T R O U B L E D WAT E R S :

C H A RT I N G A N EW F I S C A L
C O U R S E F O R H AWA I I
A report to the members of the Hawaii Executive Conference 
on the fiscal outlook for Hawaii over the next thirty years

 Leading and Inspiring with Hawai‘i’s Soul
OCTOBER 2, 2019

COMMITMENT AND COLLABOR ATION

T O T H E M E M BE R S OF T H E H AWA I I E X E C U T I V E C ON F E R E NC E :

Your Committee on Government & Civic Engagement was tasked with examining the
status of state and local government in Hawaii and proposing recommendations for
change into the future.
As we undertook this assignment, it became apparent that there was no shortage of
ideas and recommendations for improvement from everyone who was asked to comment. However, one thing became abundantly clear; enacting the changes proposed
would require significant resources.
That prompted your Committee to first focus on the future fiscal capacity of state and
local government. In that regard we studied the known future liabilities of state and local governments. They are costs that government will be required to address during the
30 year period ahead. Our research focused on the fiscal expenses that were the largest
and most essential. They fell into three categories: (1) the need to mitigate the impact of
climate change, sea level rise, and natural disasters; (2) costs associated with infrastructure development and maintenance; and (3) the unfunded liabilities that must be met to
honor public employee pension and post-employment health care benefits. Our findings
led to the conclusion that the extent of future costs that state and local governments are
required to meet will strain their capacity beyond any prior experience.
We do not offer solutions in our report. Rather, we realized that a major effort must
be undertaken to formulate fixes. That next phase must involve civic engagement by
diverse stakeholders in a process that will require strategic vision, collaboration and
innovation. The expert and sage advice of many community leaders will be required to
develop strategies. It will be also be an important opportunity to engage a younger generation of leadership who will inherit these burdens. They must weigh in and identify
the future they want to live and the path they will be willing to travel to achieve it.
As members of the Hawaii Executive Conference, it is incumbent upon us to support
this effort going forward with resources and talent. We can then again demonstrate
Hawaii’s ability to work together as a community for the benefit of future generations.
Respectfully submitted on behalf of the members of the Committee on Government and
Civic Engagement,
Colbert Matsumoto
Chair

1000 BISHOP STREET, SUITE 202 HONOLULU, HAWAII 96813

info@hec.org

www.hec.org

 In the next thirty years, Hawaii must build and maintain
infrastructure, prepare for natural disasters and sea
level rise, and meet public employee pension and retiree
healthcare obligations. Facing these three challenges will
cost over $88 billion. Overcoming these fiscal challenges
with limited financial resources will require strategic vision,
collaboration, and innovation.

 GOVERNMENT CHANGE REPORT

I

n the sixty years since statehood in 1959, Hawaii has undergone
a profound transformation. The first thirty years were marked
by tremendous economic growth that fueled infrastructure
construction and new private developments.

Hawaii made major advances in social and economic equality. The State undertook significant public infrastructure projects:
constructing the H-1, H-2, and H-3 freeways; tunneling through
the Koolau mountain range to create the Pali, Wilson, and Harano Tunnels; building the reef runway on Oahu; redeveloping airports on the Big Island, Maui, and Kauai to accommodate transpacific air travel; and developing a new deep draft harbor at Barbers Point to supplement
shipping capacity at Honolulu Harbor.
Public education facilities were improved in every community to accommodate the
growing numbers of “Baby Boom” children. To provide higher education, the State established the University of Hawaii system that incorporated the university campuses
in Manoa and Hilo; upgraded technical schools into community colleges on every major island; and founded a medical school and a law school within the 15 years following statehood. 
With tourism rapidly rising as an economic engine, private developers added thousands of new hotel rooms to Waikiki and developed new resorts like Kaanapali, Wailea,
Kapalua,  Keauhou-Kona, Waikoloa, the Gold Coast, Princeville,  Turtle Bay,  and Ko
Olina. With agriculture’s role diminished, private developers built thousands of homes
in new residential communities on former agricultural land to accommodate a growing middle class and families looking to live the “American Dream.” The more recent
development of the city of Kapolei and the Kaka‘ako Redevelopment District were first
conceived and initiated during this period.
While the economic prosperity of that period was primarily attributed to the rise
of tourism, government spending was also important. The federal government infused hundreds of millions of dollars for developing defense facilities throughout the
State. Robust tax revenues fueled the growth of State and local governments as they
sought to serve an expanding constituent base.   
 
At times during the first thirty years of statehood, the growth of the economy in Hawaii outpaced the economy of the United States. The strength of the economy gave lawmakers the confidence to enact a bold and progressive pre-paid health care plan, the
first in the nation - 35 years before the Affordable Care Act (“Obamacare”) was enacted by Congress.   

