1.0 INTRODUCTION

The area commonly known as Kakaako occupies a very important location in the center of urban Honolulu, lying strategically between the downtown area, the densely populated Makiki district, Waikiki and Honolulu Harbor (Figure I-1).  Despite its prime location and its economic importance to the State of Hawaii, Kakaako remains relatively underdeveloped, with aging streets, utility systems and buildings.

Recognizing Kakaako for what it is today, and what it could be in the future, the State Legislature created the Hawaii Community Development Authority (HCDA) in 1976.  As codified in Chapter 206E, Hawaii Revised Statutes, the Legislature found the need for a mechanism or methods that could initiate and guide the timely revitalization of underdeveloped urban communities in the State.  The Legislature named Kakaako as HCDA's first Community Development District.

In 1982, the Legislature amended the Kakaako Community Development District boundaries to include a portion of the Kakaako Peninsula, makai of Ala Moana Boulevard.  This area, which is referred to as the Makai Area, was assigned to HCDA for planning and redevelopment and has the unique distinction of being primarily public land.  Over the past decade the designated boundaries of the Makai Area have been modified several times and plans have been adjusted accordingly.

The major change that continues to guide development in this area today occurred in 1987 when the State, under the auspices of the Governor's Office of State Planning, launched a major "waterfront reawakening" effort.  This effort resulted in the publication in 1989 of the Honolulu Waterfront Master Plan, a comprehensive, long-range development program for the revitalization of the Honolulu urban waterfront, a six-mile coastal stretch extending from Honolulu International Airport to the Ala Wai Yacht Harbor on the outskirts of Waikiki.  The redevelopment of the Makai Area was viewed as an integral part of the State's waterfront revitalization program.

The Makai Area extends from Kewalo Basin to Honolulu Harbor and to the ocean.  Also included is the parcel bounded by Nimitz Highway, Bishop and Richards Streets, and Ala Moana Boulevard.  The majority of the Makai Area is currently used for bulk loading maritime and light industrial warehouse use, and is recognized in the Waterfront Master Plan as having immense potential for both commercial development and public waterfront access.  The master plan proposed an extensive program of parks, waterways, and other public amenities to be funded largely from revenues derived from the on-site development of 7.5 million square feet of commercial space.  This vision was subsequently incorporated into HCDA's 1990 Makai Area Plan and Rules.

Since the late 1980s the State economy has weakened considerably.  While the goal of the Honolulu Waterfront Master Plan to create an active, people-oriented place is just as valid today, the condition of the economy required a hard look at the assumptions regarding commercial development on the land, and the ability to generate revenues to fund public amenities.

In 1994, HCDA embarked on a comprehensive revision of its development strategy for the Makai Area in response to changes in the State's economy and a reassessment of land uses, urban design and transportation systems in the area.  Since that time, additional studies have been conducted to fine-tune the proposed Plan.  Overall, there was the desire to carefully balance public costs with revenues from private development and, at the same time, to create a more lively urban environment and improve vehicular and pedestrian flow through the area.  Some of the major components of the 1990 Makai Area Plan, such as the system of inland waterways, beach park, and large amphitheater, were reevaluated and deleted from the Plan.  Similarly, the market for commercial development was revisited and new conclusions were drawn.  These revised concepts are the basis for the 1998 Makai Area Plan.

The Makai Area offers a dramatic location, proximity to downtown, and a substantial amount of land under State control.  This 1998 Makai Area Plan describes how these advantages can contribute to the larger goal of diversifying Hawaii's economy, and still serve as the people-oriented place envisioned in 1989.

1.1 Makai Area History and Existing Conditions

Throughout Hawaiian history, the part of Honolulu called Kakaako provided resources for a variety of peoples.  Although its history includes a record of flooding, through progressive landfilling and improvements over the span of two centuries, the district has endured, as well as grown.

Honolulu harbor originally consisted of a small reefed basin, and the shoreline in what is now Kakaako was approximately where Auahi Street is today. What is now known as the Kakaako Peninsula was a shallow reef area, and the fast land was characterized as a marsh and was used for the collection of thatch.

Prior to western contact, native Hawaiians were unconcerned with developing the natural harbor because the shallow waters did not affect canoe transport.  However, after 1819 the market was open for sandalwood and the need for mooring led to the first man-made reconfiguration of the harbor.  Following the exhaustion of the sandalwood trade, the Hawaiian mercantile system shifted to the whaling industry.  From 1843 - 1860, the whaling industry was at its peak and the need for more harbor space developed.  Harbor modifications began in 1848 in what is now the downtown area.

These modifications greatly affected Kakaako and highlights of the changes are as follows:
 
 1900 - Piers 1 and 2 are documented as in use and the Ala Moana area was converted into a dump site.  The Ala Moana Sewage Pump Station, designed by O. G. Traphagen, is constructed.
  1920 - A concrete wharf is built at Pier 2.

