homeless in waikiki Improvement Association Prepared for: Prepared Business District Waikiki Prepared By:

The Department of Urban and Regional Planning University of Hawaii at Manoa 2424 Maile Way • Saunders Hall 107 Honolulu, Hawai`i 96822 808•956•7381

Fall 2006 • Practicum* • Lori Baker • Mike Dahilig • Megan Johnson • David Kiernan • Henry Mochida • Mohammad Shahinur Rahmin

Advisors Dolores Foley & Karl Kim *As part of the MURP (Master’s of Urban and Regional Planning) degree require- ments, all students must complete a practicum, which involves conduct- ing a team project for a client. The Fall 2006 practicum was conducted for the Waikiki Business Improvement District Association. Table of Contents

Introduction page 2

Study Area page 3

Census & Survey page 4

Results page 5

Services page 7

Current Efforts and Practices page 8

Deliberation Framework page 11

Approach One page 12

Approach Two page 16

Approach Three page 20

Comparing Approaches page 24

Coordination page 26

Public Forum page 28

Summary page 29

Resources page 30 Over the past year, the issue of homelessness on the island of O`ahu has garnered widespread attention -

as evidenced by the regularity of front page and prime time news Recognizing that not much is known about the Waikiki homeless stories about the rising populations of homeless communities population, the Waikiki Business Improvement District Association throughout the island. The complexity of the homeless issue (WBIDA)* sponsored a study to: (1) conduct a point-in-time count extends beyond the common perception that “the homeless” of the unsheltered homeless population in Waikiki, (2) identify the constitute a singular entity. Homeless populations are made needs and characteristics of the population, (3) research what up of diverse individuals and families who suffer from an array other business improvement districts (BIDs) are currently doing to of problems most often having to do with economic difficulties, address homelessness in their jurisdictions, and (4) contemplate lack of affordable housing, substance abuse, domestic violence, a series of policy approaches and strategies that may reduce the and the lack of comprehensive services. While many instances incidence of homelessness in Waikiki. of homelessness are preventable or treatable, communities Accordingly, this issue book first describes the characteristics and needs of Waikiki’s homeless population and the services currently being provided to homeless individuals in the area. Second, a brief summary of the various approaches taken by cities and BIDs to reduce homelessness is provided. Third, three policy “approaches,” offering a range of strategies for addressing Waikiki’s homelessness situation, are presented to facilitate a comprehensive and coordinated strategy for reducing the incidence of homelessness in the area. In order to provide the WBIDA with a range of policy approaches to address the issue of homelessness in Waikiki, both the size of the homeless population and the needs and characteristics of the population had to be determined. A point-in-time census count was conducted to establish a baseline population across the country are divided on the methods that should be estimate. Thereafter, interviews with homeless individuals were employed to reduce homelessness. conducted to gather information on the population’s needs and characteristics, including: length and periods of homelessness, The issue of homelessness requires an understanding of the resources, services, needs and demographics. broader range of challenges that act as barriers to exiting homelessness. These barriers include but are not limited to ______lack of human capital, lack of affordable housing, failures of the *Waikiki Business Improvement District Association (WBIDA) is a non-profit system (at home, at school, in the foster system, the lack of corporation dedicated to creating a clean, safe, vibrant resort destination area comprehensive response service, building credit, etc.), and the reflective of its Hawaiian heritage that is attractive and welcoming to both visitors and residents, and contributes to the economic prosperity of Oahu, and the lack of appropriate funding and resources for service agencies. State of Hawai`i. WBIDA operations are funded by assessments on nearly 1,600 Some argue for a policy approach focused on providing commercial property owners in the Waikiki Special District. affordable permanent housing and temporary shelters. Others insist that increasing the amount of social services is the answer. Still others support an approach focused on enhanced legal interventions and design techniques to deter the homeless from staying in particular areas. Beyond these arguments, many claim that the real barrier to reducing homelessness is systematic—namely, that fragmentation of services and bureaucratic inefficiency severely limit the effectiveness of existing strategies and services. Our research, which includes information provided by various local service providers, suggests that O`ahu lacks a coordinated

introduction strategy, resources, and a leadership body to address the island’s current homelessness situation. Thus, significant credence is leant to this argument.

2 HOMELESS IN WAIKIKI Area 6

Area 1: Ala Wai Yacht Harbor = 42 Area 2: Main Corridor = 39 Area 3: Kapiolani Park = 60 Area 4: Central Waikiki = 16 Area 5: Ala Wai Mauka = 40 FIGURE 1. Map of study area. Area 6: Convention Center & Ala Moana = 46

Primary Study Area The primary study area includes the Waikiki BID and Kapi`olani Park. As shown in Figure 1, the primary study area consists of areas 1, 2, 3 and 4.

Overall Study Area The overall study area includes the entire primary study area as well as some nearby areas which, through interviews with multiple sources, are known to be populated with homeless individuals who spend at least some of their time area study within the Waikiki BID. The overall study area includes everything illustrated in Figure 1 plus Ala Moana Beach Park. As recommended by local service providers and the Honolulu Police Department (HPD), areas outside the BID which were also counted include: Kapi`olani Park (included in the primary study area), Ala Moana Beach Park, and areas along the mauka side of the Ala Wai canal. 3 HOMELESS IN WAIKIKI Point-In-Time Census Counts “family homeless” (i.e., children present). These categories Guidelines and recommendations set forth by the United were aggregated for the final count but may be used separately States Department of Housing and Urban Development (HUD) in future analyses. Enumerators were also asked to indicate on a established the method used to count the unsheltered homeless map the approximate location of each individual they counted. population in the overall study area. HUD’s Public Places Survey Interviews Method 2 is recommended for areas performing their first After establishing a baseline homeless population, survey point-in-time census count. This method consists of “a count, interviews were conducted to determine the individual needs observation, and interview of homeless individuals and families and characteristics of the population. HUD guidelines state living in public places that are not shelter or other service sites” that for an unsheltered homeless population of less than 200 (HUD, 2004). In addition to following HUD guidelines, an earlier individuals, interviews should be conducted with one-half of outing with the officers from the Honolulu Police Department the point-in-time count population. The combined total of the (HPD), District 6-Waikiki, helped to identify homeless “hot Waikiki BID and Kapi`olani Park populations (157) were used spots,” hiding places, and census count boundaries. as the baseline. Survey interviews of 90 individuals (12 more Census counts were conducted on Thursday, September 15, than the HUD standard) were conducted within the point-in-time 2006 between 3:00 a.m. and 5:00 a.m. A mid-week day was census count boundaries. The survey design and format was chosen because homeless individuals have more opportunity for derived from the “SMS Homeless Point-in-Time Count Report, shelter with friends and family on the weekends. Counting during 2003 for the City and County of Honolulu Dept. of Community a short two-hour time period in the early hours of the morning Services.” minimized the likelihood of double counting. Additionally, Similar to the census count, interviews were conducted in since most individuals are sleeping during this time period, the Waikiki BID, Kapi`olani Park, Ala Moana Beach Park, the the population is likely immobile and more identifiable, thus Convention Center Promenade, the Ala Wai Boat Harbor, and increasing the accuracy of the count. at Youth Outreach (YO). Each survey was conducted by a pair The actual count involved six teams, each with at least one HPD of interviewers within a designated area. The designated survey officer. Officers provided protection and a working knowledge areas were worked in one methodical direction to minimize the of the most efficient routes to take to cover the designated potential for double counting. Surveyors recorded a brief physical territory. description of each participant at the top of the corresponding The definition of homeless used to determine who to count was survey form. As an incentive, each participant was given five necessarily loose and somewhat subjective. As a general rule, dollars in cash. enumerators counted “anyone who appeared to the individual enumerator to be homeless.” Enumerators were asked to categorize those being counted as “probably homeless” (i.e., someone walking, seemingly aimlessly, who appears indigent); “definitely homeless” (i.e., someone sleeping in an alley); or

FIGURE 2. Bar graph comparing 500 Homeless in Families homeless population across Unaccompanied Homeless O`ahu.