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 GOVERNMENT CHANGE REPORT

During the next thirty years till today, concerns about population growth and overdevelopment prompted the enactment of laws to control the pace of development.
The burden of  State and local government began to outpace public revenues while  increases in existing taxes with new tax measures were enacted. Hawaii’s economy slowed
from the pace it had previously enjoyed.
A series of economic downturns resulted from the bursting of the Japanese  Real  Estate Bubble, the slowdown in tourism activity due to the Persian Gulf Wars, the Dot-com
crash, 9-11, and the Great Recession.  As  State and local governments were confronted
with a tighter fiscal situation, they struggled to balance budgets. Government employees
were laid off in large numbers in the mid-1990’s and children attending public schools had
their instructional days reduced through the notorious “Furlough Fridays” as a cost-savings measure in 2010.  
Large scale public infrastructure investments were largely curtailed, except for Honolulu’s troubled rail project. Fewer major private developments were initiated. Newly proposed developments such as Ho‘opili and Koa Ridge found themselves  burdened with
lengthy regulatory review processes and judicial challenges.  
During this thirty-year period, multiple attempts to stimulate the economy with various
economic initiatives fell short and budgetary shortfalls continued to recur. Balancing budgets became an exercise in raiding special funds1, raising taxes2, and enacting new taxes.3
Several Special Fund accounts along with the Hawaii Hurricane Relief Fund (“HHRF”) became convenient sources of supplemental funding for the State’s General Fund.
2
The Transient Accommodation Tax (“TAT”) began at 5% primarily to support the counties and today stands at 10.25% with most
of the revenue diverted to the General Fund. State personal income tax rates were raised for middle and high income earners
by as much as 34%. The Conveyance Tax on real estate transactions was also increased from $0.05 to $1.25 per $100 of price to
supplement the General Fund.
3
A Barrel Tax on imported petroleum products was enacted at $0.05 in 1993 and subsequently increased to $1.05 per barrel to
supplement the General Fund. All the counties were granted the right to impose up to a 0.5% GET surcharge from 2019 in addition
to their increasing real property tax rates.
1

3

 GOVERNMENT CHANGE REPORT

Efforts to revitalize the agriculture industry consistently faltered. The goal of diversifying Hawaii’s economic base remained elusive as heavy dependence on tourism continued and morphed into new forms.  
We begin the next thirty-year period confronted with a new set of challenges.
Today, the cost of operating government is getting more expensive while Hawaii’s economy has not kept pace with the rest of the nation. Between 2012 and 2018, the cost of
State government increased 41%4 despite the number of employees remaining relatively
flat.5 During this same period, Hawaii’s economy grew 9.8% or 1.6% annually compared
to the national rate of 2.4%.6 DBEDT forecasts GDP growth of 1.1% in 2019 and 1.2%
in 2020.7 Faced with these economic conditions, State and county governments cannot
continue to operate in such a manner. Government will simply be too expensive to conduct business as usual.
 
With this report we attempt to project the fiscal challenges that the State and counties
will face during the next thirty years. We focused on three major fiscal challenges and
quantified their financial impact. The three major fiscal expenditures are:
(1) the major capital investment required for basic public infrastructure critical for
economic viability;
(2) the costs of preparing for the impact of climate change and the threats of sea
level rise and natural disasters; and
(3) the increasing share of the budget that must be reserved to provide public employee pension and retiree healthcare benefits. 
Our estimate, based upon official reports and several agency studies, does not provide a
complete picture as some agencies have not yet determined their future needs. But even
with that caveat, the aggregate amount is substantial.
The total future fiscal State and county expenses and investments are more than
$88 billion over the next thirty years. The number exceeds Hawaii’s gross domestic
product (“GDP”) in 2018.8
 
This report was prepared by a team  that  included  economists,  scholars, fiscal experts, and business executives. In addition, the authors have interviewed dozens of experts and consulted numerous government and other relevant reports and studies. 
We start by defining the three fiscal challenges, and then proceed to discuss how strategic vision, collaboration, and innovation can help to overcome them.

State of Hawaii CAFR 2018, p.154-155 Financial Trends Information.
State of Hawaii CAFR 2018, p.173 Demographic and Economic Information, State Employees by Function. Demographic and
Economic Information, State Employees by Function.
6
State of Hawaii Data Book 2018, Table 13.03 GDP, Hawaii and the United States.
7
Department of Business, Economic Development, and Tourism (DBEDT), “Outlook for the Economy”, 3rd Quarter 2019 Report.
8
State of Hawaii Data Book 2018 reports inflation adjusted GDP of $80.1 billion for 2018.
4
5

4

 GOVERNMENT CHANGE REPORT

THE THREE FISCAL CHALLENGES

I

I M P R O V I N G I N F R A S T R U C T U R E :   $ 4 7. 2 B I L L I O N

Infrastructure is the fundamental facilities and systems serving a community. It is the backbone of the economy and essential to its proper
functioning. A 2014 study by the Hawaii Institute for Public Affairs
estimated that infrastructure investments of $15.5 billion in the next
twenty years will create more than 212,000 jobs and contribute almost
$33 billion to the local economy.9 Investments in West Oahu have created a second city in Kapolei for the benefit of residents and businesses.

Inadequate infrastructure curtails opportunities for economic  development and undermines a community’s economic competitiveness. Moreover, it can
have collateral consequences that impair the quality of life in the community.
Yet, Hawaii’s infrastructure is ailing. Poorly maintained facilities have accelerated their
deterioration and increased the cost of repair or otherwise triggered the need for replacement. Potholes, electrical outages, and water main breaks are the most frustrating examples of infrastructure failure encountered by the public.
The major categories of infrastructure spending we identified are as follows:
Affordable Housing: $3.2 billion
Hawaii is experiencing a crisis in its shortage of affordable housing.10 The inadequate
supply of affordable housing has resulted in housing costs reaching an intolerable level
and Hawaii’s cost of housing is one of the highest in the nation.
The severe shortage of affordable housing creates a vicious cycle. As residents leave Hawaii to find more affordable communities, employers struggle to hire needed employees.
Without an adequate workforce, businesses are unable to expand and fewer jobs are
created. This contributes to the “brain drain” as talented workers move elsewhere. A
2019 study found that 66% of 18-34 year-olds currently living in Hawaii have considered
leaving Hawaii.11

