanks are also concentrated in this region, and these account for most of the automotive diesel consumed in Honolulu. Hotel and institution- al sales account for a lesser, but important, market for diesel fuels. The central area for petroleum distribution is at Piers 29 (PRTI), 30 (Chevron), 31 (Shell Oil) and the Unocal terminal. Other than tanker deliveries of gasoline and diesel to Unocal from its West Coast refineries to augment purchases from Chevron or HIRI, all gasoline (3 grades) and diesel fuels are supplied by the two local refineries to bulk fuel facilities. The established bulk fuel facilities in Hawaii's harbors have changed little since 1960. Figure 24 delineates the harbor petroleum complex along Nimitz Highway together with jet fuel storage facilities on Sand Island Access Road. The major consumption centers of the state are on Oahu. The Honolulu Inter- national Airport furnishes facilities for refueling aircraft departing Hawaii for the mainland and for Far East destinations, as well as for most interisland flights. Over 40 commercial air carriers and several non-scheduled airlines make regular use of the airport. Also, the nearby Hickarn Air Force Base provides services to home-based and visiting military aircraft. These aircraft utilize the same runways 6-61 FIGURE: 24 EXISTING GAS/PETROLEUM PIPELINES IN THE WATERFRONT _zz Feet rm"%.jm"m"wl 0 800 1600 & UNOCAL "--3-CHEVRON JET FUEL CHEVRON @'--HFFC HIRI HECO HFFC SHELL- HIRI I-PR HFFC & HIRI UNOCAL--, HFFC HIRI HIRI C@) HONOLULU WATERFRONT MASTER PLAN i nuary 1989 6-62 and conform to flight patterns used by commercial airlines. A network of pipelines supplies the airport fueling facilities. The largest single user of black oil is the Hawaiian Electric Company which burns approximately 28,000 barrels per day (BPD) at its Kahe and Waiau power plants situated on the leeward coast of the island. These plants are supplied by Chev- ron from its Campbell Industrial Park refinery through heated pipelines. To supp- ly this demand, Chevron imports fuel oil from the mainland to augment its produc- tion at the Campbell Industrial Park refinery. - Of the daily average consumption of approximately 24,000 barrelsof all grades of gasoline in the state, Oahu drivers consume nearly 74 percent. In addition to the petroleum pipelines carrying gasoline, jet fuel and diesel products from the refineries at Campbell Industrial Park to distribution facilities in Honolulu, the gas utility maintains a synthetic natural gas pipeline for services to its customers along its route from Barbers Point to Honolulu. Four large main lines consisting of Chevron clean and black oil pipelines, one HIRI clean product line and the gas utility SNG pipeline run nearly parallel to each other from Campbell Industrial Park to the Honolulu POL complex. The State-owned energy corridor as delineated in Figure 24 contains the HIRI 10-inch clean products pipeline and the Gasco 16-inch SNG pipeline, and has three additional slots for other corridor leases. Pipelines running from these bulk storage facilities to the satellite terminals at Honolulu International Airport are as follows: *Chevron's three 4-inch pipelines running along Nimitz Highway across Keehi Lagoon and along the airport service road to its airport terminal. HFFC: maintains a single, 10-inch pipeline, formerly owned by Shell Oil, running along Sand Island Access Road, crossing Keehi Lagoon and along the service road to its airport terminal. 6-63 � Texaco has sold its two 6-inch lines, which follow closely by the HFFC 10-inch pipeline, to HIRI and to the HFFC. � Union Oil utilizes one of the 6-inch pipelines to which it inch line on Sand Island after crossing Kapalama Channe � HIRI maintains three 22,000-barrel tanks and the two 13,0 acquired from Union Oil at the airport. 6.9.2 Future Conditions The recommended option is to allow the existing POL facility to but to ensure enhanced safety and fire protection systems and tr and to minimize the visual impacts of the terminals. The long t remain one of relocating all petroleum facilities (with the excepti fuels) to the Barbers Point/Campbell Industrial Park area. Each terminal would be expected to include the following mini for fire protection systems, with additional equipment as may be site surveys: e A five-thousand gallon foam system (capacity to suit tank * A vapor recovery system for volatile products; * Bottom loading equipment at truck racks; * High level alarms and computerized product transfer contr quisition; * Fire protection training and response drills; * Mutual support a greements for fire-fighting equipment an *Cooperation with the Honolulu Fire Department in upgrc, procedures and fire drills; A public education program. 