400 Note: The unaccompanied homeless figure is the total 300 number of homeless located

490 in the point-in-time count minus the number who re- 200 371 ported, in survey interviews, 280 234 that they were part of a fam- 100 150 ily. The homeless in families 117 97 105 84 88 75 47 65 42 figure includes those who 28 22 0 reported they were a part

o re u a of a family and the number Ewawa ast re ward E Sho nolul of family members they manal nd Co i i Ho W nae census & survey census Study A reported having. er a y p to North town r Wai UpUpper Windward Waianae Coast ma ilua to Wa wa wn ri Kailuaa to Waimanalo a Overall Study Area K i DowntownDo HonoluluOverall Study AreaP ah Primary Study Area WahiawaW to North Shore

4 HOMELESS IN WAIKIKI homeless more often by their idleness during daytime working working daytime during idleness their by often more homeless middle- aged men. single Notably, many of were these men were as identified being surveyed homeless of majority vast The Waikiki in Characteristics Homeless population). current the (166%of 402 reach would population the 312;2008 by be and, into 2007, the number of homeless in the overall study area would an implicit homeless rate recovery of 15%). If this rate continues produces estimation (this 29% be to estimated is 2006 to 2005 in growth the population homeless in the overall study area from survey (people homeless for less than 1 year is 44%), the rate of this data and the data on length of homelessness collected in this on year). by (25% per Based 95% increased services outreach homeless received have who O`ahu on people of number the also, according to the Hawai’i State Data Book, from 2002 to 2005 increase in the number of homeless on O`ahu from 1999 to 2003; The 2005 Hawai’i State Data Book reports an 83% (16% per year) study. asinthis was done area spatial entire tothe opposed Trends only counted Market individuals found in identified “hot Furthermore, spots,” as populations. surrounding the into blend its count in the late to afternoon when the homeless can morning more easily early the in minimize the likelihood of miscounting, Market conducted Trends conducted was study this Whereas inmethodology. as wellas variations area study attributed to an increase in the homeless population in the overall likely is counts two the in difference The study. this in counted 118 homeless—less than half the number of homeless individuals to the overall study area. Market geographically Trends counted similar was which Honolulu,” East to Moana “Ala #7 Area area, one including areas study seven into divided was Trends count Market The O`ahu. on homeless unsheltered point- of a in-time-count conducted Pacific Trends Market 2005, 26 May, On populated. sparsely were along Kapi’olani Park. Commercial areas and private properties and YachtHarbor Wai Ala the at parked vehicles and beaches Canal. Other popular sleeping spots included dugout holes along Park, Ala Moana Beach Park and the mauka side of the Ala Wai asleep. grassy open areas Popular of included spots Kapi`olani (157 were located in the study primary area), most of whom were count census point-in-time morning early the during area study overall the in counted were individuals homeless 243 of total A Population Homeless of Growth and Size

Trends’ higher. much were ratios 2) Figure (see wide island 11% of the number of unaccompanied homeless; the 2005 Market study found that the number of in homeless families constituted this Similarly, Waikiki. from away move populations homeless homeless in families to homeless increases asunaccompanied example, the 2005 Market Trends study indicates that the ratio of likely due to its resort status and relatively fast paced lifestyle. Data For suggest that the Waikiki area attracts single homeless men, to19% of all on O’ahu. compared children in families to compared 42% across the island, and only 1% are are area overall study the in homeless 10% well,the ofasonly (36% to 29%) than O`ahu as a whole. Family structure is different area consists of less females (17% study overall to the 32%)O`ahu’s homeless, on and morefigures Caucasians 2005 Pacific’s Trends Market to Compared O`ahu. of rest the in than homeless different are Waikiki in homeless the Demographically, possessions. bulkof their the on based identified also were homeless of number A appearance. unseemly an hours, which is when the surveys were conducted, than by having Graduate degree College graduate Some college Professional school High schoolgraduate Some highschool No highschool Level ofeducation Widowed Married Separated Divorced Single, nevermarried Marital status Mean age(Years) Don’t know/refused Over 65 56-65 46-55 36-45 26-35 16-25 Age Female Male Gender Median age(Years) TABLE 1.Demographicinformationderivedfromsurvey. HOMELESS IN WAIKIKI Number 41.2 19 32 16 12 16 51 43 12 26 15 19 13 15 75 4 8 2 9 4 7 3 2 Percent 21.1% 35.6% 17.8% 10.0% 13.3% 17.8% 56.7% 13.3% 28.9% 16.7% 21.1% 14.4% 16.7% 83.3% 4.4% 8.9% 2.2% 4.4% 7.8% 3.3% 2.2%

5 results 59%50% Reasons for Homelessness

45% FIGURE 3. Reasons for homelessness. The Waikiki homeless are different 45% 42.7% demographically than O`ahu as a 40%40% whole. This is likely due to the fact that

35%35% Waikiki draws its demographic from the mainland as well as from other 30%30% 27.1%27.0% nearby neighborhoods on the island. 25%25% High rents, underemployment leading to eviction, and eviction from public 20%20% 19.1% housing are the major self-reported

25%15% causes of homelessness found in this study; these findings are consistent with 15%10% 6.7%6.7% reported causes for the rest of O`ahu 4.5% 5% 4.5% and the state. 5% 2.2%2.2%

0% 0% Released Alcohol/Drug Family Problems My Choice Unemployment Problems Paying Released From Alchohol/Drug Family problems My Choice Unemployment Problems Paying FromPrison Prison AbuseAbuse Rent/EvictedRent/Evicted

• 70% are homeless due to eviction or unemployment. • One-half of the employed homeless population is homeless due to eviction. • Only 4.5% claimed that alcohol and/or drug abuse was the cause of their homelessness. It is likely that this number is understated as this particular response is prone to self-report bias. Unmet Needs The unmet needs of the homeless can be illustrated through gap analysis (subtracting the number reporting that they need a service from the number receiving that service). The top unmet needs of the homeless (shelter and employment services) in Waikiki directly correspond to the top causes of homelessness (problems paying rent/eviction and unemployment).

60%

FIGURE 4. Services gap. 50% 47.8% 44.4%44.4%

40% 34.4% 32.2%32.2% 30%

20%

12.2% 10.0%10.0% 10%

0%0% Health/medicalHealth/ medical Food No No services Services ClothingClothing Employment Employment Shelter Servicesservices

• 59% reported that they were in need of shelter and only 11% are receiving it. • 49% reported that they were in need of employment services and only 4% are receiving them. • 32% are receiving no services at all. Reasons cited for this include pride, unaware of services, and denial of services

results due to lack of identification. • Adequate clothing is a key component of finding employment as well as a means for the homeless to more unobtrusively blend into the Waikiki population. 34% report that they need, but are not receiving, clothing. • Food and health/medical services are the most adequately provided services with 12% and 10%, respectively, reporting that they were in need of those services and not receiving them. 6 HOMELESS IN WAIKIKI Approximately 20,000 unduplicated persons per year receive services through our programs. State of Hawaii Homeless Programs Sandra Miyoshi, Administrator, Administers federal and state homeless programs throughout the state of Hawaii. All individuals and families who are experiencing homelessnessoratrisk of becoming homeless, are the targets of our programs. The lack of affordable housing; unemployment or inability to earn a livable wage; mental illness; substance abuse; domestic violence; and physical disabilities. . Department of Community Services Keith Ishida, Planner Administers federal funding for qualified services and manages continuum of care process. All persons and households experiencing homelessness. Lack of affordable housing, mental illness, substance abuse, HIV/AIDS, family crisis, principally domestic violence is also a prevalent cause. In 2005, Honolulu’s shelter inventory includes: 487 Emergency Shelter Beds 900 Transitional Shelter Beds 480 Permanent Supportive Housing Beds Institute for Human Services Margot Schrire Public Relations 24-hour emergency walk in shelter for men, women and families with children who are homeless. A walk-in shelter, anyone who is homeless will be served High cost of rental housing, the cost of living in Hawaii, domestic discord, mental illness, and substance abuse problems, poor credit and no savings. On-site emergency shelter – 240 men, 60 women in the dorm (and up to 42 in the garage) 23 families with up to 60 children. Hale Kipa: Transitional Living Program Alika Campbell, Outreach Coordinator Shelter program for young adults between the ages ofand 18 22. Homeless young adults between the ages ofand 18 22. Unemployment,school problems, lack of resources. Cyclical background poverty and drug use, failures of the system (at home, at school, in the foster system, is juvenile corrections). 12 beds12 (8 for males and 4 for females) in 3 different locations. Hale Kipa: Youth Outreach Alika Campbell, Outreach Coordinator Basic needs services (meals, medical care, hygiene supplies, clothing, etc). Drop-in & outreach. Runaway, homeless, and street identified youth and young adults. Family disruptions, issues with substance use and histories of physical, sexual, and emotional abuse. Lack of education, employment, wages, credit, and rental history. Since YO! is not a residential program there isn’t really a “max capacity” for YO! Waikiki Health Center Darlene Hein Director Social services, medical care and mental health services. Drop-in services & care-a-van. Unsheltered individuals and families who are homeless and live on the island of Oahu exceptfor the Leeward Coast. Poverty, lack of affordable rentals and services for the mentally ill and those with substance abuse problems, no positive housing history, and lack of down payment. The capacity has not been determined. Currently we do not turn anyone away who is requesting services as long as they are homeless. Salvation Army Family Treatment Services Linda Rich, Director Transitional housing for homeless women in early recovery from drug addiction. Homeless women with children who have recently completed a residential treatment program or are in out-patient treatment. Lack of affordable rentals, drug addiction, mental illness, lack of income off-job skills. 12 women12 and their children Í Ë local services local TABLE 2. Matrix showing service providers in Waikiki and their responses to the following inquiries. 2. Matrix showing service providers in Waikiki TABLE The Agency The Question What does your organization do for the homeless? Who is the target and how do you define? What do you find to be the primary issues causing homelessness? How many people is your organization able to assist (max capacity)?