Hawaii Institute of Public Affairs, “State of Physical Infrastructure in Hawaii, Phase II” Accessed September 6, 2019. http://hipaonline.com/images/uploads/StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf
10
A 2015 DBEDT study identified a need for 65,000 housing units to meet demand by 2025 with 44,000 of those units needed for
low-income households earning 80% or less of Area Median Income.
11
Pacific Resource Partnership, “Hawaii Perspectives”, Accessed September 6, 2019. https://2w57np2winy89onj5k3rbd14-wpengine.netdna-ssl.com/wp-content/uploads/2019/04/HP_Spring-2019.pdf
9

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 GOVERNMENT CHANGE REPORT

But government alone doesn’t have
the financial capacity to fix the affordable housing shortage. An initial appropriation by the State of
$200 million to the rental housing
fund has been made. This initial investment as part of a $1 billion total
appropriation over ten years to the
affordable rental housing revolving
fund12 will only address a fraction
of the housing shortfall.13 It is essential that the private sector fill
the gap where government cannot.
The 28,000-person housing waitlist for the Department of Hawaiian
Homelands exemplifies the limitations and inertia of government-led
development of affordable housing.14

HAWAII’S AFFORDABLE HOUSING
SHORTFALL

65,0 0 0
TOTAL NUMBER
OF AFFORDABLE
RENTAL HOUSING
UNITS NEEDED

2 2,5 0 0
TOTAL NUMBER
OF AFFORDABLE
RENTAL HOUSING
UNITS ACT 127
WILL ADDRESS

Even the promise of privately financed housing in transit-oriented development (“TOD”)
zones along the Honolulu rail route will go unfulfilled without adequate sewer, water,
and electrical infrastructure in the areas surrounding the rail stations. The assessed
cost of additional infrastructure to support TOD housing is $1.4 billion.15 
Private developers regularly cite inadequate infrastructure as among the major reasons
for their inability to build more affordable housing. 
 
County Water and Wastewater: $5.7 billion
Freshwater, wastewater, and sewage systems are necessary to Hawaii’s infrastructure.
They are large, extensive, and expensive. They require significant maintenance and investment resources. For example, the Honolulu Board of Water Supply anticipates a $5.3
billion investment over the next thirty years in order to upgrade, replace, and maintain
the potable water system on Oahu.16 On the Big Island, a new $100 million desalination
plant in Kona was determined a necessary investment.17

State of Hawaii, “Affordable Rental Housing 10 Year Plan”, Accessed September 8, 2019. http://files.hawaii.gov/dbedt/op/spb/
AffordableRentalHousingReport_10YearPlan.pdf
13
Affordable rental housing Act 127 (2016) will only address 22,500 households of the estimated 65,000 shortfall. https://www.
capitol.hawaii.gov/session2016/bills/GM1229_.PDF
14
Hawaii Business Magazine, “Fixing the Backlog of Native Hawaiians Waiting for Homesteads”, Accessed September 6, 2019.
https://www.hawaiibusiness.com/hawaiian-homesteads-backlog/
15
State of Hawaii, “State TOD Strategic Plan”, Accessed September 8, 2019. https://planning.hawaii.gov/wp-content/uploads/
State-TOD-Strategic-Plan_Dec-2017-Rev-Aug-2018.pdf
16
Board of Water Supply, “30 Year Investment Plan”, Accessed September 8, 2019. https://www.boardofwatersupply.com/bws/
media/files/hbws-30-year-infrastructure-investment-plan-summary-2018-03.pdf
17
Hawaii Tribune Herald, “Bonds Eyed for Desalination Plants”, Accessed September 9, 2019. https://www.hawaiitribune-herald.
com/2019/02/23/hawaii-news/bonds-eyed-for-desalination-plants/
12

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 GOVERNMENT CHANGE REPORT

Sewer and wastewater systems in Honolulu have undergone extensive improvements
since 2010. The City and County of Honolulu has been focused on preventing spills and
protecting the environment due to a 2010 consent decree from the federal government.18
A $375 million Kailua to Kaneohe sewage project was completed in 2019 ahead of schedule and under budget.19 But that project was only one phase and the City already issued
a $325 million bond in 2017 to fund the next phase required to comply with the federal
consent decree.20
Transportation: $14.7 billion
Transportation infrastructure on every island has failed to keep up with the growth
of  our population and tourism.  Highway traffic congestion  increases  travel time
for users with  resultant economic loss and reduced quality of life.  As modes of  air
and  ocean  transportation  modernize, it becomes increasingly important for  airports
and harbors to invest in facilities that can accommodate new technology. The State of
Hawaii anticipated $5.5 billion in transportation future capital spending in 2014.21
Other transportation investments include the rail transit project overseen by the Honolulu Authority for Rapid Transit (“HART”). It is the most ambitious infrastructure project
undertaken since H-3. Cost of construction is currently projected to reach $9.2 billion.22
  
RATE OF COMPLETION OF DOE’S LONG-TERM FACILITY MASTERPLAN WITH
FUNDING AT $300 MILLION PER YEAR
ESTIMATED COMPLETION OF
HIGHEST PRIORITY PROJECTS
2 019

