The County of Kauaʻi has formally adopted its first-ever pre-disaster recovery framework, a comprehensive set of guidelines developed over two years to help the island’s communities better prepare for and recover from natural disasters. This pioneering initiative, created in partnership with the University of Hawaiʻi Sea Grant College Program, is designed to facilitate a more efficient, equitable, and resilient rebuilding process in the aftermath of events like hurricanes, floods, and wildfires. The framework was officially adopted by the Kauaʻi County Council in September 2025 through the passage of Resolution 2025-36, marking a significant shift from reactive response to proactive preparation for the challenges of a changing climate.
This new approach establishes a clear organizational structure and defines roles and responsibilities for government agencies, non-profit organizations, and community groups before a disaster strikes. Previously, the county’s emergency plans focused primarily on immediate disaster response, but the new framework addresses the long-term complexities of recovery, which can span months or even years and involve numerous jurisdictions. By building relationships and establishing protocols in advance, the framework aims to streamline decision-making, improve coordination among stakeholders, and ensure that post-disaster redevelopment is not just about rebuilding, but about building back safer and stronger. The guidelines are intended to create a more holistic view of disaster recovery, fostering better communication between the government and its communities and leading to more resilient outcomes for all of Kauaʻi’s residents.
A Proactive Shift in Recovery Planning
The adoption of the “County of Kauaʻi Pre-Disaster Recovery Framework” signifies a fundamental change in the island’s approach to emergency management. For years, the focus had been on immediate response—the critical hours and days following a catastrophic event. However, as noted by Ruby Pap, the Kauaʻi coastal land use extension specialist with Hawaiʻi Sea Grant who led the project, recovery is a much more complex and prolonged process. “Before the Pre-Disaster Recovery Framework was completed, the County only had a framework for disaster response, but we know that recovery issues are vast, cut across jurisdictional and agency lines, and can take months to years to resolve,” Pap stated. This new framework is designed to fill that gap, providing a roadmap for the long-term rebuilding of both physical infrastructure and community well-being.
The initiative moves beyond the traditional model of waiting for a disaster to happen before planning the recovery. Instead, it establishes a recovery management organization with clearly defined roles, or “kuleana,” for county and state departments, as well as non-profit partners. This proactive stance is critical, according to officials. “This framework represents the power of preparation and collaboration,” said Mayor Derek S.K. Kawakami. “When disaster strikes, recovery does not begin with the first response. It begins with the relationships, planning, and trust we built long before.” By putting a structure in place ahead of time, the county aims to avoid the confusion and delays that can often hamper recovery efforts, ensuring a more coordinated and effective process when a disaster does occur. This foundational work is expected to lead to faster and more equitable outcomes for the entire community.
Collaborative Framework Development
The creation of Kauaʻi’s pre-disaster recovery framework was a meticulous and collaborative process that spanned two years. It was a joint effort between the County of Kauaʻi and the University of Hawaiʻi Sea Grant College Program, bringing together scientific expertise and local governance. The development was guided by the County Recovery Working Group and a Stakeholder Advisory Group, which included representatives from over 40 different departments and organizations. This broad coalition ensured that a wide range of perspectives and areas of expertise were incorporated into the final guidelines.
Key Leadership and Participants
The leadership for this initiative came from several key county offices, including the Office of the Mayor, the Kauaʻi Emergency Management Agency, the Kauaʻi County Planning Department, and the Office of Economic Development. The involvement of these diverse departments highlights the framework’s holistic approach, recognizing that disaster recovery touches upon every aspect of community life, from public safety and infrastructure to economic stability and long-term planning. The University of Hawaiʻi Sea Grant College Program played a crucial role in leading the project, providing specialized knowledge in coastal resilience and land use. The consulting firm Tetra Tech, Inc. also provided expertise during the development process.