7 HOMELESS IN WAIKIKI Service providers witness firsthand and confront the complexities In general, federal financial resources are channeled through of homelessness on a daily basis. To gain a greater various local government agencies, such as the Honolulu City understanding of the homeless situation in the Waikiki area, the and County Department of Community Services which distributes various providers (see Table 2) currently offering services to this funding from HUD through the McKinney-Vento Homeless population were asked a series of questions that were formulated Assistance Act (Continuum of Care and Emergency Shelter to help : (1) assess the level of services currently available to Grant), the Cranston-Gonzales National Affordable Housing Waikiki’s homeless population, (2) identify limitations associated Act (HOME Investment Partnerships), and the Housing and with providing these services, and (3) gather recommendations Community Development Act. Each of these funding sources for increasing and improving the effectiveness of current service place limitations on the types of homeless individuals who efforts. are eligible for assistance and on the particular manner of In determining the current level of service, the service provided, disbursement. With regard to the former, because funding is the target population, and the particular provider’s service often limited to a target population, it forces service providers capacity (in other words how many individuals each provider to turn away applicants who do not meet the federal criteria but is able to support) were identified. This research revealed that are nevertheless in need of the service. As an example of the the services currently available largely focus on serving the latter, proper identification is sometimes required to receive immediate needs of the homeless population or assisting the funding from some sources. Such bureaucratic requirements homeless in emergency situations. For example, the Waikiki are problematic as many homeless individuals are reluctant to Health Center, Hale Kipa Youth Outreach, and the Institute disclose such forms of identification for personal safety reasons. for Human Services (IHS) focus on providing basic needs like Notably, almost every service provider interviewed considered medical care, mental health services, hygiene supplies, clothing, such limitations on receipt of federal assistance overly restrictive emergency shelter, meals, and showers. on their ability to assist the homeless population. Beyond immediate needs and emergency services, a number of In addition to federal funding, financial resources also flow to the providers interviewed also provide longer-term assistance. service providers from the state, private foundations, donations, For example, whereas IHS offers case management and housing and third party billing, as is the case with the Waikiki Health placement services for anyone who is homeless and comes to Center. However, funding from these sources is often minimal, the shelter, the Hale Kipa Transitional Living Program offers barely supporting a skeleton-staff of outreach workers, with a similar case management and limited rental assistance for high turnover rate. homeless young adults between the ages of 18 and 22 and the When prompted for suggestions and recommendations on how to Salvation Army Family Treatment Services offers transitional improve the effectiveness of their services, providers commonly housing for single homeless mothers in early recovery from responded about their desire to increase housing placement, drug addiction. The survey of the Waikiki homeless population homeless prevention, mental health services, and substance suggests that many individuals are not receiving comprehensive abuse treatment. Many providers were also primarily concerned case-specific care, meaning they are not receiving holistic with their constant struggles and limited capacities to meet the assistance in dealing with the issues that contributed to their vast needs of the homeless population. homelessness alongside finding solutions to permanently move Many suggest the idea of creating a “one-stop shop” facility them out of homelessness. for the homeless, a strategy that has been adopted in places The apparent lack of long-term, comprehensive, and focused like Atlanta, Georgia and San Francisco, California. Waikiki care can be partially correlated to the limited funding available currently lacks a “one-stop shop” for the homeless to come to to support such services as well as the restrictions attached receive medical care, shelter/food/clothing, job and social skills to the receipt of funding. In fact, all of the service providers training, substance abuse treatment, housing placement, etc. contacted stated that the stability and predictability of their As such, a homeless individual (or a case-manager) in Waikiki financial situation is a primary concern. Alika Campbell, an must piecemeal together the different services he or she needs outreach leader with homeless youth service provider Hale from various providers that are often geographically located Kipa, asserted that the “stability of funding is a major issue for miles apart. There is currently no such “one-stop shop” facility [the program], the levels of staffing and the services (beyond for homeless on O`ahu. However, Maui does have a facility the basics) are both tied directly to funding.” Keith Ishida, a modeled on such a concept near Wailuku. planner for the Department of Community Services for the City and County of Honolulu, commented on the financial sensitivity and straits facing service providers as a result of “declining federal funding and lack of stability of funding.” Sandra Miyoshi,

current efforts current State of Hawaii Homeless Programs Administrator expressed concern about “the lack of funding from the legislature in order to continue operating at current levels.”

8 HOMELESS IN WAIKIKI Before commencing research on the strategies and best practices employed to address homelessness by other cities and BIDs, it was important to first identify parameters congruent with the unique characteristics of Waikiki as well as other constraints limiting governmental and BID actions (see Table 3). A primary limitation is whether or not a particular strategy is legal and constitutional. The United States Constitution guarantees all citizens a set of rights that is paramount to all other enacted legislation. These inalienable rights include liberty interests such as the right to travel and the right to speak freely. A similar set of rights is guaranteed by the Hawai’i State Constitution. Controversies concerning a jurisdiction’s particular approach to curbing the incidence of homelessness usually stem from an infringement on a homeless individual’s rights. The federal courts have also identified various rights applicable to homeless issues including the rights to necessities of life and free association. In contrast, there is currently no Hawai’i case law on point with regard to the rights of homeless individuals. Based on current case law, the principles of law pertinent to the issue of homeless rights which directed the research of strategies and best practices were identified. For example, a recent federal appellate case concerning homeless behaviors held that, “[b]ecause there is substantial and undisputed evidence that the number of homeless persons in Los Angeles far exceeds the number of available shelter beds at all times . . . Los Angeles has encroached upon Appellants’ Eighth Amendment protections by criminalizing the unavoidable act of sitting, lying, or sleeping at night while being involuntarily homeless.” The foregoing legal principle allows for greater restrictions on homeless behaviors if there is ample shelter for a jurisdiction’s homeless. Strategies and best practices employed by (1) cities in the U.S. and abroad and (2) various BIDs and development associations were reviewed. Research involving what cities are currently doing largely entailed a review of the literature put out by the government and various organizations on best practices, criminalization of the homeless, and demographics and policy analyses, including reports sponsored by: the National Coalition for the Homeless, the National Law Center on Homelessness and Poverty, the Interagency Council on Homelessness, the U.S. Department of Housing and Urban Development, and the International Downtown Association. Research on the role various BIDs play in addressing homelessness required more targeted internet research. Overall, cities and BIDs employ a myriad of strategies to adress the problem of homelessness in their respective jurisdictions. While some cities and BIDs appear to push the legal limits just described, others embrace the concept of ending homelessness in their communities. With regard to the former, a January 2006 report by the National Coalition for the Homeless and the National Law Center on Homelessness & Poverty states that a growing number of cities have enacted ordinances prohibiting such things as camping, sitting or lying, loitering and begging. best practices best

TABLE 3. Legal restrictions on governmental actions concerning homeless.

9 HOMELESS IN WAIKIKI In some of these cities such prohibitions apply only in “particular Targeted research of various BIDS across the country public places”; however, other cities take a more extreme reveals a similarly diverse approach to dealing with issues of approach by prohibiting such activities “citywide.” The report homelessness. Some BIDs choose not to programmatically documents a similar upward trend in city efforts restricting confront homelessness, others treat it as a peripheral issue, and service providers from serving food to poor and homeless others are actively addressing the problem in their jurisdiction. individuals in public places. At the same time, the 2005 U.S. For example, a number of Manhattan’s 54 contracted BIDs Conference of Mayors Hunger and Homelessness reports that do not integrate homeless services or outreach programs into many cities are not meeting shelter demands which, in light their BID plans. In contrast, the Fashion District BID in New of the preceding discussion, raises doubt as to the legality of York offers street outreach services to homeless and other some of these ordinances. affected individuals through a contract with the Partnership for On the other end of the spectrum, over 200 cities are actively the Homeless. Clients are offered access to drop-in centers, engaged in developing and maintaining 10-year planning health care, substance abuse services, social services, and the initiatives to end homelessness. The development of local emergency shelter system. Similarly, the Downtown Los Angeles 10-year plans began in 2000 when the National Alliance to BID has a “Purple Patrol” team of men and women who maintain End Homelessness (the “Alliance”) presented: “A Plan, Not the cleanliness of Downtown’s sidewalks. The crew members A Dream: How to End Homelessness in Ten Years.” The are recruited from “Chrysalis,” a non-profit program offering underlying idea is to close the front door to homelessness employment opportunities to economically disadvantaged and through prevention programs while implementing more formerly homeless individuals. effective back door strategies for re-housing already- Upon completion of this literature review and the Waikiki homeless homeless individuals and families. These plans are also survey, research turned more specifically towards identifying aimed at incorporating strategies to increase incomes, expand strategies and best practices for addressing homeless populations affordable housing, and help individuals and families access that resemble and correspond to the characteristics and needs services. In a recent review of 10-year plans by the U.S. of Waikiki’s homeless population. The strategies uncovered Interagency Council on Homelessness, special emphasis by this research are categorized under the three approaches

best practices best was placed on the important role that BIDs, tourism officials, described in the following section along with specific illustrations and business, hospitality, and civic leaders should play in the and descriptions of how various cities implement a number of formation and implementation of such plans. these strategies.