2023

2027

2031

2033

ESTIMATED COMPLETION
OF FULL MASTER PLAN
2037

2041

2 04 5

2 049

205 1

205 5

YEAR

Public Schools: $12.6 Billion
An educated population is critical to both the quality of life and economic vitality of any
community. The Department of Education and the University of Hawaii have crucial
roles in delivering publicly funded educational services to our youth.
A 2019 study commissioned by the Department of Education determined it would cost
$11 billion to implement its long-term facility master plan to achieve the goal of “a qualPacific Business News, “Honolulu Spending $5.2B On Sewage System, Not Expanding Capacity”, Accessed September 8, 2019.
https://www.bizjournals.com/pacific/blog/2016/01/honolulu-spending-5-2b-on-sewage-system-but-not.html
19
Honolulu Star Advertiser, “City Completes $375 Million Kaneohe-Kailua Sewer Tunnel Project”, September 8, 2019. https://
www.staradvertiser.com/2018/06/21/breaking-news/city-completes-375-million-kaneohe-kailua-sewer-tunnel-project/
20
City and County of Honolulu, “Wastewater System Revenue Bonds”, Accessed September 8, 2019. https://www.honolulu.gov/
rep/site/bfs/treasury_docs/Wastwater_bond_2017.pdf
21
Hawaii Institute of Public Affairs, “State of Physical Infrastructure in Hawaii, Phase II”, Accessed September 6, 2019.
http://hipaonline.com/images/uploads/StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf
22
Honolulu Star Advertiser, “Rail Recovery Funds Get Federal Approval”, Accessed September 8, 2019.
https://www.staradvertiser.com/2019/09/06/hawaii-news/rail-recovery-funds-get-federal-approval/
18

7

 GOVERNMENT CHANGE REPORT

ity school for every child, regardless of where they live.”23 The report noted, however,
that with the current level of legislative funding at $300 million a year, it would take 23
years to complete just the highest priority projects and 36 years to fully implement the
master plan. Until then, as many as three generations of students will be deprived of
that “quality school” environment. Additionally, the University of Hawaii also aims to
modernize its facilities in the near term with a six-year, $1.6 billion plan.24
 
Public Safety: $1 billion
Hawaii correctional facilities are overcrowded with negative impacts on both inmates
and staff. A prison reform task force noted that more than $1 billion in capital spending
for new facilities has been identified on Oahu if the State of Hawaii built capacity for
mainland prisoners.25 The task force noted millions could be saved if Hawaii transitioned from a punitive to a rehabilitative correctional system.
State mental health facilities are similarly inadequate to service growing patient needs
and has led to patient escapes and staff morale issues. Additionally, many homeless on
the streets require institutional settings to care for their health but there is no capacity
to accommodate them in existing facilities.
Deferred Maintenance of Public Facilities and Public Facilities Improvements: $8.9 billion
The public facilities of the State and counties in Hawaii require significant investment for
current maintenance responsibilities and future improvements. The total estimate for deferred maintenance was reported at over $4.3 billion26 just for the State of Hawaii public
facilities. Furthermore, the previously noted HIPA study highlighted an estimated $4.6
billion for future public facility improvements for Hawaii, Maui, and Oahu counties.27This
figure includes multiple departments and counties from the 2014 HIPA study.28
New Public Facilities: $1.1 billion
In addition to maintaining existing public facilities, significant investments in new facilities were proposed in 2019. The State of Hawaii appropriated $350 million for the
redevelopment and design of Aloha Stadium.29 The project will be called the New Aloha
Stadium Entertainment District and aims to build residential and business facilities. An
additional public facility upgrade was requested on Oahu. The City and County of Ho-

Civil Beat, “Hawaii DOE Statewide Facility Master Plan”, Accessed September 15, 2019. https://www.documentcloud.org/
documents/5912480-Hawaii-DOE-Statewide-Facility-Master-Plan-Final.html
24
Civil Beat, “UH Wants $600 Million In 2019 To Modernize Its Crumbling Campuses”, Accessed September 8, 2019. https://www.
civilbeat.org/2018/09/uh-wants-600-million-in-2019-to-modernize-its-crumbling-campuses/
25
HCR Task Force, “Creating Better Outcomes, Safer Communities”, Access September 8, 2019. https://www.courts.state.hi.us/wpcontent/uploads/2018/12/HCR-85_task_force_final_report.pdf
26
State of Hawaii, “Estimated Deferred Maintenance Costs”, Accessed September 8, 2019. https://budget.hawaii.gov/wp-content/
uploads/2018/12/35.-Appendix-5-Estimated-Defferred-Maintenance-Cost-FB19-21-PFP.ef3_.pdf
27
Hawaii Institute of Public Affairs, “State of Physical Infrastructure in Hawaii, Phase II”, Accessed September 6, 2019. http://hipaonline.
com/images/uploads/StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf
28
Ibid. Includes estimates from Maui and Hawaii counties in addition to the City and County of Honolulu Department of Design
and Construction and County of Maui Department of Public Works.
29
Honolulu Star Advertiser, “Ige Signs Bill To Fund Replacement For Aloha Stadium”, Accessed September 8, 2019. https://www.
staradvertiser.com/2019/07/09/sports/ige-takes-action-signs-bill-to-fund-replacement-for-aloha-stadium/
23

8

 GOVERNMENT CHANGE REPORT

nolulu aims to modernize the Neil Blaisdell campus at an estimated cost of $772 million
via a Public-Private-Partnership.30
Other Private Infrastructure: $909 million
Electricity and internet communications are infrastructure necessities. The economy
and internet depend on a resilient and reliable electric infrastructure. The first phase
of modernizing the electric grid by the Hawaiian Electric Company is estimated to cost
$205 million.31 Upgrades to modernize the electric grid will lead to higher electric rates
for the people of Hawaii.32 Also, the cost of modernizing broadband internet should be
considered. The migration to 5G technology will need an estimated $704 million of
wireless infrastructure investment.33 These private infrastructure investments are not
included in our government infrastructure calculations but will be ultimately paid by
businesses and consumers in Hawaii.
The estimated $47.2 billion
in future infrastructure improvements over the next
thirty years will require further investments due to the
unprecedented weather impacts of natural disasters, sea
level rise, and climate change.
P R E P A R I N G F O R N AT U R A L
D I S A S T E R S A N D C L I M AT E
CHANGE: $15.3 BILLION

The reality of climate change
and the impact of global
warming for island communiKing tides hit the shores in front of the Halekulani
Hotel in Waikiki.
ties in the Pacific Ocean cannot be denied. Experts predict
sea level rise to be more than 3
feet along coastlines before the end of this century.34 Hawaii had recent direct experiences
exacerbated by climate change.

