HAR §15-23-75. B

Aloha Tower Development Corporation Rules of Practice and Procedure # I. Introduction The Hawaii Community Development Authority's (HCDA) Aloha Tower Special District (hereafter referred to as "Special District") consists of 3.4 acres (150,000 square feet) and is bounded by Ala Moana Boulevard, Bishop Street, Nimitz Highway and Richards Street. The site currently houses Hawaiian Electric's (HECO) Downtown power plant. The site is adjacent to Irwin Park, the Downtown Financial District and the proposed Aloha Tower redevelopment area. The HCDA's jurisdiction over the site was initially established in 1987 (Act 355-87, SLH) when the Kakaako Community Development District boundaries were expanded to include the subject area and surrounding lands at Piers 5, 6, and 7. Subsequently, in 1991, the Aloha Tower Development Corporation (ATDC) was assigned jurisdiction over the piers, leaving the HECO site with HCDA. The Authority's designation of the site as a Special District (Section 15-23-75, Makai Area Rules) was based on the recognition that the area is not only distinct from other lands in the Kakaako District, but also has strong and direct association with the Downtown waterfront. The Rules established for the area are purposefully broad, recognizing the need for flexibility in shaping any potential development that may be contemplated for the site for compatibility with development proposed for adjacent areas. Specifically, the Makai Area Rules state that any proposed development must be capable of integration into plans for the Honolulu waterfront (i.e., Honolulu Waterfront Master Plan) and the development objectives of the Aloha Tower Development Corporation. Further, the Authority may impose "conditions and requirements" or "waive existing rules" as necessary to carry out the intent of the Honolulu Waterfront Master Plan and the objectives of the ATDC. # Development Guidelines This report summarizes major issues affecting the nature, scale and form of potential development on the Special District site, and culminates in development guidelines to implement the Makai Area Rules established for the area. The guidelines set forth basic development objectives and principles, while allowing the Authority the ability to interpret the potential in a wide variety of possible development scenarios. This approach is in keeping with the intent and spirit of the current rules. The development guidelines constitute the initial "conditions and requirements" anticipated under the Makai Area Rules. They establish performance standards and criteria by which to judge development proposals for the site, including parameters for essential view corridor, pedestrian access, density, height, open space, and other related site considerations. The Honolulu Waterfront Master Plan and ATDC's plans and documented goals and objectives served as fundamental bases for the guidelines. A major emphasis of both plans is to integrate the waterfront with Downtown Honolulu, to bridge current barriers, and to encourage access to the waterfront. The Special District's location is ideal in helping to accomplish this goal and the proposed priorities for the site and basic directions established in the guidelines reinforce this objective.  2 ## II. Analysis ### A. Plans and Ordinances #### 1. Makai Area Plan and Rules The development parameters established by the Makai Area Rules for the Special District (Section 15-23-75, Makai Area Rules) site are summarized below. (See Appendix A.) a. The Special District site shall be developed in a manner capable of integration with the Honolulu Waterfront Master Plan and the development objectives of the Aloha Tower Development Corporation. b. Any land use is allowed that is compatible with the Makai Area Plan, the Honolulu Waterfront Master Plan and the development objectives of the ATDC. c. The HCDA may impose conditions and requirements that are reasonable and necessary to carry out the intent the Honolulu Waterfront Master Plan and the development objectives of the ATDC. d. The HCDA may also waive requirements of the Makai Area Plan and Rules, provided that such waiver will result in an increase of public benefits to the proposed Aloha Tower development project. #### 2. Aloha Tower Development Corporation's Development Guidelines ATDC development objectives (Subchapter 4, ATDC Rules of Practice and Procedure) pertinent to the Special District site are summarized below. (See Appendix B.) a. Provide ease of pedestrian access to the project and waterfront, and generous open spaces for public enjoyment by eliminating visual and physical barriers between the waterfront and Downtown, and by creating strong pedestrian links between Downtown and Aloha Tower, particularly along Fort and Bishop Streets. b. Improve view corridors down Fort, Bishop, and Alakea Streets. c. Develop uses which would stimulate and be compatible with the commercial activities of the downtown business community, ... and create new activities to assist in bringing people to the waterfront.  