10 HOMELESS IN WAIKIKI What can be done to reduce the incidence of homelessness in Waikiki? To promote dialogue about this issue and to facilitate a discussion of possible policy options, this paper presents three approaches, each offering strategies for reducing the number of homeless individuals in Waikiki. Specifically, each approach offers a particular category of strategies for addressing homelessness, including: broadening and diversifying housing opportunities, broadening and diversifying the range of services provided, and enhancing the physical and legal infrastructure in the Waikiki area. The discussion that follows consists of an assessment of the advantages and disadvantages of the various strategies and a discussion of the tradeoffs that would likely be required if a particular strategy is employed. The range of strategies presented within each category reflects an understanding that homeless individuals in Waikiki have distinct characteristics and needs which necessitate a diversified policy approach. For example, certain strategies may be more appropriate and effective when used to address the needs of individuals who have been homeless for only a short period of Approach One says there are neither time versus individuals who suffer from long-term homelessness. sufficient housing opportunities nor shelters to This is because it is generally understood that short term spells of homelessness are usually the result of personal crises, such meet the needs of homeless individuals who as job loss, rising rents, or family disputes. Such individuals reside in the Waikiki area. Housing is viewed as may therefore benefit most from services that quickly return the critical component to curbing homelessness, them to work and back into housing. On the other hand, long-term homelessness often affects an individual’s attitude, regardless of whether one believes housing is a behavior, and appearance in ways that make a return to “normal right or homeless individuals are an eyesore. life” increasingly difficult and unlikely. Thus, a different set of strategies will likely be needed to help individuals who have Approach Two says that individuals in been homeless for a long period of time. Both populations Waikiki became or remain homeless because of exist in large numbers in Waikiki. At least half of the homeless disabilities, addiction, economic difficulties, and individuals in Waikiki surveyed meet the HUD’s definition of chronically homeless; this number is likely higher since some educational shortcomings. Approach Two calls surveyors reported that most of the individuals who refused to for greater funding, more outreach workers, participate in the survey appeared to be long-term mentally and a more diversified approach to providing disabled homeless individuals. “Chronically homeless” means that (1) an individual has been continuously homeless for over the Waikiki homeless population with needed one year or (2) an individual has experienced four or more mental, physical, employment, educational, and periods of homelessness over the prior three years and is not a related forms of assistance part of a family that is homeless. Of the remaining population in Waikiki, approximately 8% have been homeless for less than Approach Three says weak or unenforced one month and approximately 38% have been homeless between laws perpetuate and increase the incidence one month and one year. of homelessness in Waikiki. Approach Three The examples just cited are not intended to suggest that all short-term homeless individuals share the same needs or that calls for tougher vagrancy laws, greater all chronic homeless individuals share the same needs; rather, enforcement of existing laws, and adoption of what is suggested is that the most effective approach to dealing design strategies that discourage loitering and with Waikiki’s homeless population would be to recognize and respond to the individualized nature of the problem. Accordingly, panhandling. it is encouraged that a mixture of the strategies offered within each of the following three approaches be contemplated to framework deliberation formulate a comprehensive approach to addressing the problem of homelessness in Waikiki.

11 HOMELESS IN WAIKIKI approach 1

The American Planning Association’s (APA) Policy Guide on Homelessness recently reported that in no jurisdiction in the United States does a minimum wage job provide enough income for a household to afford the fair market rent for a two- bedroom unit. What Can Be Done?

The situation on the island of O`ahu fares no better. In 2005, the Report of the Joint Legislative Housing and Homeless Task Force reported that a four-person household earning eighty percent of the island’s median income could be expected to afford a single family home priced at $222,200. Yet, the median sales price of single family homes on O`ahu in 2005 was $550,000. Renting hardly presents a better option for O`ahu residents; the same four-person household could be expected to pay $1,410 in monthly rents yet the median rent for a single family home in 2005 was $2,204. This lack of affordable housing leads many with no other apparent choice but to reside on the island’s beaches and parks. Despite these discouraging statistics, Hawai’i Governor Linda Lingle has expressed optimism that homelessness in Hawai’i is solvable, proclaiming that “having people who are homeless, on the street or in the shelter, goes against how we see ourselves.”

What the preceding paragraph reveals is that homelessness is primarily an issue about housing. Some argue that housing is a basic human right. Others argue that providing all individuals with access to safe, decent, and affordable housing benefits society as a whole. Still others support a more aggressive housing strategy for dealing with the homeless merely because they see it as an effective means of removing the “eyesore” created by homeless individuals roaming or hanging out in a particular area such as Waikiki. Regardless of which of these arguments one subscribes to, all three perspectives offer support for the strategies provided within Approach One. All of these strategies aim to either prevent individuals from

housing falling into homelessness or, alternatively, to move already- homeless individuals residing in the Waikiki area off of the streets and into a housing situation that corresponds most appropriately to their particular needs and characteristics.

12 HOMELESS IN WAIKIKI Eviction Prevention Hotline and Database agencies, which may be governmental or private not-for-profit entities, focus on developing and maintaining relationships Forty-two percent of the homeless individuals surveyed stated with landlords throughout their communities. Individualized that they were homeless because they had problems paying assistance may include landlord mediation, rental start-up rent or because they had been evicted. Oftentimes, with good costs, resolving outstanding debt, legal assistances, and advice or timely direction to assistance programs, eviction, and securing food and furniture. Individualized case management thus homelessness, could be prevented. Approach One therefore continues even after clients’ rapid reentry to permanent housing proposes the development of an eviction prevention hotline that to ensure that individuals and families are stabilized in their individuals could call to get immediate advice about how to new homes. avoid eviction, or, if necessary, could be referred to appropriate service providers. The HUD website currently lists the names and Permanent Supportive Housing contact information for several agencies and service providers Traditionally, the aim of most homeless assistance systems has that presently offer similar services in the State of Hawai`i, but been to address the immediate needs of a homeless individual these agencies and service providers deal with a multitude of or family in order to get them off the streets and into housing. issues and are often already overwhelmed by their caseload. A Once housed, they may or may not receive additional direct well-advertised hotline that is specifically geared towards eviction services, depending on community resources and needs. A prevention and manned by knowledgeable and trained volunteers permanent supportive housing strategy, however, accepts would present a more effective alternative. that some homeless individuals may require lifelong support Commensurate with the hotline would be an identification to prevent the reoccurrence of homelessness. While some database to be shared among service providers. Information on individuals with serious and persistent disabilities may be callers, such as name, contact information, place of residence, able to live in market rate housing with appropriate supportive and some measure of the caller’s risk of eviction, would be input by services, others may have disabilities which make it impossible call center operators. The availability of online database services for them to live independently. In the latter instance, developing would allow housing and other service providers to share this and funding project-based permanent supportive housing information instantaneously. When service providers have this units would be necessary. A third segment of the homeless information they can respond more quickly and effectively to those population in need of permanent supportive housing is the individuals who, despite assistance from the hotline, nevertheless homeless youth. Service providers report that the Waikiki become evicted. area has a significant, though often hidden, homeless youth population. These individuals are in need of permanent Housing First supportive housing that will help guide them into becoming Housing First aims to get individuals or families who are at responsible and successful adults thereby helping to break the immediate risk of homelessness or who have just recently fallen otherwise likely reoccurrence of homelessness throughout the into homelessness rapidly back into permanent housing. This individuals’ adult life. Presently, such a program would be illegal approach is premised on the belief that homelessness presents on O`ahu given an existing law which makes it illegal to house a multiple problems and individuals or families are more responsive minor without parental consent. Thus, a first step in affording to interventions and support when they are in their own housing Waikiki’s homeless youth permanent supportive housing would rather than living on the streets or in temporary or transitional be to lobby lawmakers to amend this restriction in the law. housing situations. Housing First, therefore, seeks to provide a critical link between emergency and transitional housing systems and community-based and governmental re-housing services and resources that tend to be fragmented, difficult to access, or unavailable to those seeking to attain stability and independence in permanent housing. An important point is that housing search and stabilization services may be more effective if they are carried out separately from traditional homeless service centers which spend much of their time and effort on meeting daily demands for emergency and temporary shelters. In Hennepin County, Minnesota, within one week of entry to the county funded shelter, a Rapid Exit Coordinator makes an assessment of the individual’s or family’s particular “housing barriers.” Housing barriers include things like a criminal background

or a poor credit and rental history. Based on the assessment, one the Rapid Exit Coordinator refers the individual or family to one of the agencies contracted by the county to provide clients with individualized assistance to locate and secure permanent housing, or if necessary, transitional housing. The latter may be necessary for an individual to develop a stable rental history. The contracted 13 HOMELESS IN WAIKIKI approach 1