KHON 2 Online, “Request for Qualifications Sought for Neal S. Blaisdell Center Public-Private Partnership”, Accessed September 8, 2019.
https://www.khon2.com/news/local-news/request-for-qualifications-sought-for-neal-s-blaisdell-center-public-private-partnership/
31
Hawaiian Electric Company, “Grid Modernization Hawaii’s Grid For Our Customers”, Accessed September 12, 2019. https://www.
hawaiianelectric.com/documents/clean_energy_hawaii/grid_modernization/final_august_2017_grid_modernization_strategy.pdf
32
KHON News, “Hawaiian Electric Proposes a Rate Increase”, Accessed September 12, 2019. https://www.khon2.com/news/
hawaiian-electric-proposes-a-rate-increase/
33
Pacific Business News, “Next Generation 5G Could Add $1.3B to Hawaii GDP”, Accessed September 12, 2019. https://www.
bizjournals.com/pacific/news/2017/01/13/next-generation-5g-could-add-1-3b-to-hawaii-gdp.html
34
Hawaii News Now, “Impacts of Sea Level Rise Already Being Felt”, Accessed September 8, 2019. https://www.hawaiinewsnow.
com/2018/09/20/hawaii-study-impacts-sea-level-rise-already-being-felt-it-will-only-get-worse/
30

9

 GOVERNMENT CHANGE REPORT

Increased flooding from storms has reached record levels. The Pacific hurricane season in
2018 set a record for the number of storms and their intensity. In April 2018, Kauai suffered the worst natural disaster since Hurricane Iniki. Torrential rains dumped 50 inches
of rain in 24 hours setting a national record and causing $20 million in damage to public
buildings and $80 million for highway repairs. In August 2018, Tropical Storm Lane became the wettest tropical cyclone on record with damage to roads and bridges on the Big
Island at a cost exceeding $42 million. Tropical Storm Olivia followed in September causing $25 million in damage. That storm was noteworthy because it was the first time in
modern history that such a storm made landfall in Maui County. If a hurricane were to
hit Maui and Oahu, the damage would be catastrophic. Core systems and facilities would
be disrupted for weeks before being restored. Ports would likely be damaged by storm
surges, rendered inoperable, and threaten our food supply. Even without a hurricane, the
impact of rising tides is already being felt in Hawaii. 
Sea level rise has exacerbated the impact of “King Tides” and tidal flooding. Hawaii has
recently experienced king tides affecting Waikiki and gave us a preview of the eventual
effect of sea level rise. In 10 to 20 years, Waikiki may have daily flooding out of the storm
drains at high tide. Sea level rise will undermine infrastructure and other improvements
along shorelines, including roadways, buildings, harbor facilities and other structures.
The future of tourism in Waikiki will be challenged. Waikiki is particularly vulnerable
from both the ocean and flooding from the mountains. The U.S. Army Corps of Engineers
has identified a flooding risk from the Ala Wai Watershed that could affect 3,000 structures and cost more than $1.14 billion in damages. To reduce the risk of such flooding, a
mitigation project has been proposed at a cost of $345 million. This is just one example
highlighting the amount of investment that will be necessary in the years ahead to address the impact of climate change and sea level rise.
Unfortunately, this report is unable to quantify the expected costs related to the impact of climate change or the costs to manage the threat of the increased frequency of
natural disasters. No comprehensive, official estimates exist. Sea level rise will affect
harbors, airports, and highways but the agencies responsible for those facilities have yet
to undertake studies to determine the impact of sea level rise on their facilities. The only
preliminary estimate available was one from the Department of Transportation, Highways division. Based on the cost per mile and number of miles affected by sea level rise,
it is estimated to cost $15 billion to realign shoreline highways.35 We have incorporated
this number in our analysis.
Beyond the direct costs from the physical impacts of climate change, there will be social
costs associated with climate-induced migration. Increased frequency of storms, floods,
sea level rise and desertification will force many residents of Pacific Island communities
to relocate. The people of Micronesia, the Marshall Islands, and Palau can live and work
Civil Beat, “A $15 Billion Price Tag to Protect Hawaii Highways From Climate Change”, Accessed September 8, 2019.
https://www.civilbeat.org/2018/04/a-15-billion-price-tag-to-protect-hawaii-highways-from-climate-change/
35

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 GOVERNMENT CHANGE REPORT

in the United States without a visa because of the Compact of Free Association. Because
Hawaii is similar to their home, Hawaii is a popular destination for migrants from these
nations. As their home islands are confronted with the effects of climate change, the
number of migrants to Hawaii will likely increase. Thus, the $300 million in annual government  services provided today by the State of Hawaii will increase due to climate
change.36 This future cost of additional social services is not included in our analysis.
In total, the future natural disaster and climate changes improvements over the next
thirty years will likely surpass our current $15.3 billion estimate. However, this estimate is significantly less than the State of Hawaii’s current obligations for retiree pension and healthcare fiscal obligations.
M E E T I N G S TAT E E M P L O Y E E H E A LT H C A R E A N D P E N S I O N O B L I G AT I O N S : 
$25.7 B ILLION