6-64 An integrated facility improvement program would be required to screen the ter- minals from street levels to include landscaping along the Nimitz Highway frontages and intersecting streets. The improvement features would include: e Construction of a system of attractive 10-15 foot high walls and landscap- ing along the Nimitz Highway frontages. *Providing setbacks to permit landscaping and plantings strategically lo- cated along the walls and at entrances; e The program will be coordinated with other business associations in the vicinity. e Elimination of unnecessary facilities, i.e., unused tankage and enhancing the visual appearance of remaining facilities. 6.9.3 Probable Impacts and Mitigating Measures Analysis and improvement of the fire protection systems would reassure the public that the risks of fires have been reduced. The aesthetically upgraded com- plex can be expected to become more compatible with the changing environ- ment in this district. The improved fire prevention systems with vapor recovery and bottom loading features will also measurably reduce the air pollutants which are normally associated with petroleum storage and transfer operations. 6.10 SOCIAL/RELOCATION IMPACTS 6.10.1 Existing Community The project area encompasses approximately 1,550 acres extending from the Ala Wai Yacht Harbor westward to Ala Moana Park, Kewalo, Kakaako Peninsula, including Honolulu Harbor, and to Keehi Lagoon. The project area is physical- ly separated from the inland areas by a major roadway system which includes Ala Moana Boulevard/Nimitz Highway and Lagoon Drive. 6-65 This physical boundary, coupled with practical barriers and saf( contributes to the isolation of portions of the waterfront from th munity. Generally, the community uses the major parks in the ar Sand Island and Keehi Lagoon Parks, but does not venture into areas unless there is a specific maritime, commercial or industria Thus, the community is not exposed to or is unaware of large ar ocean. The Honolulu Waterfront consists mainly of three different neigh are represented by the following neighborhood board areas Kakaako Neighborhood Board No. 11; Downtown Neighborhoo and Kalihi-Palama Neighborhood Board No. 15. These neighborhoods currently have separate identities, distinct problems, and different expectations of how their communiti These mauka neighborhoods share common characteristics average unemployment rates, relatively low median income anc tion of people below the poverty level. Their differences, howe important in understanding how these neighborhoods may be 1980 census shows that: * Kalihi-Palama has the largest residential community wit Downtown had approximately 9,000; Ala Moana-Kakaako * Ala Moana-Kakaako and Downtown have older population households and families. Kalihi-Palama, on the other han the island population in household size. *Downtown's community was the most mobile, with less t its residents living in the same house five years prior to t the other hand, almost 60 percent of Kalihi-Palama residE caiegory. On Oahu, 48 percent fit this description. Kalihi-Palama was the only area which experienced a decr units. 6-66 The Neighborhood Board minutes over the past 12 months also indicate differen- ces and similarities: The Ala Moana-Kakaako Neighborhood Board has tended to discuss matters with two underlying themes: (1) establishing better compatibility between resi- dents and commercial establishments, and (2) roadway and traffic safety. Com- munity concerns often focus around noise, traffic and parking problems caused by some commercial establishments. The Board was interested in eliminating adult entertainment establishments. Also, many of the specific issues involved the elderly in some way. The Downtown Neighborhood Board has dealt primarily with problems linked to the presence of many people and diverse activities in a restricted area. Concern was expressed with safety, with beautification, with illegal activities and suspi- cious loiterers, and with street people. It appears that the most pervasive issue was noise. Although this Board is open to the community changes, this support is increasingly tempered by a need to accommodate the growing community. The Kalihi-Palama Board's basic concern was improving the general quality of life for current residents. Board members often express apprehension if chan- ges occurring in the area do not directly contribute to the eventual improvement of the area. Proposals to provide housing for the elderly and homeless were viewed favorably, though after much discussion of potential problems. This Board also expresses frustration with the existing infrastructure and the current delivery of public services,, it is felt that these services are not adequately accom- modating the existing population. 