“Wet” Facilities If one subscribes to the notion that everyone has a right to shelter or that society benefits when all of its residents The opening of a “wet” house in or near Waikiki is perhaps are housed, then opening a shelter in Waikiki or in the the most controversial strategy presented under Approach immediate surrounding area could serve as an effective One. Unlike most transitional or permanent housing facilities, means of getting homeless individuals off the beach and “wet” houses do not require homeless individuals to achieve out of the area’s parks at night. On the other hand, if sobriety as a prerequisite for use of the facility. Rather, such one is primarily concerned with removing the “eyesore” facilities intend to minimize the negative consequences of created by the homeless population in Waikiki during their residents’ drinking patterns, while providing a stable and daylight hours, opening a shelter may be viewed as an culturally appropriate living environment which encourages a ineffective strategy. Along similar lines, some may argue reduction in alcohol consumption. In Anishinabe Wakiagun, that opening a shelter in or near Waikiki would only attract Minnesota, the city provides permanent supportive housing to more homeless individuals to the area. long-term homeless individuals who are chronically addicted to alcohol. The city rationalizes that these individuals are regularly Rental Subsidies arrested and are high-utilizers of the public health system, which Rental costs are skyrocketing and becoming more and impose substantial costs on the local government. Thus, the more out of reach for lower and middle income individuals city believes, and studies demonstrate, that the cost involved on the island of O`ahu. Currently, the State Housing & in providing this kind of supportive housing is nearly offset by Community Development Corporation of Hawai`i ’s Section savings in the public health and enforcement systems. 8 waitlist is closed and there is a five to seven year waiting Wet facilities also provide a means of removing, arguably, period for Section 8 assistance from the county. To alleviate the most off-putting and unsightly homeless individuals from the growing burden on island residents, this strategy calls public beaches, parks, and streets. As such, this strategy may for the county, businesses, and community members to be particularly appealing for an area like Waikiki which relies advocate for greater federal funding for state and county heavily on tourism. However, a previous effort to establish such Section 8 housing choice voucher and project-based a facility in Waikiki was unsuccessful, having been overwhelmed programs as well as the development of additional rental with “not in my backyard” sentiments and concerns that such a subsidy programs. In addition, recognizing the common facility would only attract more homeless individuals suffering stigma associated with rental subsidies and similar forms from addictions to the Waikiki area. of assistance, this strategy calls for the county, businesses, and community members to encourage landlords in the Shelters in Waikiki Waikiki area to accept Section 8. There are currently no homeless shelters in Waikiki or in the immediate surrounding area. Thus, it is arguably of no surprise that only 7.8% of the homeless individuals recently surveyed in Waikiki reported that they had spent the previous night in a homeless shelter. When asked why they stayed in Waikiki even though there are no shelters in the area, the responses The majority of homeless individuals in Waikiki, regardless of the homeless individuals surveyed varied: of how long they have been homeless, are unsheltered at 30% reported that they stayed in Waikiki to be night. close to family and friends, 27% said it was for safety reasons, 23% said it was because Medical/dental and mental health services are received resources such as food and clothing were more often that shelter; 46% of the homeless surveyed readily available, and nearly 17% explained report that they receive medical/dental and mental health it was for aesthetic reasons. (Notably, many services but only 11% report that they receive shelter. of the respondents who said they stayed in Waikiki to be close to friends appeared to 75% of individuals who have been homeless less than year be referring to other homeless individuals.) report that they need shelter. In comparison, only 5% of These responses raise doubt as to whether those who have been homeless for a year or more report

housing building more shelters elsewhere on O`ahu that they need shelter. would entice Waikiki’s population to move out of the area. The lack of a shelter within the boundaries of Waikiki, make homelessness a more visibly prominent issue.

14 HOMELESS IN WAIKIKI A diversifi ed range of housing opportunities allows service providers to better respond to individuals’ needs.

Continual governmental fi nancial support is needed because of high cost of living.

Facilities that do not immediately require sober living minimizes the negative consequences of substance abuse patterns and reduces con- sumption.

Housing opportunities within Waikiki will help those who do not want to travel far.

Moving the homeless into housing enhances tourists’ and residents’ visual experience in public spaces within Waikiki.

Housing is a basic human right.

US 9th Circuit Court has said that increased criminalization can be justi- fi ed if ample housing is available.

Services are more eff ective when homeless are in their own homes, and it is cheaper for the government. those in support would say … say would support in those

Homeless in Waikiki do not spend time in the shelters already provided.

Homeless in Waikiki are attracted for social and aesthetic reasons.

The homeless are without shelter due to substance abuse and mental illness.

Putting a shelter in Waikiki still keeps the homeless in Waikiki.

It is fi nancially prohibitive to site shelter in a prime real estate area like Waikiki.

You cannot force a person live in a home. one

Some individuals choose to be homeless, regardless of the services and housing opportunities available to them.

those in opposition would say… would opposition in those 15 HOMELESS IN WAIKIKI approach 2

Many argue that providing housing in tandem with social services can increase the rate of homeless individuals transitioning off the streets. In Waikiki and the surrounding area, there are presently a number of organizations providing services to homeless individuals in various capacities. Due to the complex nature of the homeless problem, organizations nationwide and across the globe are diversifying the range of services provided to homeless individuals. Research conducted on strategies employed in other jurisdictions with respect to homeless services reveals a great level of innovation.

What Can Be Done?

Helping homeless to attain legal benefits and application assistance Recent interviews in the Waikiki area revealed that many homeless individuals are not aware of the financial and other social benefits available to assist them. Many of these individuals also appear to lack the capacity to complete the application process for Social Security, TANF, AFDC, VA, and other governmental benefit programs. Ensuring that homeless individuals receive the benefits they qualify for is a crucial element in transitioning homeless individuals off the street. For example, outreach workers, case managers, and voluntary legal advisers could be deployed to help the homeless fill out applications and provide legal advice. For example, the Maryland Supplemental Security Income Outreach Project assists homeless individuals fill out cumbersome Supplemental Security Income benefits applications. Their services include outreach, record gathering, completing applications, and advocacy. Clients are usually those who are clearly good candidates for Supplemental Security Income, but by virtue of their disabilities, are unable to navigate the application process or are simply unaware of their eligibility. Maryland’s project has experienced a great level of success. Given the substantial number of veterans (19%) and disabled individuals residing in Waikiki (44%), a similar initiative could help many receive financial assistance that could initiate their transition off the services streets.

16 HOMELESS IN WAIKIKI Dealing with mental and substance abuse health For example, in response to his experience with many homeless services individuals throughout his career, Dr. Damian Hatton initiated Homeless individuals collectively have a higher rate of mental street soccer leagues in London in 2001. It was created to and substance abuse problems than the broader community. give homeless individuals an opportunity to be involved in Research shows that substance abuse and mental disabilities community activities and a team environment. The initial are significant contributors for individuals trapped in the cycle six-week program of structured soccer matches was seen as of homelessness. A collection of organizations geared to assist a way to incrementally improve the long-term health and self- homeless individuals with mental and substance abuse problems confidence of homeless individuals through physical exercise currently serve the Waikiki area. Waikiki Health Center and Care- and teamwork. A-Van are two notable service providers who are addressing such A similar strategy is employed in Johannesburg, South Africa. problems. There are many peripheral issues that circumvent the Johannesburg participates in a consortium that has created a effectiveness of these programs, however. A primary concern free press publication for individuals living on the streets who raised at a recent panel discussion on Homelessness in Waikiki want to express their literary talents. The International Network was that the existing system of specialized and fragmented of Street Papers (INSP) acts as an umbrella organization for services currently lacks an effective overarching leadership body. this effort by advising cities around the world on how to set up Another issue revealed by the recent survey of Waikiki homeless street papers for homeless individuals and other marginalized individuals is the prohibitive effect of distance-to-services on members of society and by offering consultancy services for an individual’s willingness to obtain assistance. In this regard existing partner papers. INSP street papers are a powerful it is important to point out that Care-A-Van recently moved its international media movement, with a combined annual service base away from the Waikiki area, leading to complaints circulation of approximately 32 million copies. As a result of from many of the individuals surveyed. these empowerment programs, both London and Johannesburg have observed an increase in transitions off the street.

Developing social skills and confidence Closer to home, in 1994 New Mexico established adolescent transition groups (ATGs) to support the most vulnerable of Stereotypes often work to disempower homeless individuals. youth as they transition into adulthood. ATGs are comprised Disempowerment engenders a reluctance to participate in the of representatives from state and local child welfare, juvenile community and to take steps to improve one’s own situation. justice, education, mental health agencies, youth advocates,

Programs geared toward developing the social skills of homeless attorneys, and other community stakeholders. two individuals could promote confidence and esteem levels. Such programs help both young and adult homeless individuals shift their attitudes from cynicism and self-doubt to a positive outlook on their potential contribution to society.

17 HOMELESS IN WAIKIKI approach 2

and their clients. IMPACT focuses on providing a broad range “I think the biggest public shift is the of resources for job attainment, including: resume and interview realization that the people on our skills development; education and training (including information and referrals to free and low-cost English as a second language beaches are not just transients from the classes); adult literacy and GED programs; career development; workshops on job search techniques; job leads; employer mainland. They are our family, friends contacts; business attire; internet and e-mail access; college and neighbors.” guidance; and financial aid advising. The program also has a resource center stocked with computer equipment and training -Keith Ishida, C& C of Honolulu Community Services manuals for self-study. Lastly, IMPACT integrates supportive housing with its job placement services.