Public employees in Hawaii enjoy pension and retiree healthcare benefits. Their right to
enjoy vested retirement benefits is guaranteed by the State Constitution37 and must be
honored by the State and counties who employ them.
Over several decades, benefits have been modified and enhanced through legislation
and collective bargaining, often without a full understanding of their full cost and financing. The long-term nature of retirement benefits made funding their true cost easier to overlook. As the State faced fiscal deficits, deferring payroll contributions to the
Hawaii Employees Retirement System (“ERS”) was a convenient ploy to find dollars
to fund other current needs. Regarding the Employer-Union  Health Benefits  Trust
Fund (“EUTF”) which administers retiree healthcare benefits, there was no mandated
prefunding until 2015 when the Legislature made a provision for annual contributions
to prefund future costs.
In the first decade of the twenty-first century, local economic growth slowed as population growth leveled off. Healthcare costs continued their sharp increase and market returns tumbled as multiple fiscal crises rippled through the global economy. Longstanding state laws made it extremely difficult for the State to adequately fund its pension and
retiree healthcare benefits. Although many of these laws were eventually changed, the
costs to fund pension and retiree healthcare benefits grew to unmanageable levels.
As a result, the funded ratio of the ERS fell from 94% in 2000 to 55% in 2018 and was underfunded by $13.4 billion.38 The EUTF has a funded ratio of 13% and is underfunded by
$12.2 billion.39 From 2020, the public employers will need to make annual contributions

Big Island Video News, “Federal Compact Aid Insufficient”, Accessed September 6, 2019. https://www.bigislandvideonews.
com/2019/05/15/video-federal-compact-aid-insufficient-rep-case-tells-doi-secretary
37
Article XVI, Section 2 of the State Constitution provides: “Membership in any employees’ retirement system of the State or any political subdivision thereof shall be a contractual relationship, the accrued benefits of which shall not be diminished or impaired.”
38
The current total estimated liability to meet ERS’ pension obligations is $29.9 billion.
39
The current total estimated liability to meet EUTF’s retiree healthcare obligations is $14.6 billion.
36

11

 GOVERNMENT CHANGE REPORT

STATEWIDE TOTALS BY FIXED VS. NON-FIXED - GENERAL FUNDS
*Due to rounding, numbers may not add to total.

$0.8 63b

$ 0.857b

DEBT
SERVICE

DEBT
SERVICE

$1.02 b
RETIREMENT
SYSTEM

$1 .1 2 b
RETIREMENT
SYSTEM

$3.96 b

$ 4 .02 b

NON-FIXED
COSTS

NON-FIXED
COSTS

$1.07b

$1 .1 2b

MEDICAID

MEDICAID

$1.13b

$1 .1 7b

HEALTH
FUND

HEALTH
FUND

FY 2020 TOTAL =

$8.046B

FY 2021 TOTAL =

$8.295B

to the ERS and EUTF in amounts equal to 48% of the payroll cost for general employees
and 65% of the payroll cost for police and fire personnel. 
By 2022, over half of the State’s annual general fund will be allocated to funding retiree
pensions and healthcare, debt service payments, and Medicaid.40 If tax revenues do not
increase enough, a larger share of the budget will be required to satisfy these expenses.
Eventually, these  constitutionally protected obligations will crowd out other government services such as public education, public safety, health and social services, and
environmental protection. 
The current unfunded liability for retiree pension and healthcare benefits amount to
over $25.7 billion. In addition, the $47.2 billion for infrastructure and $15.3 billion for
natural disaster and climate change preparation will further impact government services. The combined $88 billion poses a fiscal challenge that requires a movement of
civic engagement.

40

FY 2019-21 Executive Biennium Budget; Budget in Brief; Prepared by the Department of Budget and Finance.

12

 GOVERNMENT CHANGE REPORT

H AWA I I G O V E R N M E N T F U T U R E
E X P E N S E S OV E R T H E N E XT 3 0 Y E A R S

FUTURE HAWAII
GOVERNMENT
EXPENSES =

$88.2B

$2 5.7b

$ 47.2b

PENSION AND
HEALTHCARE

INFRASTRUCTURE

$1 5.3 b
NATURAL
DISASTERS AND
CLIMATE CHANGE

FUTURE INFRASTRUCTURE EXPENSES
*Due to rounding, numbers may not add to total.
INFRASTRUCTURE

COST (IN
BILLIONS)

INFRASTRUCTURE

COST (IN
BILLIONS)

AFFORDABLE HOUSING

$3.2

UH FACILIT Y
MODERNIZATION

$1.6

STATE RENTAL HOUSING

$1.0

STATE PERMANENT
SUPPORT HOUSING

$0.8

PUBLIC SAFETY

$1.0

HONOLULU PRISON
UPGRADES

TOD INFRASTRUCTURE
UPGRADES

$0.5

$1.4

NON-HONOLULU PRISON
UPGRADES

$0.5

COUNTY WATER &
WASTEWATER

$5.7

PUBLIC FACILITIES

$8.9

HONOLULU BWS

$5.3

COUNT Y OF HONOLULU

$2.7

HONOULU SEWAGE

$0.3

COUNT Y OF HAWAII

$0.4

KONA DESALINATION
PLANT

$0.1

COUNT Y OF MAUI

$1.5

TRANSPORTATION

$14.7

STATE DEFERRED
MAINTENANCE

$4.3

STATE DOT

$5.5

NEW FACILITIES

$1.1

HONOLULU RAIL

$9.2

ALOHA STADIUM

$0.4

PUBLIC EDUCATION

$12.6

NEAL BLAISDELL CENTER

$0.8

DOE FACILIT Y
MODERNIZATION

$11.0

TOTA L

$47.2

13

 GOVERNMENT CHANGE REPORT

FUTURE NATURAL DISASTERS AND CLIMATE CHANGES EXPENSES
NATURAL DISASTERS AND CLIM ATE CHANGE

COST (IN BILLIONS)