6.10.2 Future Conditions Without the Project Issues and concerns documented in these Neighborhood Board meetings indi- cate future expectations and concerns as these urban communities grow even without the project. The Ala Moaha-Kakaako community has been undergoing a slow shift from a light industrial/residential mixed use community to a commer- 6-67 cial/residential mixed use area, particularly with major re Kakaako. This trend is certain to continue for this community i Kalihi-Palarna will continue to function as a relocation dustrial/residential mixed uses from the Alp Moana-Kakaako n well as a first home to many newcomers to Oahu. This comm cope with its aging infrastructure, and growing industrial u Honolulu Harbor. Downtown Honolulu will, like other large metropolitan cities, perience problems associated with the increasing and diverse tl@iings as services by a growing residential community and en flicts between such things as traffic and noise, and downtown 6.10.3 Future Conditions With the Project/Probabl Probable Statewide Impacts The Honolulu Waterfront planning process has an island wid orientation. Such a planning focus makes every effort to ensu impacts of a successful waterfront development are generally Maritime Provisions. These give people a sense of confidenc dependency on maritime activities is being addressed on a Hawaii's residents are very aware of the State's dependency on tation, and a consistent sentiment in earlier focus group discussi to make sure that Hawaii's present and future maritime ne modated. Economic Opportunities. A goal of the Master Plan is to ir economic opportunities. This would be achieved by: (1) diver to provide more commercial and office spaces; (2) identifying tivities promoting ocean-related business ventures; (3) conso and research facilities; (4) encouraging private sector redevelop public costs and maximize public benefits; and (5) reducing pri 6-68 by providing sufficient off-site infrastructure and establishing partnerships. Sig- nificant new employment opportunities are expected to be provided as a result of Master Plan implementation. Probable Islandwide and Regional Impacts and Mitigating Measures Recreational Provisions. The waterfront's recreational potential will be realized through: (1) the expansion of Ala Moana and Sand Island Parks; (2) the im- plementation of the Keehi Lagoon Recreation Plan; (3) the development of the Kakaako Waterfront Park which will include an amphitheatre for performances; and (4) the development of an urban park area at Pier 15. General Waterfront Access. Shoreline access is a critical issue, and much of the existing waterfront is currently physically, visually and phychologically inac- cessible to the general public. The master plan is positively addressing this com- munity concern by: (1) providing shoreline access through the expansion of ex- isting on-site parks and the development of new recreational areas; (2) increas- ing people's visual awareness of the water; (3) designing a continuous promenade; and (4) encouraging more people-oriented facilities. Consideration of Compatibility Needs. The master plan attempts to avoid fu- ture incompatibility among maritime, recreation, industrial and commercial users. Ho 'wever, a study commissioned to address community concerns regarding safety and the desire to relocate storage fuel containers from Iwilei yielded that the fuel facility in the short-term may remain in place but with conditions. In the long-term, relocation to Campbell Industrial Park is recommended. Probable Neighborhood Impacts and Mitigating Measures Ala Moana/Kaka'ako. The magnitude of planned community changes sug- gests the community's makeup, urban landscape and people systems will probably change as the Kakaako Community District Plan is implemented. With the revitalization of many existing uses and the infusion of new uses, the area will become more diverse and populated. 6-69 Potential social impacts on this community include increased (already a problem for most communities) mixed with new for some noise impacts due to intensifying uses, and increase reasonable proximity to existing and proposed residential area compatibility is expected to be minimized because of separati Moana Boulevard. Downtown. This area is already experiencing ongoing chan( and proposed Downtown residential complexes and offic Chinatown revitalization efforts. Thus, the master plan is likel) a continuation of already occurring development. Both the res ness communities may view the waterfront development as r facilities and activities for their respective existing communities Potential social impacts of the project on the Downtown neigl@ enhancing the business climate, diversifying Downtown Downtown and Chinatown residents, creating a more active, p mosphere, increased traffic congestion, plus new forms of trc, increased noise levels for nearby residences. Kalihi-Palarna. This area is probably the least likely to development changes because of the predominance of small, ir parcels. Current revitalization attempts are isolated, and m publicly sponsored. The area is home to over three times the other two neighborhoods and part of Kalihi-Palama's reside Kalihi Kai - is located within the planning area. Kalihi-Palama i to have a sense of ownership over the waterfront. Other potential social impacts include increasing most forms because of a continuance of industrial and maritime uses, incre park improvement and expansion, and improvement of the San area. Industrial relocations will probably cause an increase i and impact existing traffic patterns. 