Offering employment and educational Waikiki’s Homeless: Did you know? services Homeless individuals face tremendous resistance from Of the 45% of homeless who reported suffering from some form employers as they attempt to enter the job market. WBIDA, of disability, 48% have a mental disability and 53% have a physical with the help of different service providers, could create a disability. database that tracks the names and skill sets of homeless individuals in the Waikiki area who are seeking employment. The top three expenditures for homeless are food (87%), alcohol The database could then be used to link homeless individuals (41%), and tobacco (27%). with potential employers. Job bulletins could be displayed and 51% of homeless came to Hawai`i from the mainland, 9% from regularly updated in shelters and community centers. Service another country, and 40% are local. providers could also integrate job search training and resume building into the services already provided. Most homeless travel by foot (80%), or bus (45%). As with the homeless surveyed in the Waikiki area, finding a job is the most frequently cited need among the homeless in Boston. On average homeless in Waikiki earn about $45.00 per day. Thus, investing in employment services is a major component � of Boston’s strategy to transition homeless individuals off the 57% of Waikiki’s homeless are experiencing homelessness street. IMPACT Employment Services, which helps over 700 for the first time in Hawai`i. homeless individuals each year secure and retain employment, is the city’s largest employment service for homeless individuals 31% of homeless have either a full-time, part-time or and families. Many of these job placements pay more than occasional job. $10 per hour. IMPACT staff members come from diverse Of the 31% of homeless who are working 79% only work occasion- cultural and economic backgrounds and speak numerous ally. languages thereby creating commonality between the staff

The major reasons for homelessness of both long and short-term homeless are economic (unemployment 26%, problems paying rent 42%). 31% of homeless individuals are working. Service needs among Waikiki’s homeless are broad; with clothing (54%), food (56%) and job training (49%) as the most sought after. Current local services are being under utilized only 37% of long term homeless (1 yr or more) use services and only 26% of short term (<1 yr) make use of services. services Homeless in Waikiki could benefi t greatly from services geared towards job training, housing and medical assistance. needs…

18 HOMELESS IN WAIKIKI Hawai’i unemployment is at a record low and our economy needs more workers.

These eff orts support our culture of civil and human rights.

Self-suffi ciency leads to a lower strain on government resources.

Substance abuse is a disease and we have a duty to help.

Society has a responsibility to take care of our Veterans and the ill.

Aloha is a way of living, not a word.

Programs tailored to a homeless individual’s need increase success rates and reduce recidivism, as proven by other BIDs.

Investment in the homeless pays dividends to our economy as they be- come productive members of our society, while creating a more pleasant atmosphere in our tourist center. those in support would say… would support in those Services attract more homeless to an area, especially in places like Waikiki.

More tailor-made programs increase the cost of assistance.

It is diffi cult to deal with people who are homeless by choice.

Increasing and delivering more services is a logistic nightmare.

It is too cumbersome to integrate the necessary resources.

More services will not actually move the homeless from Waikiki, people will come anyway due to its aesthetic beauty.

Homeless don’t want to work in the fi rst place. What’s the use in encouraging them to work?

No place for such services in Waikiki, land is very expensive to build new service center. two “Not in My Back Yard” those in opposition would say… would opposition in those

19 HOMELESS IN WAIKIKI approach 3

What Can Be Done?

At a recent forum on Homelessness in Walking a tight rope… Waikiki held at the University of Hawaii In a society based on the rule of law, our knee-jerk reaction to a Care-A-Van service provider Darlene public concern is to immediately pass legislation. Although this sentiment is a valid response to the problem of homelessness, Hein stated that efforts centered on caution must be exercised as the constitutional rights of the criminalization and physical obstruction homeless must also be considered. should not be considered as options The United States Constitution bestows upon all citizens a broad on the table by anyone. Obviously, set of rights including liberty interests like the right to travel and the issue of enhancing the physical the right to free speech. The federal courts have also identified and legal infrastructure in a manner various rights applicable to homeless issues including the rights that would discourage the incidence of to necessities of life and free association. homeless is sensitive to many. However, Enumerated rights of homeless generally rest in federal case because many believe that a non-service law. There is currently no Hawai’i case law on point with regard based approach would be successful to homeless rights. towards curbing homelessness, and Homeless rights are constantly in flux, and are redefined by the other jurisdictions have employed courts on a regular basis. As recently as April 2006, the law similar efforts to their benefit, non- regarding homeless rights has been redefined. The Ninth Circuit Court of Appeals recently held in a case involving a Los Angeles

infrastructure confrontational means should be County ordinance which banned sleeping on sidewalks in a considered as an approach in Waikiki ’s particular area that depriving individuals of opportunities to obtain coordinated effort. basic necessities of life is unconstitutional. The court further suggested that providing sufficient alternatives to necessities of

20 HOMELESS IN WAIKIKI life (e.g., sufficiently providing more beds in a shelter than there are homeless individuals on the street) would bolster support for ordinances limiting typical homeless behaviors within a jurisdiction. The courts are careful to provide a certain amount of latitude to state and local governments in their efforts to clean up their cities. Courts do not equate the rights of homeless with the rights of those experiencing discrimination for an immutable characteristic. However, the courts will not tolerate legislative efforts threaded with invidious intent against the homeless. Local and state governments may not make it an offense to be idle, indigent, or homeless in public places. Bars on the benches… Beyond criminalization, other efforts not requiring encounters with homeless are currently and readily employed throughout the Waikiki area. One common strategy used by the City & County is obstructions on public benches inhibiting an individual’s ability to lie down. Another more recently publicized effort is the nightly closing of parks for security and maintenance reasons. Other less involved measures include watering green areas and conducting wet cleanings at times when the corresponding areas experience a high presence of homeless individuals. Waikiki ’s image is crucial to its economic health and, as such, constant renewal is required. WBIDA grants to remodel areas fronting public areas in such a way as to discourage loitering could help achieve the visual facade necessary to sustain tourist traffic while making the same areas less inviting to the homeless. Although these efforts realize some success in reducing the incidence of homeless in particular areas, they are often controversial. As illustrated by Ms. Hein’s comment above, even the mention of such strategies elicits negative responses. Recent night closings at Ala Moana Beach Park drew large protests in front of city hall, leading to widespread media coverage. Many suggest that the prolific use of such measures is contrary to our community’s aloha spirit. However, discussions that contemplate a comprehensive approach to curbing homelessness must, at least, consider these strategies. three

21 HOMELESS IN WAIKIKI approach 3

Follow the law… Some would argue that existing laws and ordinances aimed at regulating human behavior, if properly enforced, are sufficient to curb the incidence of homelessness in Waikiki. For example, greater enforcement of current camping and open container laws might discourage the homeless from frequenting particular areas if more attention were paid to enforcement. A number of jurisdictions have hired dedicated officers through their police departments to patrol beats within BIDs. These dedicated officers are typically responsible for enforcing minor violations, such as public intoxication and loitering, that tend not to be a priority for regular officers. Proponents of greater enforcement would argue that no individual is above the law. Opponents, on the other hand, would argue that the only thing achieved by greater enforcement of seemingly neutral vagrancy laws is giving homeless individuals criminal records. Such an outcome only makes it harder for homeless individuals to obtain employment, housing, and other services. infrastructure

22 HOMELESS IN WAIKIKI Waikiki’sWaikiki’s iimagemage aass a ssafeafe andand cleanclean touristtourist destinationdestination hashas a ddirectirect impactimpact oonn tthehe eeconomicconomic hhealthealth ooff tthehe sstate.tate.

WBIDAWBIDA investmentinvestment inin street-levelstreet-level iinfrastructurenfrastructure ssupportsupports WWaikiki’saikiki’s needneed toto constantlyconstantly renewrenew itself.itself.

Self-helpSelf-help byby homelesshomeless isis promoted.promoted.

RReduceseduces ppanhandlinganhandling andand increasesincreases possibilitypossibility forfor moneymoney toto bebe givengiven toto thosethose whowho reallyreally cancan help.help.

IIncreasedncreased presencepresence ofof authorityauthority makesmakes peoplepeople feelfeel safer.safer.

OOtherther ccities,ities, ssuchuch aass PPortland,ortland, pproviderovide a mmeanseans bbyy wwhichhich ppeopleeople cancan donatedonate moneymoney ttoo ssocialocial seservicervice aagenciesgencies iinsteadnstead ooff ggivingiving ttoo panhandlers.panhandlers. those in support would say… would support in those

The business and governmental agencies show no concern for people who are in need.

Hawaii’s aloha spirit would diminish from our community if we choose not to take care of our own.

The homeless are just being pushed out of the area, and the problem is not actually solved.

We are a society of constitutional rights, and we are depriving the homelessthree of an opportunity for free exercise.

We are harassing the homeless

Regardless of what we try, the homeless are creative in fi nding ways to survive in a hostile environment.

Waikiki Beach is inherently beautiful and will always attract all types three of people, including homeless. those in opposition would say… would opposition in those

23 HOMELESS IN WAIKIKI comparing approaches

Waikiki Homeless Broaden housing opportunities Survey Demographics 243 - Homeless in Waikiki There are neither sufficient housing opportunities 87% - Sleep with no shelter nor shelters to meet the needs of the homeless residing in Waikiki. Housing is a critical component 52% - Chronically homeless to curbing homelessness.