ALA WAI FLOODING PROJECT

$0.3

STATE HIGHWAYS RELOCATION

$15.0

TOTA L

$15.3

FUTURE RETIREE PENSION AND HEALTHCARE UNFUNDED LIABILITIES
PENSION AND HE ALTHCARE

COST (IN BILLIONS)

ERS PENSION

$13.4

EUTF HEALTHCARE

$12.3

TOTA L

$25.7

N E X T S T E P S F O R C I V I C E N G AG E M E N T

E

ach of the three fiscal challenges is massive. In combination,
they can appear overwhelming. Although we would have
preferred not to paint an ominous picture of the fiscal journey  ahead,  our research  consistently pointed  to turbulent
waters that will  have to  be  navigated. We recognize that
there are no easy answers and we offer none. Rather, we only
quantify the problem confronting us and propose a process to
find the right solutions. We firmly believe it is not too late to
create and implement solutions. It is time for us to commit in
addressing these fiscal challenges. 

We must develop strategies and policies for managing our fiscal challenge. That will
be the next phase for Hawaii Executive Conference to undertake as part of its Hawaii

14

 GOVERNMENT CHANGE REPORT

CHANGE Initiative. Timeliness in embarking upon such an effort is critical. Our ability
to control our options will shrink as our financial resources diminish.
We must anticipate and be proactive in order to succeed. We must demand that government, business, and labor leaders make decisions based on a careful consideration of the
short and long-term welfare of Hawaii’s citizens. The elements of the next phase will
incorporate the following:
S T R AT E G I C V I S I O N

Communication
The fiscal challenge will impact everyone in Hawaii. Accordingly, our concern about the
situation should be communicated to a wider audience. The broader community needs
to recognize that the status quo cannot be maintained. Change will happen whether

15

 GOVERNMENT CHANGE REPORT

we like it or not. Our communication strategy must aim to cultivate a community-wide
collective resolve to affirmatively bring about positive change.
Identify and Recruit Leaders
Communities rely on leaders to provide vision and chart paths to address problems.
This situation is no different. We cannot only rely on our elected officials. They lack the
necessary resources and expertise to address these fiscal challenges. The very nature
of their profession causes them to be reluctant to embrace change because of perceived
negative popular reaction. They need our help and support.
We need to recruit leaders in our community who are willing to contribute their talents and resources to develop a strategic vision. We must generate and implement policy-based solutions. Leaders from diverse sectors with different perspectives should be
included. We need thought-leaders and influencers to be engaged with the next phase.
Representatives of government, business, labor, academia, and other interest groups
must not let differences deter them from participating in the process. Most importantly,
a younger generation of leaders need to be engaged to formulate the vision of what kind
of community they want to live in. The common link, however, must be an abiding love
of and commitment to a better future for Hawaii.
C O L L A B O R AT I O N

Convene Working Groups
We will convene a diverse set of leaders in working groups to inform and solicit input on
strategies and policy recommendations. The groups should span a range of views from
the community to gain a comprehensive perspective. At some future stage, convening a
major convention of community leaders will be needed in building broad-based consensus
and support for recommendations to be put forward to decision-makers. Tough decisions,
sacrifices, and compromises will be a part of the next process phase. Our hope is that our
shared values and shared identity will enable us to reach common ground solutions.
I N N O VAT I O N

Embrace Change
The status quo will not suffice. We must demonstrate a willingness to embrace fundamental change. In that regard, we need to innovate and be creative in our thinking. We
must be bold. An open mind in evaluating options will be critical as there are no easy
models that can be simply adopted and implemented for our unique circumstance. Innovating our economy and government will be critical to addressing our fiscal challenges.

16

 GOVERNMENT CHANGE REPORT

M O V I N G F O R WA R D T O G E T H E R

A

s an isolated island community we rise and sink together.
The authors of this report remain hopeful that we can rise
together to meet our challenges.
The first thirty years of statehood demonstrates that positive
change is possible by growing our economy. We must commit to public investments in order to build and maintain infrastructure, prepare for natural disasters and sea level rise,
and meet public employee pension and retiree healthcare
obligations. It has been done before and we must do it again.

As we move forward into the next thirty years, we can take inspiration from our Polynesian ancestors who traveled across the Pacific Ocean. With limited resources and great
uncertainty of reaching their destination, their courage, skill, and teamwork enabled
them to successfully navigate troubled waters to reach the shore of a new future.
Our own journey will require great courage and fortitude. We must have strategic vision, a willingness to collaborate, and an open mind to innovate. We have the capacity
for all three within our community of leaders. Let us go forward with a determination
to successfully chart a path toward a better future for Hawaii.