6-70 Kalihi-Kai will most directly experience the potential neighborhood impacts result- ing from maritime and industrial development bec ause of its proximity to the planned changes. This area is already housing more light industrial and com- mercial businesses, however, and the proposed plan may quicken the current trend towards non-residential uses. Mitigation Measures: It is anticipated that the expansion of recreational activities and park lands in Keehi Lagoon would provide positive impacts which would offset other impacts considered to be burdens on the community. The Kalihi-Palama community may value increased employment opportunities in their neighborhood because of their relatively high unemployment rate. Displacement and Relocation Impacts Development of the Honolulu Waterfront will result in displacement and/or reloca- tion of some current activities and facilities. Displacement is defined as any direct or indirect action, public or private, which forces households or businesses to move either temporarily or permanently. Temporary displacement is defined as a condition where households or businesses may return to the neighborhood or district after improvements are completed. Thus far, three general categories of potential displacees have been identified: 1 . Specific businesses which will be displaced solely because of the master plan. These are primarily in the Kewalo and Kakaako subareas, and include restaurants, research facilities, government agencies, tour-related companies, food distribution and warehouse operations, and light industrial uses. 2. Businesses or activities which may relocate anyway because they are cur- rently planning changes. These are also in the Kewalo and Kakaako sub- areas and include facilities housing research and marine supply activities, as well as the City's Corporation Yard. 6-71 3. Businesses or activities which may be displaced as a resul redevelopment efforts. Some redevelopment efforts are alread implementing a plan for change, which will also cause displace pendent of the master plan. Relocation Program The relocation program proposed for the Waterfront is made up components: (1) identification and assessment, (2) relocatio relocation sites, and (4) relocation services. Identification Assessment. Early identification of businesses that will be affected by planned improvements is an important overall success of the relocation program. The governmental jurisdictional authority over a planning area shall be responsibl all business and residences affected by development. Once identified, the responsible governmental agency shall notif@ sees, and tenants of the impending improvement project. On assessment should be made to determine the type of assistaric impacted business or resident would be entitled. Relocation Payments. Relocation payments include pay households and businesses displaced by public land acquisitic ment. The size and nature of relocation payments by publi generally limited throughout the state to standards established i ter 111, HRS. The State Legislature in 1982 authorized the HC relocation services to residents and businesses who arE governmental development activities with the Kakaako area. If Federal actions are involved that require relocation of busines,' then the provisions of the Uniform Relocation Assistance and R quisition Policies Act of 1970 (P.L. 91-646) would be applicable. 6-72 Eligible displacees are defined as residents and commercial or industrial ac- tivities, which have been displaced in the waterfront as a result of redevelopment. Priority should be given to those displaced through government action. Equitable relocation assistance payments to displaced persons, facilities, and businesses should be established to include payments to displacees for moving costs, a displacement allowance, replacement payments to owner-occupants who purchase, rent subsidy,to owner-occupants, replacement payments to tenant-occupants who purchase or rent, and replacement housing subsidy for tenants. As part of the waterfront plan, provisions will be made to accommodate displaced business at new locations. Improvements tocertain