Aloha Tower Development Corporation Project Area 3 d. Provide accessible vehicular ingress and egress, and create a parking strategy which minimizes both the cost and impact of parking on the Aloha Tower complex. # 3. Honolulu Waterfront Master Plan While the Honolulu Waterfront Master Plan provides no site-specific criteria for the Special District, it does set forth directions for the general Aloha Tower/Downtown Waterfront. The Master Plan suggests: a. The redevelopment of the Aloha Tower/Irwin Park site could possibly include development ... which create opportunities for a variety of experiences at the water's edge. b. The key factors for any development in this area should be its relationship to Downtown. c. Major urban design considerations include: (1) the transition or stepping down of building heights between the Downtown high-rises and the water's edge, (2) the protection of views of Aloha Tower from key public vantage points (including Ala Moana/ Nimitz), and (3) the provision of public access and/or viewing of the harbor activities from the development area. d. The Aloha Tower/Downtown site provides a unique identity and environment that incorporates the historical maritime aspects of the waterfront with the modern central business district of Honolulu.  4 #### 4. City and County of Honolulu Land Use Ordinance The Special District site is adjacent to two separate zoning districts of the City and County of Honolulu: Business Mixed Use District (BMX)-4 and the Hawaii Capital District. The intent of the BMX-4 zone is to set apart that portion of Honolulu which forms the City's center for financial, office and governmental activities and housing. It is intended for the Downtown area and allows the highest land use intensity for commerce, business and housing. The maximum height is 350 feet and allowable density ranges from 4.0 to 7.5 FAR. The Hawaii Capital District provides safeguards for the buildings and landmarks which represent the State's civic, cultural, political, and architectural heritage. The Special District site was previously part of the Hawaii Capital District's waterfront precinct with height limits of 40 feet. As of 1990, HCDA's and the ATDC's regulations supersede that of the Capital District, the boundary of which is now Alakea Street and Nimitz Highway. In this corner of the district, maximum heights range from 65 feet to 350 feet.  5 ## B. Urban Design The physical context of the site is defined through the following discussion of the surrounding urban fabric. # Streets The streets of Downtown Honolulu run perpendicular to the harbor, derivative of the historic connection of the wharves to the mauka, Downtown commercial activity. Nimitz Highway has developed over time into a major corridor, forming a substantial barrier. As diagrammed in the Honolulu Waterfront Master Plan, the highway prevents a continuous connection between Downtown and the waterfront. The Special District site is in a key position to reestablish this linkage through enhancement of the Bishop Street and Richards Street accessways. # View Corridors Primary views to the water from Downtown are along Bishop Street and Alakea Street. The Bishop Street visual connection is particularly impressive as the Baldwin and Dillingham buildings, as well as Irwin Park, lend a special character to potential views. The Falls of Clyde and the Aloha Tower are visible down Bishop Street. The Alakea Street view corridor is currently marred by the HECO buildings, but has great potential for expanded views in the future. Richards Street does not have a view of the water from Downtown, as the fastlands at Piers 5 and 6 extend well into the harbor. # Pedestrian Circulation The major pedestrian links between Downtown and the waterfront are Fort Street, Bishop Street and Richards Street. Note that there is no pedestrian connection along Alakea Street. As envisioned under the Honolulu Waterfront Master Plan, Ala Moana Boulvard, as it passes in front of Piers 5, 6, 7 and 8, will become a major promenade along the waterfront. The Downtown area has a typical urban pattern of buildings with storefronts along the sidewalk. Continuation of this pattern for projects with commercial components would help blend the Special District with Downtown. Retail activity, perhaps with arcades, can also add interest to the pedestrian waterfront experience. # Open Space The Special District site is surrounded by open space: Irwin Park, the harbor and the landscaped area along Richards Street.    6 Strictly speaking, park-like space is not lacking. However, open space for pedestrian circulation and view planes is critical at this site. The Bishop Street frontage has both pedestrian circulation to the waterfront and view corridor functions; the Ala Moana frontage should have enough open space to enhance the character of the proposed promenade. The potential Alakea Street view corridor is important for visual relief but it is not a prime public accessway as there is no accompanying pedestrian connection across Nimitz Highway. The site context is urban and publicly-oriented. Conspicuous, private open space (e.g., in the case of exclusive residential use), could be perceived as overtly excluding the public. As much as possible, private open space should be grade separated or carefully blended with public open space, especially along the waterfront. ## Building Forms There are four predominant building forms in the area. Chinatown is characterized by low structures, with storefront clustered along the edge streets. The financial district is characterized by towers with geometric footprints. The Capital District buildings have interior courtyards and are surrounded by open space. And the waterfront is characterized by long, low wharf buildings. Each of these characterizations hold true for parts of the area, and become inconsistent around the edges as one sector overlaps into the other. (i.e., Chinatown has towers on the periphery, as does the Capital District and the proposed Aloha Tower project). The Special District could take either the Downtown tower or the waterfront wharf building as precedent for form. The tower is favored, as the lower, horizontal massing characteristic of the wharf buildings would tend to obstruct views.  