A Multi-Stakeholder Approach
The framework’s strength lies in its recognition that effective disaster recovery requires the participation of the entire community. The guidelines were not created in a vacuum; they were shaped by input from state and local governments, utility companies, non-profit organizations, and community members. This inclusive approach is designed to foster better working relationships within the recovery community and between the government and the public it serves. By involving so many different stakeholders in the planning process, the framework aims to build a foundation of trust and cooperation that will be essential in the wake of a future disaster. This collaborative spirit is a cornerstone of the new strategy, ensuring that the recovery process is truly a community-wide effort.
Core Principles of the New Guidelines
The “County of Kauaʻi Pre-Disaster Recovery Framework” is built on a set of core principles aimed at making the island more resilient, equitable, and prepared. The primary goal is to guide actions and decision-making for recovery and redevelopment after a disaster strikes. A central component of the framework is the establishment of a formal recovery management organization. This structure provides clear lines of authority and responsibility, ensuring that all entities involved, from county departments to non-profit partners, understand their roles and how they fit into the larger recovery effort. This clarity is expected to reduce confusion and improve the efficiency of post-disaster operations.
Another key principle is the emphasis on building back better and safer. The framework is not just about restoring what was lost; it is about taking the opportunity to redevelop in a way that reduces vulnerability to future hazards. This includes incorporating more resilient building practices and land-use policies that take into account the increasing risks posed by climate change. Furthermore, the guidelines are designed to foster more effective and trusting relationships between the government and the community. By involving community members in the planning process and creating transparent protocols, the framework seeks to ensure that the recovery process is perceived as fair and equitable, addressing the needs of all residents. As Ruby Pap noted, the framework will “result in a more holistic view of disaster recovery.”
Community-Driven and Climate-Conscious
A driving force behind the development of Kauaʻi’s new recovery framework is the growing threat of climate change. In recent years, the island has been impacted by a range of natural disasters, including devastating tropical cyclones, wildfires, major flooding, and high surf events. The Kauaʻi County Council explicitly recognized these increasing threats in the resolution adopting the framework, highlighting the urgent need for proactive planning to enhance the island’s resilience. The guidelines are designed to help Kauaʻi adapt to this new reality, ensuring that the community is better prepared for the more frequent and intense weather events that are anticipated in the future.
The framework also places a strong emphasis on community involvement, recognizing that a successful recovery must be a collaborative effort. A key example of this approach is the work of ʻĀina Alliance, a non-profit community-based organization in Anahola. As part of the project, ʻĀina Alliance conducted disaster recovery visioning exercises with the Anahola community. This engagement culminated in the “Building Back Better: Pre-disaster Framework for Anahola, Kauaʻi” report, a document that reflects the specific needs and priorities of that community. This grassroots effort is seen as a model for how other communities across Kauaʻi can become actively involved in their own recovery planning, ensuring that the broader framework can be tailored to the unique circumstances of different parts of the island.
A Model for Future Resilience
The newly adopted pre-disaster recovery framework in Kauaʻi is being viewed as a potential model for other communities, not just in Hawaiʻi but in other coastal regions facing similar climate-related threats. By being the first of its kind on the island, the framework sets a new standard for proactive and comprehensive disaster planning. Its emphasis on collaboration, community engagement, and long-term resilience offers valuable lessons for other jurisdictions looking to move beyond a purely reactive approach to emergency management. The process undertaken in Anahola, in particular, demonstrates how community-specific planning can be integrated into a larger, county-wide strategy.
The successful partnership between a county government and a university program like Hawaiʻi Sea Grant also provides a template for how scientific expertise and local knowledge can be effectively combined. As communities everywhere grapple with the increasing frequency and intensity of natural disasters, the need for well-defined, pre-established recovery plans will only grow. Kauaʻi’s framework, born from two years of dedicated effort and collaboration, represents a significant step forward in building a more resilient future. Mayor Kawakami expressed his gratitude for the partnerships that made it possible, stating that the effort will help “Kauaʻi be ready to recover stronger, safer, and more resilient than ever.”