parcels will include the con- struction of new buildings, renovations to existing structures, and certain utility improvements. Note that displacement does not automatically lead to relocation. Some dis- placed businesses, particularly the smaller establishments, may be unable to successfully relocate due to financial and other constraints. The business owners may find that the relocation payments are insufficient, or that the reloca- tion site is inappropriate for their needs. Relocation Sites. The following criteria may be used to identify possible reloca- tion sites: The site should be on land that is government owned, being purchased by the government, or on private lands leased for relocation purposes. The site should have, a land use designation appropriate to the displaced use. 6 The land and structures on the sites should be deemed vacant by the public agency having jurisdiction or made available by the private land- owner. Site improvements shall be the responsibility of the government. 6-73 Probable Relocation Sites. Relocation sites identified for the were divided into two major land use groups -- industrial and rn dustrial uses include: warehousing and general storage, repair a functions, light manufacturing and assembly activities, ope Marine-related activities include those uses that require waterfront (piers, wharves, etc.). Light industrial relocation sites will be phased according to the short-term the Kapalama Military Reservation and the Keehi Tria able for the relocation of displaced industrial activities. Marine relocation sites are limited in scope to areas currently Honolulu Harbor. For the most part, the relocation of uses with provide for a more efficient arrangement of land uses. Relocation Services. To the extent possible, households and placed by private actions in the waterfront project area should re services. The governmental agency with jurisdiction in the area displacement shall have the primary responsibility for provi These services include counseling, information and referral placees affected by private sector actions, induced or stimulate tal planning decisions. These services should be provided mitigate any serious negative impacts of displacees, such as los or business, imminent loss of shelter, and monetary losses. Advisory services to displacees of private sector actions, or to nesses occupying property adjacent to any property acquired fo, ment, who are caused substantial economic injury because provements should also be eligible for relocation services. 6-74 6.11. HISTORIC RESOURCES 6.11.1 Existing Conditions As a primary goal of the Waterfront Master Plan, existing historical landmarks would be protected and historical features and themes would be incorporated into waterfront redevelopment programs. Figure 25, Honolulu Waterfront His- toric Sites shows the historic resources within the study area. There are four sites of historic-cultural significance in the waterfront study area. They are: Kalka'alko Sewage Pumping Station This is a good example of Hawaiian cut bluestone construction built in an in- dustrial Romanesque style'. Besides being placed on the National and Hawaii Registers of Historic Places for its architectural merit, this structure has historic significance for its association with Honolulu's first professionally designed sewage disposal system in the late 1890's. U.S. Immigration Station The U.S. Immigration complex constructed in 1905 consists of five buildings: (1) the administration building (most visible and important in the complex); (2) deten- tion building (used to detain those immigrants waiting for proper clearance to enter Hawaii) 1 (3) lounging shed; and (4) garage and waiting shed. A gardener's cottage, originally part of the complex, has been demolished. Presently, the ad- ministration building continues to serve as the Immigration and Naturalization Service District Office, while the detention building has been converted to house offices of the Department of Health. For over one hundred years immigrants arriving in Hawaii have had their initial processing in the area of the present immigration complex at the entrance of Honolulu Harbor. The immigration complex, one of the last remaining works of 6-75 HONOLULU WATERFRONT HI IN ALOHA TOWER FALLS OF CLYDE U.S. IMMIGRATION COMPLEX MOKAUEA ISLAND KAKAAKO SEWAGE PUMP STATION 6-76 Charles Dickey, reflects Hawaii's role as a bridge between East and West. It was placed on the National Register of Historic Places primarily due to its ar- chitectural significance and the fact that its construction utilized terra cotta in Hawaii for the first time. Aloha Tower Completed in 1926, the Aloha Tower was at one time the tallest and most prominent building in Honolulu. It has stood as a symbol of Hawaii's investment in tourism and of a time when sea