 1921 - Kewalo Basin is established as a dock facility for lumber schooners but, as the industry fades, the newly developing fishing industry takes over.

 1928 - A permit is issued to dredge a channel from Kewalo to Waikiki.

 1934 - The U. S. Immigration Administration Building near Fort Armstrong designed by C. W. Dickey and Herbert Cayton is completed.

 1947 - By 1947 approximately 110 acres of the Kakaako peninsula have been filled with coral landfill.

 1948 - A seawall is built 500 feet out from and parallel to the shoreline, and runs from the edge of Kewalo Channel, parallel to the coast down to Fort Armstrong.  This wall defines the edge of the landfill.

 1977 - The refuse landfill site is closed permanently.
 
One of the first major economic successes in the area was the Honolulu Iron Works, begun in 1853 by David M. Weston, one of the first industrialists to foresee the benefits of a sugar mill, metal and machine shop in growing Honolulu.  Other facilities, such as the Leper Hospital at Fisherman's Point, developed along with a growing residential community.  The early 1900s shantytown of immigrant laborers continued to grow, eventually reaching about 5,000 people by 1940.  The post-World War II era changed the area from a residential to a commercial and industrial district, transforming the character of Kakaako to industrial and service industries.  This warehouse/industrial building character describes the Kakaako of today.

1.2 The Physical Environment

1.2.1 Climate

The climate of the Makai Area, similar to that of other coastal areas in Honolulu, is characterized by abundant sunshine, persistent trade winds, relatively constant temperatures, and moderate humidity.  The mean temperature in Honolulu ranges from 73 degrees Fahrenheit (?F) in winter to 81? F in the summer.  The mean annual rainfall is approximately 23 inches with most of the rainfall occurring between the months of November and April.  Relative humidity ranges between 56 and 72 percent.  Cooling trade winds from the northeast prevail throughout most of the year; occasionally Kona winds from the southwest bring warm, humid air.

 1.2.2 Geography, Soils and Topography

The Kakaako Peninsula lies on the Honolulu coastal plain, an emerged fossil reef formed approximately 120,000 years ago (MacDonald and Abbott, 1970).  The Makai Area is underlain by a coral layer between 5 and 20 feet below mean sea level (Figure I-2).  Soft lagoonal deposits made of sand, silt, and clay are found above the ancient reef, mainly in a buried stream channel which extends below Ala Moana Boulevard between Keawe and Ohe Streets to the ocean.  Soft alluvial soils within the channel area extend to depths of 50 to 65 feet below sea level.  These deposits are covered by 5 to 10 feet of dredged coral fill.

The substrata conditions of the Makai Area, as shown in Figure I-3, are rated "average" for development purposes in all areas except in the general area of the buried stream channel where the substrate condition is "poor."  The terrain of the Makai Area is generally at an elevation of 14 feet above mean sea level and flat, except for the debris mound formed between 1927 and 1977.  Originally rising 15 to 55 feet above sea level, the 1,700 feet x 400 feet mound was resculptured in conjunction with Phase I of the Kakaako Waterfront Park, and has become one of its most prominent features.  The highest point is currently 53 feet above mean sea level.

1.2.3 Hydrology and Drainage

Southern Oahu's coastal plain, which includes the Kakaako Peninsula, is underlain by sedimentary deposits that form a caprock which retards the seaward movement of fresh ground water from the basal acquifer.  The caprock extends along the coastline about 800 to 900 feet below sea level.

Urbanization of the Kakaako District has increased runoff to the nearshore coastal waters.  Although roadway and drainage improvements have been undertaken, much of Kakaako is still subject to localized flooding due to flat topography and inadequate drainage facilities.  The runoff from the Makai Area flows into the ocean via the Keawe Street open channel, Kewalo Basin and Honolulu Harbor.  The Keawe Street open channel is lined and is approximately 30 feet wide, 15 feet deep and 650 feet long, and is located between the Foreign Trade Zone and the Kakaako Waterfront Park.  Figure I-4 shows flood zones in the Makai Area.

1.2.4 Solar Orientation and Prevailing Winds

In Kakaako, the streets are generally oriented southeast to northwest (Ewa-Diamond Head) and southwest to northeast (mauka-makai) (Figure I-5).  Prevailing winds are from the northeast and are illustrated in relationship to the street grid.
 