70% - Homeless due to economic WHAT CAN BE DONE? hardships of affordable housing or unemployment • Eviction prevention hotline and database • Housing First/Rapid Response 19% - Homeless by choice • Permanent supportive housing • “Wet” houses 69% - Unemployed • Build more shelter 52% - Of unemployed say it’s because • Rental subsidies they cannot get a job

IN SUPPORT 21% - Of unemployed say it’s because they don’t want to work or due to their • Civil and human rights substance abuse problems • High cost of living requires government support • Services are more effective when individuals are 48% - Need shelter services and are housed. not receiving them

44% - Need employment training IN OPPOSITION: services and are not • Waikiki’s homeless are drawn to area for social receiving them and aesthetic reasons; more shelters elsewhere will not help. 34% - Need clothing and are not • You cannot force a person to live in a home. receiving it • Individuals are homeless by choice or because of substance abuse, they must help themselves. 12% - Need food services and are not receiving it TRADE-OFFS: 10% - Need medical/dental services Using already limited space in Waikiki for shelters and are not receiving them. or low-income housing would reduce other real estate opportunities, while also lowering nearby property values.

24 HOMELESS IN WAIKIKI Broaden & diversify Enhance physical and legal range of services infrastructure

Waikiki needs more resources and greater diversifica- Tougher vagrancy laws and greater enforce- tion of services to better respond to the broad and ment of laws already in effect are necessary to diverse needs of the Waikiki homeless community. decrease the incidence of homelesness in Waikiki. Public and private areas need to be designed to discourage loitering and panhandling. WHAT CAN BE DONE? • Legal benefits and application assistance • Mental and substance abuse services WHAT CAN BE DONE? • Social skills and confidence programs • Criminalize (illegal to sit, sleep or place personal belongings in a public space; more aggressive • Employment and educational services sweeps; prohibit panhandling) • Donations to organizations - not individual homeless • Privatization of public space •Grants to beautify business facades IN SUPPORT • Diversification of services better respond to individual IN SUPPORT needs • Good for business • Self sufficiency leads to lower strain on government • Better experience for tourists • Aloha is a way of living, not a word. • Catalyst for urban renewal

IN OPPOSITION: IN OPPOSITION: • Services attract more homeless to an area • Cruel • Expensive • No Aloha • Logistical nightmare • Doesn’t solve problem, just moves it • May push legal limits TRADE-OFFS: Allocating more resources to homeless services and promoting a broader range of services increases short- TRADE-OFFS: term costs and may divert resources from existing Adopting this approach may subject Waikiki to service providers. criticisms that punitive practices may impede true progress. More money and time spent on “home- less-proofing” efforts detracts from more direct forms of assistance.

25 HOMELESS IN WAIKIKI Before embarking on a discussion of potential strategies for combating homelessness in Waikiki, it must be emphasized that, as described previously, an array of services for the Waikiki homeless population is presently offered within and in proximity to the Waikiki area. Noticeably absent from the current framework, however, is sufficient leadership and collaboration between the various agencies and organizations serving Waikiki’s homeless population. Figure 5 illustrates the current flow of resources serving the homeless in Waikiki. The graphic tells a story of how an uncoordinated flow of resources between the various providers and agencies results in a fragmented FIGURE 5. Current flow of resources. package of aid to the homeless population. of public agencies, such as the Portland Police, with private The issue of coordination is important. One of WBIDA’s goals agencies like the Portland Business Alliance (PBA). CCC’s most in commissioning this study is to assess the viability of entering successful programs to date include the Community Engagement into a “public-private partnership” with government agencies and Program and Housing Rapid Response both of which combine non-government service providers as a means of addressing the the financial resources and efforts of the PBA, Portland Police, homeless situation in Waikiki. In this regard, Denver and Portland and multiple nonprofit service providers. PBA is also providing provide examples of public-private partnership jurisdictions financial backing for several projects in conjunction with the City that have achieved success by or Portland and Multnomah County. implementing centralization and Both of these cities also recognize coordination of resources at the that successful coordination requires county level. the input of all stakeholders, including Denver’s Road Home (DRH) is the homeless population. For the local level coordinating agency example, DRH is managed by a body for the City and County of Denver. similar to a “board of trustees” which DRH is the centralized office where is comprised of donors, service resources from the private and providers, government officials, and public sectors flow in. The public- homeless individuals. private partnership element is Guided by the coordination essentially monetary based—the frameworks in Denver and Portland, forty-one million dollar 5-year Figure 6 presents a suggested program is funded through various commitments: 50% from framework for coordinating homeless efforts on O`ahu. The state and local agencies, 25% from donors, and 25% from the framework illustrates that a focused effort at the county level is business community. In return for the private sector’s support, a foundational prerequisite for effectively curbing the incidence DRH is responsible for annually evaluating and reporting on the of homelessness throughout the island. program. Once a singular pipeline of resources is created, cities like Portland and Denver distribute resources according to the cities’ needs. For example, DRH’s resources are distributed by a resource allocation committee. The committee reviews applications for funding and makes allocations to nonprofit agencies that provide services which specifically respond to the

coordination Portland’s Central City Concern (CCC), is a centralized goals, objectives and outcomes of the city’s ten-year plan to end office for coordinating the efforts of various homeless service homelessness. The committee includes members from the providers into a continuum of care model. This model, under private, public and philanthropic sectors as well as individuals the guidance of CCC, coordinates the efforts and resources who are currently or were previously homeless. Notably, DRH

26 HOMELESS IN WAIKIKI As discussed above, there are a number of services available to Waikiki’s homeless population, including: shelter programs, drug rehabilitation facilities, mental health services, social services, medical services, rental assistance programs, free meals, and clothing assistance. However, the effectiveness of these services is limited by: (1) inadequate and unpredictable frequency has exceeded all benchmarks outlined in its ten-year plan includ- of funding and (2) lack of coordination and leadership between ing: (1) exceeding the projected amount of low-income housing and amongst programs. A more effective approach in Waikiki units built by 32%; (2) increasing the number of shelter beds by could be established by creating a central office to distribute 140; (3) preventing 156 at-risk families from losing their homes; resources and coordinate policy planning and implementation (4) surpassing the projected amount of those receiving mental efforts. health services by 34%; (5) adding 21 outreach workers; and (6) In summary, a system focused on neighborhood level resource amending the city’s zoning codes to allow for a rapid build-up of centralization (for example, at the county or by a BID) and new emergency shelters and expansion of existing ones. the coordination of efforts centered on the three approaches As alluded to through much of this issue book, homeless can best lift-up the homeless. Beyond the appropriate mix of reduction initiatives generally rest within three general policy resource support to the three approaches, each approach must approaches: (1) housing, (2) services, and (3) enforcement. also involve an appropriate blend of individualized programs. It Effective leadership and a system of resource and policy must be noted in closing, however, that many providers report coordination increases the likelihood that a comprehensive that the stringency of the current federal bureaucracy creates a strategy incorporating each of these approaches will be system that discourages a comprehensive approach. successful. coordination

Figure 6: Suggested framework for coordination

27 HOMELESS IN WAIKIKI Two sets of panelists discussed With regard to the need for leadership and coordination, the the issue of homelessness in discussions at times spoke broadly about political will and at other Waikiki and the three approaches times spoke more narrowly about the problem of homelessness as outlined in this issue book on it relates to Waikiki. The role of political leadership was raised by November 8, 2006 as part of a many different individuals. “One of the things this tells me is that World Town Planning Day event our representatives [and] our senators are not very responsive sponsored by the American to this problem. I feel like we need to force them to act . . .” said Planning Association-Hawaii Dr. LaCroix. A question raised by Professor Jim Spencer from Chapter and the University of DURP, who was sitting in the audience, concerning jurisdiction and Hawaii (UH) Department of Urban and Regional Planning responsibility highlights a corresponding issue: “[The] homeless (DURP). The first panel consisted of the following UH are a floating population with no rights in this environment with Professors: Dr. Dolores Foley (moderator) and Dr. Karen no political will; who has jurisdiction over this group?” As the first Umemoto from DURP; Dr. Neal Milner, Department of panel discussion came to a close, Dr. Milner reiterated the need Political Science and University Ombudsman; Dr. Ron for promoting coalition building between providers, the public, Matayoshi, Department of Social Work; and Dr. Sumner and business. LaCroix, Department of Economics. The second panel Turning to Waikiki, the panel discussions suggest that there consisted of local service providers and state and county currently lacks a comprehensive effort for combating homelessness government officials: Sandra Miyoshi, State of Hawaii in the area. Sandra Miyoshi, State of Hawaii Homeless Programs Homeless Programs, Keith Ishida, City and County of Administrator, is cognizant of this issue: “[The state has] utilized Honolulu, Department of Community Services; Darlene many of these options as of present, but perhaps not specific to Hein, Waikiki Health Center and Care-A-Van; Margot Waikiki as an area. Because Waikiki is our economic center, we Schrire, Institute for Human Services (IHS) and Dr. Karl Kim, try to keep many of our activities away from Waikiki.” She also DURP (moderator). Both panels engaged in a discussion cited the need for coordination and centralization as “we don’t have with the student researchers in front of a public audience. The panel discussions underscored the complexity of the homeless problem, specifically referencing the diversity of the homeless population and the need for a leadership entity to pull together and coordinate the existing, but fragmented, efforts already confronting the issue. With regard to the diversity of the population, Dr. Umemoto suggested that “homelessness should be approached from a ‘case management’ approach where the needs of the homeless are individualized.” Margot Schrire of IHS recommended a service based approach centered on housing, noting that a stable living environment can accelerate and increase the rate of successful transition off the street. Ms. Schrire also placed particular importance on the role of culture and homeless prevention, stating that Hawai`i’s strength is its culture: “We should emphasize the strength of our community and the resources to make ‘mega developments’ where resources are culture and merge it into our approach.” accessible all in one place. Rather our access to resources . . . [is] through the people who run services, are out in the field, and Darlene Hein from Waikiki Health Center was particularly bring all those pieces together.” Keith Ishida’s remarks about the critical about increasing the criminalization of homeless cost of setting up programs to address poverty in the Waikiki area behaviors and removing the homeless from particular suggest that the City & County shares similar concerns with the neighborhoods because “poverty is an underlying issue.” state: “Setting up a poverty program in Waikiki is an expensive Hein pointed out that: “The rich can go where they want,

public forum public proposition. Do you invest a lot of money in Waikiki or do you try and the poor cannot if we privatize public space.” Thus, to get them out of there because it’s more cost efficient? We have she argued that “poor people should be allowed to live in finite resources and we need to make judgment calls that come every community.” down to cold hard numbers.”