travel was the primary link with the rest of the world. It was placed on the National and State Registers of Historic Places be- cause of its history and architecturally significant attributes. The Aloha Tower is a ten-story, 184-foot, concrete structure which can best be described as a modernistic interpretation of a Gothic tower. The Tower served as a symbol of welcome for visitors arriving by ship, while for local citizens it was a representation of their ties with the sea and of the impor- tance of sea transport to Hawaii's economy. With the advent of air travel, the Tower's role has diminished as a tourist arrival point and now serves primarily harbor related activities and as a historic landmark. Aloha Tower remains as an important architectural element on the Honolulu skyline. Falls of Clyde Moored at Pier 7, the Falls of Clyde is the only iron hulled, four-masted, full-rigged sailing ship still afloat. Since her completion in 1878 the Falls of Clyde has served a variety of functions ranging from a tramp freighter to an oil tanker. From the late 1800's to the early 1900's the ship had several owners. In 1959, a private individual bought the Falls of Clyde as an investment and attempted to sell her to a number of cities as a museum ship. When it appeared that this effort had failed by 1962, the owner decided to sell her to Vancouver, British Columbia, for use as a sunken breakwater. When these plans were revealed, a group in Hawaii raised $25,000 to purchase her, and was successful in bringing her to Hawaii for restoration as a museum ship. 6-77 Possible Impacts: The four historic sites described above are recommended in th be preserved, and in the case of the Sewage Pumping Station, r as a museum. Special Cultural Areas Special activity areas are those which do not necessarily point t site but rather to a multitude of sites which contribute, in total, to Historic District or Special Design District Ordinances are the st local regulation for historic preservation. The project area inCIL areas: Chinatown Historic District The Chinatown District is listed on the State and National Regi Places. It is bounded by Beretania Street at the mauka end, Nu the Waikiki end, and River Street or Nuuanu River at the Ewa covers 15 blocks or 36 acres of what was commonly known Quarter. Today, Chinatown remains as one of the few areas of character and context have not altered significantly. Although Chinatown is composed of a mixture of activities and b people of Chinatown who form its sense of community and gi tance. It serves as a gathering place for residents and friends, reside outside the community. The human scale orientation pr dent and visitor alike with a pleasing atmosphere which serves easily accessible facilities and services. The self-identity that provided for many people is being perpetuated by new im (Laotians, Vietnamese, Korean, Filipino) as well as Oahu reside Capitol District 6-78 The Hawaii Capitol District, designated by the Honolulu City and County Land Use Ordinance as an area to protect, preserve, enhance, and to provide for or- derly development and growth, is located between Honolulu Harbor and Punchbowl, east of the Central Business District. The scale and texture of the district has maintained its historic character throughout history. The Capitol Dis- trict symbolized an area of ruling and political power from the days of the mighty ali'is to the present governor. Its significance lies in its association with events that. have made a significant contribution to the broad patterns of our history; and because of its association with the development of Hawaii's political system. Mokauea Island Historically Mokauea Island was occupied by Hawaiians undertaking traditional fishing practices. Today, this fishing community lifestyle is perpetuated by a number of multi-ethnic families living on the island. Because of the importance of fishing to the Hawaiians, and the scarcity of existing fishing villages, Mokauea Island is an area of historic significance. 6.11.2 Possible Impacts Two special cultural activity areas (Chinatown District and the Capitol District) .would be enhanced through the Waterfront Master Plan. For example, the Chinatown waterfront area, Piers 12 to 15 along Nimitz Highway, presents an op- portunity to create a unique style of development which captures the essence of the historic waterfront. The proposed Ala Makai walking tour will also bring spe- cial attention to these historic aspects of the waterfront. 