1.2.5 Offshore Conditions

The south shore of Oahu is sheltered from the predominant northeast tradewind-generated waves as well as the winter North Pacific swell.  Wave activity at the shore is relatively mild, except during the summer months when southern swell can produce moderately high surf conditions.  The south shore is also exposed to infrequent Kona storms and hurricane waves approaching from the southeast through southwest directions. Shallow fringing reefs once protected the natural shoreline from deepwater wave energy.  However, the present shoreline has been created by filling seaward over the shallow reefs, requiring shore protection measures to stabilize the existing shoreline.  Three surf sites front the Kakaako Peninsula, "Flies," "Incinerators," and "Point Panic," the names of which are reflective of the former adjacent land uses and the proximity of the wave break to the shore.  The nearshore currents are predominantly driven by the tides and winds and in general are weak.  (Reference: Technical and Environmental Studies for the Kakaako Beach Park.)

 The Kakaako nearshore reef is relatively flat, consolidated limestone rubble bottom.  The reef is of marginal aesthetic appeal and supports only limited benthic and reef fish communities.  The greatest diversity and abundance of fish occur offshore the east sector near the Kewalo Basin channel, where a total of 65 species of fish have been noted.

Nearshore coastal waters from Ala Moana Beach to the easterly entrance channel of Honolulu Harbor are designated "Class A" State waters by the State Department of Health (DOH), while Honolulu Harbor and Kewalo Basin are designated "Class A" embayments.  According to DOH, waters classified "A" are to be protected for recreational uses, aesthetic enjoyment, and propagation of marine life.

1.2.6 Views

Existing views in the Makai Area are limited due to the large warehouses and the land form at the Kakaako Waterfront Park.  There are very few views of the ocean from the existing interior streets.  The best views are from Ala Moana Boulevard to Kewalo Basin, from Kewalo Basin Park along the shoreline, from Kakaako Waterfront Park along the shoreline, from the Kakaako Waterfront Park lookout point in all directions, and on local streets toward the mountains.  An enhanced mauka-makai view corridor along Cooke Street will also be created with the implementation of a promenade and generous setbacks (Figure I-6).

1.3 Landownership

Of the total 221 acres, approximately 201 acres are owned by the State of Hawaii.  Landownership is illustrated in Figure I-7 and includes the following areas:
 
                                               Acres
State of Hawaii*                                                             195.0
Kamehameha Schools/Bernice Pauahi Bishop Estate         12.0
Federal Government                                                           4.6
Hawaiian Electric Company, Inc.                                        3.4
Additional Circulation                                                         6.0
     TOTAL                                                                    221.0

* Various rights-of-way are owned by the City and County of Honolulu.
 

As the major landowner in the Makai Area, the State of Hawaii allows various land uses through executive order, general lease, or revocable permit.  Executive orders are issued by the Governor and allow government agencies to utilize State-owned land for a specified public purpose.  General leases are issued by the Department of Land and Natural Resources, Department of Transportation, Department of Business, Economic Development & Tourism or HCDA and allow tenants to occupy State-owned land for a specified purpose and term, not to exceed 65 years.  Revocable permits allow tenants to occupy State-owned land for a specified purpose on a month-to-month basis.

1.4 Current Land Uses

At present, the general mix of land uses in the Makai Area consists of: maritime industrial, cargo and warehousing operations at Fort Armstrong; car dealerships, light industrial, public facilities, and commercial office activities in the central portion of the peninsula; and the new Kakaako Waterfront Park.  The Kewalo Basin area provides the primary berthing location for Oahu's commercial fishing fleet, excursion boats, and charter fishing boats.  Landside activities surrounding the harbor include maritime support operations, marine research, and commercial restaurant operations.

Kakaako Peninsula

The Kakaako Peninsula lies between Kewalo Basin and Honolulu Harbor, on largely man-made land.  Maritime industrial uses occupy the Fort Armstrong area at Piers 1 and 2.  This area, once the primary container cargo facility on Oahu, is currently dedicated to maritime break-bulk and limited container cargo operations, ship maintenance operations, and the Foreign Trade Zone warehouse and offices.

Commercial uses occupy much of the central portion of the peninsula and include new and used car sales businesses and offices.  Recreational uses include the 30-acre waterfront park located adjacent to Point Panic, a popular site for body surfers.  Marine research activities include the Pacific Biomedical Research Center and the University of Hawaii Look Laboratory.

The Kakaako Peninsula also accommodates a number of public facilities including the City and County of Honolulu equipment storage and maintenance areas, DOH, and the Ala Moana Wastewater Pump Station.  The State Department of Agriculture (DOA) Plant Quarantine Station and Weights and Measures Branch are also located within the Makai Area.  Three historic structures include the U. S. Immigration Station, the DOH building and the former Ala Moana Sewage Pump Station.

HECO Parcel

The Hawaiian Electric Company, Inc. (HECO) parcel, TMK: 2-1-14: 4, includes 3.4 acres.  The parcel is bounded by Nimitz Highway, Bishop and Richards Streets and a former portion of Ala Moana Boulevard, and is occupied by the Honolulu Power Plant.