Chinatown  Downtown Honolulu  Waterfront  Hawaii Capital District 7 ### C. Land Use Issues In consideration of the range of potential regulatory approaches that might be applied to the Special District, traditional zoning options were reviewed for possible applicability to the site. The aim is to establish appropriate development guidelines that will enable the site to realize its full potential as a transition area between Downtown Honolulu and the harbor and, at the same time, complement and support the State's overall waterfront redevelopment strategy. # Density Density that is established for the Special District should take into consideration the densities of adjacent development areas. The following are the density ratios for the respective, adjacent sites: | Makai Area Plan | 3.5 | | --- | --- | | Mauka Area Plan | 3.5 | | BMX - 4 | 4.0 - 7.5 | | ATDC overall | 2.14 to 12.23 (3.88 average) | Based on the above, it can be concluded that a reasonable density for the site is somewhere between the maximum 3.5 FAR in place for the Kakaako District and maximum 7.5 FAR established for the Central Business District. Ideally, to preserve open space connections, density would be achieved in towers with a maximum amount of open space and other pedestrian-oriented amenities such as arcades, that help connect the site with the surrounding urban fabric. Formulas that allow for higher densities in proportion to greater amounts of open space and arcades would, therefore, be appropriate. Under the guidelines, 3.5 FAR is used as a starting point, based on Makai and Mauka Area Plan sensibilities. An additional 5 square feet of floor area would be allowed for each square foot of publicly accessible open space that is provided. The emphasis on "public" open space is in keeping with the desire to open the Downtown waterfront for greater public use and enjoyment. Similarly, arcades for commercial development would help stimulate pedestrian activity. The arcade bonus is based upon the City's Land Use Ordinance. # Height Adjacent building heights were also analyzed in determining appropriate height controls for the Special District. Aloha Tower heights range from 90 feet to 400 feet. The BMX-4 height limit is 350 feet, with most of the existing buildings between 200 and 300 feet in height. 8 Under the guidelines, a maximum height limit of 350 feet is established for the Special District (see "Open Space", below) consistent with BMX-4 allowances for the Central Business District. As indicated earlier, with reasonable controls on building massing, such a height allowance on the relatively compact 3-acre site would facilitate the maintenance and enhancement of critical mauka/makai view corridors. ## Land Use Pursuant to the Makai Area Rules, any uses that are compatible with the Makai Area Plan, the Honolulu Waterfront Master Plan, and the development objectives of the ATDC shall be allowed. Based on this criteria, general industrial uses would be discouraged. ## Open Space The Makai Area Rules require a minimum of 20 percent of publicly accessible open space at grade for planned development projects, in addition to required yards and setbacks. Open space at grade and public access through the site are perceived as important design considerations. As mentioned earlier, in an effort to encourage public open space the guidelines would allow greater densities and height if the project provides significant public and private open space. Public open space is encouraged by density bonuses. Meanwhile, a height bonus would be allowed for any open space in addition to a minimum quantity of 25 percent public open space. ## Building Envelope and Build-to Lines The facade of the building envelopes along Nimitz Highway should be sensitive to facings structures across the street. Meanwhile, pedestrian scale structures along Ala Moana Boulevard should complement the waterfront. In general, buildings should be oriented to preserve and enhance mauka/makai views, minimize solar exposure and relate to Downtown orientation patterns. Blank walls at street level and "back-of-the-house" treatments should be avoided and positive steps should be taken to relate structures to all streets through appropriate fenestration or other design means. If for programmatic reasons the proposed structures do not require strong integration with adjacent streets (e.g., in the case of residential use or the absence of commercial/retail activity) the site design should nonetheless ensure that streetscapes are consistent with overall waterfront redevelopment plans for the surrounding area. 9 # Parking Given its visually sensitive location, special consideration should be given to parking at the Special District site. Unless very carefully sited, the bulk of a typical parking structure would block views to the waterfront The ideal solution is to underground or partially underground parking, limiting any above-grade parking to the Richards Street side of the site. The Mauka Area Rules average 1.1 spaces per residential unit and 1 space/444 square feet of commercial space; both seem appropriate for the Special District. 10 ### III. Development Guidelines A. Purpose and Intent These guidelines form "conditions and requirements" to augment