6.12 GEOTECHNICAL CONSIDERATIONS 6.12.1 Overall Existing Conditions Historically, the Honolulu Waterfront area has been developed and expanded by the reclamation of low-lying areas and the creation of new land by filling. The quality of these fills is variable and depends upon the material used, the technol- 6-79 ogy available at the time of the reclamation, and the intende reclaimed land. The natural stratigraphic history of Honolulu Harbor is quite c large areal extent, the number of streams, drainageways and s and a complex series of sea level fluctuations which influenc depositional processes in the area. 6.12.2 Overall Future Conditions Development of the Honolulu Waterfront area is feasible from E gineering viewpoint provided that the plans for the developm sideration the complex geological conditions existing within th trict and the constraints which may be imposed by these subs Site-specific geotechnical explorations will be required as p design phase of each element of the waterfront development. It is most likely that new structures which are proposed in the need to be supported by deep foundations such as piles or c possible to support small flexible structures on spread foundati ditions will permit. Landfilling or reclamation will more than likely require special niques and/or materials for underwater fill placement and may ing of the boundaries of the fill. Excavation for canals and similar water features will prob bulkheading to minimize sloughing and/or erosion of the banl, Kaka'alko Peninsula Landfill Investigation A preliminary environmental site investigation of the 10-acre K Landfill along the shoreline of the Kaka'ako Peninsula was con( ardous waste consultant firm of Woodward-Clyde Consult California, for the Honolulu Waterfront Master Plan. 6-80 Existing Conditions The site was first operated as a dump for incinerator ash from incinerators used to burn municipal trash. The first incinerator began operation in 1927. A second was constructed in 1946. Up to 1960 refuse which exceeded the incinerator's capacity was burned at the disposal site. After 1960 excess waste was disposed of without open burning. Pesticides were applied to the landfill for vector con- trol. Use of the second incinerator was curtailed in the early 1970s. However the site continued to serve as a waste transfer station until 1977. The landfil I is currently used, in part, as a vehicle storage and maintenance yard and principal- ly as a site for receiving, storage, and screening of clean fill and demolition debris. Landfill Investigation Process The purpose of this investigation was to determine the potential health risks and physical hazards, if any, which may result from the development of this site. The investigation components included the drilling of 5 soil borings (locations are shown in Figure 26), sample collection and classification, groundwater and gas monitoring well installations, and chemical analysis of select soil, groundwater and gas samples. Two of the borings (B-1 and B-4) had a approximate depth of 50 feet below grade, one (B-3) had a depth of about 40 feet below grade, and the two remaining soil borings (B-2 and B-5) had an approximate depth of 20 feet below grade. Samples were collected at 5-foot intervals below grade to the maximum drilled depth. Each soil boring was analyzed either as` a solitary groundwater monitor- ing well, a nested gas monitoring well, or a combination of solitary groundwater and gas monitoring we(l. The following summarizes the findings and recommendations of the preliminary landfill investigation by Woodward-Clyde Consultants of Oakland, California: The site was closed as a municipal sanitary landfill in 1977. 6-81 HONOLULU LOCATION OF SOIL E HARBOR MONITC AT THE KAKA'A KEW. Approximate Souncla BAS of Kewalo Incinerator Landfill ry 19 B-1 B-4(S) B-4(D) B-3 B-2/B-5 6-82 o Access to the landfill site and materials redeposited there should be restricted inasmuch as some hazardous materials were identified by the preliminary investigation. * The level of proposed development of the landfill site will be dependent on the potential risk to human health and welfare or the environment imposed by the contents of the landfill. o The preliminary investigation of the landfill identified the cap material as having variable thickness with respect to geographic location. According to State regulations, a cap of at least 2 feet of acceptable material must be maintained. The use of excess cap material as fill elsewhere in the redevelopment area may be permissible if the material is non-hazardous. Any material classified as hazardous should not be removed from the landfill site. The State Department of Health follow-up to.the preliminary investigation will in- clude a remedial investigation by a qualified consultant. The purpose of this process is to define the extent of contamination and to develop the site specific data required for a quantitative risk assessment which will determine the types of safeguards appropriate for the landfill's integration into the Waterfront Park plan. 6-83 @3 6668 141( 7: OFFICE OF STATE PLANNING OFFICE OF THE GOVERNOR