Kewalo Basin

Kewalo Basin includes 25 acres of land and 30 acres of water area.  Existing uses include John Dominis Restaurant, a fish auction operation, a dry-dock and shipyard facility, and Fisherman's Wharf Restaurant.  Facilities adjacent to Ala Moana Park include a marine fuel station, the Kewalo Basin Marine Mammal Laboratory, National Marine Fisheries Service research laboratory, State Department of Transportation Harbors Division (DOT-Harbors) Kewalo office and the Kewalo Basin Park.

1.5 Review of Development Concepts

Plans Prior to 1982

As stated earlier, in 1982 the Kakaako Community Development District boundaries were expanded to include land makai of Ala Moana Boulevard.  Prior to this time, development for what is now the Makai Area was regulated by the City and County of Honolulu.  Zoning for the area was divided into public open space and industrial use, with smaller areas designated for housing/commercial use along Ala Moana Boulevard and commercial development along Kewalo Basin.  The height limit was restricted to 200 feet, with an emphasis on preserving mauka-makai sight lines, as well as integration with the surrounding areas of Kakaako (Figure I-8).

1982 - 1985 HCDA Plans

With the 1982 expansion of the Kakaako Community Development District to include approximately 133 acres of land makai of Ala Moana Boulevard, HCDA developed more specific, in-depth plans for the entire District, issuing a revised Plan in October 1983 (Figure  I-9).

Concerns unique to the Makai Area were further articulated in additional revisions to the Plan in 1985, and included:

� Recognition of harbor uses at the Fort Armstrong area.

� A central residential area.

� The preservation of scenic views.

� A 30-acre proposed waterfront park at the end of the Kakaako Peninsula.

� The Makai Area as a potential relocation site for displaced Kakaako Mauka Area businesses.

With this Plan, HCDA began to differentiate the Makai Area planning needs as separate from, but integrated with, the larger picture of Kakaako.

1986 - 1990 HCDA Plans

The next major change occurred in 1987, when the Kakaako District boundaries were again amended to include all lands makai of Ala Moana Boulevard from Ala Moana Park to Aloha Tower.  This expanded the Makai Area from 133 acres to 227 acres (Figures I-10 and I-11).  However, in 1990, the lands between Piers 4 and 8 were reassigned to the Aloha Tower Development Corporation, except for the property occupied by HECO makai of Nimitz Highway.  This change in the Makai Area boundaries, to 221 acres, also brought revisions to the Makai Area Plan.

     Residential and industrial uses were eliminated in the Makai Area.  This zoning change stemmed from recommendations in the Honolulu Waterfront Master Plan of 1989 which concluded that the waterfront area would be better utilized as a major recreational, people-oriented activity area with a significant amount of commercial development.  Other major ideas added to the original development concepts of 1982 - 1985 included the:

� Relocation of many existing uses to Sand Island, Kapalama, and Honolulu Harbor.

� Revision of the roadway system to include a Cooke/Ohe couplet of one-way streets.

� Expansion of Ala Moana Park into Kewalo Basin.

� Creation of an inland waterway system.

� Provision for cultural and educational facilities within the waterfront park.

� Passenger cruise ship terminals at Piers 1 and 2.

These refinements to the Plan were based on updated market, traffic engineering and port planning studies conducted by HCDA in association with the Office of State Planning as part of the larger Honolulu Waterfront Master Plan program.

1993 - 1998 Analysis and Need For Modifications

While the 1990 Makai Area Plan incorporated the broad ideas of the Honolulu Waterfront Master Plan and encoded them in zoning for the Makai Area, more in-depth, site-specific analyses on the various features had not yet been conducted.  Between 1991 and 1993, HCDA conducted feasibility studies on many of the ideas, such as the inland waterways, revised traffic circulation and proposed cultural facilities.  These studies reaffirmed the validity of many ideas, such as the cultural facilities, and led to the elimination of others, such as the inland waterways.

In addition, the potential of the parcels designated for commercial use was carefully examined, as much of the Plan relied on the development of office space on State-owned lands to generate public revenues.  Since the late 1980s, the State economy had weakened considerably and the market for standard office space was projected to be weak for at least the next 10 to 15 years.  At the same time, it was recognized that the Makai Area presented a unique opportunity to attract new markets to Hawaii, and could potentially assist in the much-needed diversification of the economy.  A proactive approach was needed to seek new markets for commercial development in the Makai Area.

 In terms of physical development, the idea of the Makai Area as a people-oriented place has endured.  Emphasis continues to be on the preservation of the natural environment, and the provision of community facilities such as parks, museums, theaters and promenades (Figure I-12).

1.6 Summary of Plan Elements