28 HOMELESS IN WAIKIKI This issue book presents three general approaches to reducing What’s an important risk posed by each choice? the incidence of homelessness in the Waikiki area. To provide A proliferation of homeless will continue in Waikiki as services attract context and data for the formulation of these approaches, WBIDA such individuals. A large capital investment in shelter and housing sponsored: (1) a point-in-time count of the unsheltered homeless could be wasted as the homeless in Waikiki may not choose to use and (2) a survey to identify the needs and characteristics of the such facilities. The aloha spirit may be lost by implementing and population. While it may be outside the scope of WBIDA’s abil- enforcing punitive measures. ity or jurisdiction to directly employ a number of the strategies presented within the policy approaches, it is intended that this issue book will guide WBIDA in its advocacy, partnership, and What are some likely tradeoffs? funding-support efforts. In calling for more services, focusing on broadening and diversifying Each approach, and the various strategies presented within them, the range of services may increase short-term costs and may divert has its advocates and proponents. Moreover, each strategy resources from existing service providers. Using already limited would certainly generate predictable and unpredictable costs, space in the Waikiki area for homeless shelters or low-income tradeoffs, and risks. In comparing the three approachs and housing would reduce other real estate opportunities, while also their various strategies, it may help to consider the following lowering nearby property values. Providing nearby shelters in Waikiki discussion points: does not move the problem out of the area. Increasing enforcement may subject Waikiki to criticisms that punitive practices impede true progress in solving the problem. More money and time spent on How do the approaches frame the problem of homeless proofing would divert resources from other direct forms homelessness in Waikiki? of assistance. Approach One views housing as the critical component to curbing homelessness in Waikiki, regardless of whether one believes Could elements of the three choices be housing is a right or homeless individuals are an eyesore. combined? Approach Two believes that individuals in Waikiki became or remain homeless because of disabilities, addiction, economic The range of strategies presented within each approach reflects difficulties, and educational shortcomings. Approach Three an understanding that homeless individuals in Waikiki have views weak or unenforced laws as perpetuating and increasing distinct characteristics and needs which necessitate a diversified the incidence of homelessness in Waikiki. policy approach. It is intended that a mixture of strategies from each approach are used to create a comprehensive approach to addressing and reducing the incidence of homelessness in the What can be done? Waikiki area. Approach One calls for more diverse housing opportunities and rental assistance programs, including the opening of a shelter in the Waikiki area; Approach Two calls for greater funding, more outreach workers, and a more diversified approach to providing the Waikiki homeless population with needed mental, physical, employment, educational, and related forms of assistance; Approach Three calls for tougher vagrancy laws, greater enforcement of existing laws, and adoption of design strategies that discourage loitering and panhandling.

What role should the WBIDA play? To address the homeless problem in the Waikiki area, WBIDA should support the formation of a public-private partnership with the state, county, and local service providers. The homeless population should also be seen as a strategic resource; meaning, with the right job training and social skills development, many of these individuals could fulfill the employment needs of businesses in the area. WBIDA’s membership and financial resources could also be employed to support advocacy and private grant efforts.

Specifically, WBIDA can look to the approach-balancing method summary proposed to guide the distribution of its financial support and its lobbying efforts for a more centralized and coordinated effort with the state and county governments.

29 HOMELESS IN WAIKIKI American Planning Association. “Policy Guide on U.S. Department of Housing and Urban Development Office of Homelessness” (Oct. 2003), available at http://www. Community Planning and Development. “A Guide to Counting planning.org. Unsheltered Homeless People” (Oct. 2004). Associated Press. “Homeless in Paradise: People With No U.S. Housing and Urban Development. “Homeless Information: Home Often Live on the Beach in Hawai`i” (Sept. 11, 2006), Hawaii” (2005), available at http://www.hud.gov/local/index. available at http://www.msnbc.msn.com/id/14788746/. cfm?state=hi&topic=homeless. Bratt, Rachel G., Michael E. Stone, and Chester Hartman. U.S. Interagency Council on Homelessness. “Innovations in A Right to Housing: Foundation for a New Social Agenda. 10-Year Plans to End Homelessness in Your Community.” Philadelphia: Temple University Press (2006). Denver’s Ten-Year Plan to End Homelessness, available at http://www.denversroadhome.org SPECIAL MAHALO TO: Fashion Center District Management. “The Fashion Center Jan Yamane, Executive Director, Waikiki Business Business Improvement District Annual Report 2003-2004” Improvement District Association (2004). Hawaii Continuum of Care. “State of Hawai`i’s 10-Year Major Marie McCauley, Captain Alan Arita and Officer Leland Action Plan to End Homelessness” (June 2004 Update). Cadoy of the Honolulu Police Department and the other officers who assisted with the night time counts Hawaii State Legislature. “Report of the Joint Legislative Housing and Homeless Task Force” (Jan. 2006). MAHALO TO: International Downtown Association. “Addressing Homelessness: Successful Downtown Partnerships” (Aug. Alika Campbell, Outreach Coordinator, Hale Kipa 2000). Courtney Duke, AICP, Pedestrian Coordinator, City of Portland International Downtown Association. “2001 Downtown Achievement Awards Special Achievement Award for Social Clark Hays, Writer, Central City Concern, City of Portland Issues: BID A.C.T.I.O.N., Los Angeles, CA” (2001). Jones, et al. v. City of Los Angeles, 444 F.3d 1118 (9th Cir. Darlene Hein, Director, Waikiki Health Center 2006). Keith Ishida, Planner, Department of Community Services, City Leckermen, Jason. “City of Brotherly Love? Using the and County of Honolulu Fourteenth Amendment to Strike Down an Anti-Homeless Ordinance in Philadelphia,” University of Pennsylvania Mike Kuykendall, Vice-President, Portland Business Alliance Journal of Constitutional Law 3 (2001): 540. Jamie Van Leeuwen, Director, City and County of Denver Market Trends Pacific. “Method and Results 2005 Point in Denver’s Road Home Time Census Count” (Aug. 2005). National Coalition for the Homeless and National Law Sandra Miyoshi, Administrator, State of Hawaii Homeless Center on Homeless & Poverty. “A Dream Denied: The Programs. Criminalization of Homelessness in U.S. Cities” (Jan. 2006). Terry Redeau, Street Systems Management , City of Portland, Pang, Gordon Y.K. “Homeless Problem is Solvable, State Office of Transportation Engineering and Development Says.” Honolulu Advertiser Jan. 11, 2005. Linda Rich, Director, Salvation Army Family Treatment Services Pottinger v. City of Miami, 810 F. Supp. 1551 (S. D. Fla. 1992). Margot Schrire, Public Relations, Institute for Human Services Redburn, F. Stevens and Terry F. Buss. Responding to America’s Homeless. New York: Praeger Publishers (1986). Jermane Turner, Kalihi-Palama Health Center SMS Research & Marketing Services, Inc. “Homeless Point- Leslie Uyehara, Project Director, Health Care for the in-Time Count Report, 2003” (Apr. 2004). Homeless Project State of Hawai`i Department of Business, Economic Development & Tourism. The State of Hawai`i Data Book

resources 2005: A Statistical Abstract. Honolulu: DBEDT (2005). Scharnberg, Kristen. “Hawai`i Awash in an Epidemic of Homelessness.” Chicago Tribune (Sept. 12, 2006).

30 HOMELESS IN WAIKIKI Prepared By:

The Department of Urban and Regional Planning University of Hawaii at Manoa 2424 Maile Way • Saunders Hall 107 Honolulu, Hawai`i 96822 808•956•7381

Fall 2006 • Practicum* • Lori Baker • Mike Dahilig • Megan Johnson • David Kiernan • Henry Mochida • Mohammad Shahinur Rahmin

Advisors Dolores Foley & Karl Kim *As part of the MURP (Master’s of Urban and Regional Planning) degree require- ments, all students must complete a practicum, which involves conduct- ing a team project for a client. The Fall 2006 practicum was conducted for the Waikiki Business Improvement District Association. homeless in waikiki Improvement Association Prepared for: Prepared Business District Waikiki