17

 GOVERNMENT CHANGE REPORT

COMMITTEE CHAIR:

Colbert Matsumoto
PROJECT LEAD:

Jeff Laupola
P R I N C I PA L AU T H O R S :

Sterling Higa
Jeff Laupola
Colbert Matsumoto

CONTRIBUTORS :

Todd Apo
Joan Bennet
Carl Bonham
Paul Brewbaker
Kyle Chock
Caleb Chodosh
Makena Coffman
Seth Colby
Chip Fletcher
Mike Formby
Jason Fujimoto
Ralph Gaston
Paul Harleman
Rep. Aaron Ling Johanson
Tim Johns

Micah Kane
Joelle Kane
Sen. Gilbert Keith-Agaran
Joe Kent
Duane Kurisu
Sara Lin
Wesley Machida
Mike Mohr
Cristina Moon
Sean Nakamura
Mike Onofrietti
Kuuhaku Park
Chris Pating
Michael Pietsch
Aisha Price

Bill Reeves
Veronica Rocha
Randall Roth
Jackson Sayama
Scott Seu
Jack Suyderhoud
Blair Suzuki
Eugene Tian
Tiffany Vara
Nicole Velasco
Richard Vuylsteke
Keoni Williams
Tom Yamachika
Jan Yokota
LiAnne Yu

18

 APPENDIX

LIST OF HAWAII GOVERNMENT FUTURE EXPENSES
*Due to rounding, numbers may not add to total.
HAWAII GOVERNMENT
EXPENSES

IN
BILLIONS($)

AFFORDABLE HOUSING

$3.2

STATE RENTAL HOUSING

$1.0

http://files.hawaii.gov/dbedt/op/spb/
AffordableRentalHousingReport_10YearPlan.pdf

STATE PERMANENT
SUPPORT HOUSING

$0.8

https://dbedt.hawaii.gov/hhfdc/files/2019/07/AAP-PY2019_
FINAL.pdf

TOD INFRASTRUCTURE
UPGRADES

$1.4

https://planning.hawaii.gov/wp-content/uploads/State-TODStrategic-Plan_Dec-2017-Rev-Aug-2018.pdf

COUNTY WATER &
WASTEWATER

$5.7

HONOLULU BWS

$5.3

https://www.boardofwatersupply.com/bws/media/files/hbws30-year-infrastructure-investment-plan-summary-2018-03.pdf

HONOLULU SEWAGE

$0.3

https://www.honolulu.gov/rep/site/bfs/treasury_docs/
Wastwater_bond_2017.pdf

KONA DESALINATION
PLANT

$0.1

https://www.hawaiitribune-herald.com/2019/02/23/hawaii-news/
bonds-eyed-for-desalination-plants/

TRANSPORTATION

$14.7

STATE DOT

$5.5

http://hipaonline.com/images/uploads/
StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf

HONOLULU RAIL

$9.2

https://www.staradvertiser.com/2019/09/06/hawaii-news/railrecovery-funds-get-federal-approval/

PUBLIC EDUCATION

$12.6

DOE FACILIT Y
MODERNIZATION

$11.0

https://www.civilbeat.org/2019/04/doe-lays-out-a-10-yearroad-map-for-fixing-old-schools-building-new-ones/

UH FACILIT Y
MODERNIZATION

$1.6

https://www.civilbeat.org/2018/09/uh-wants-600-million-in2019-to-modernize-its-crumbling-campuses/

PUBLIC SAFETY

$1.0

HONOLULU PRISON
UPGRADES

$0.5

https://www.civilbeat.org/2019/03/ige-turns-to-private-prisonfirm-for-new-oahu-jail/

NON-HONOLULU PRISON
UPGRADES

$0.5

https://www.courts.state.hi.us/wp-content/uploads/2018/12/
HCR-85_task_force_final_report.pdf

PUBLIC FACILITIES

$8.9

COUNT Y OF HONOLULU

$2.7

http://hipaonline.com/images/uploads/
StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf

COUNT Y OF HAWAII

$0.4

http://hipaonline.com/images/uploads/
StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf

COUNT Y OF MAUI

$1.5

http://hipaonline.com/images/uploads/
StateOfPhysicalInfrastructureinHawaiiPhaseII.pdf

STATE DEFERRED
MAINTENANCE

$4.3

https://budget.hawaii.gov/wp-content/uploads/2018/12/35.Appendix-5-Estimated-Defferred-Maintenance-Cost-FB19-21PFP.ef3_.pdf

WEBSITE

CONTINUED ON NEXT PAG E

19

 APPENDIX

HAWAII GOVERNMENT
EXPENSES

IN
BILLIONS($)

NEW FACILITIES

$1.1

ALOHA STADIUM

$0.4

https://www.staradvertiser.com/2019/07/09/sports/ige-takesaction-signs-bill-to-fund-replacement-for-aloha-stadium/

NEAL BLAISDELL CENTER

$0.8

https://www.khon2.com/news/local-news/request-forqualifications-sought-for-neal-s-blaisdell-center-public-privatepartnership/

NATURAL DISASTERS AND
CLIMATE CHANGE

$15.3

ALA WAI FLOODING
PROJECT

$0.3

https://www.poh.usace.army.mil/Missions/Civil-Works/CivilWorks-Projects/Ala-Wai-Flood-Risk-Management-Project/

STATE HIGHWAYS
RELOCATION

$15.0

https://www.civilbeat.org/2018/04/a-15-billion-price-tag-toprotect-hawaii-highways-from-climate-change/

PENSION AND
HEALTHCARE

$25.7

ERS PENSION

$13.4

http://ers.ehawaii.gov/wp-content/uploads/2019/01/2018Actuarial-Valuation.pdf

EUTF HEALTHCARE

$12.3

https://eutf.hawaii.gov/wp-content/uploads/2019/01/2018EUTF-Aggregate-OPEB-Valuation-Report-secured.pdf

TOTAL

$88.2

WEBSITE

20