From class to community: Addressing Guam’s housing and workforce needs

BY PAULY SUBA
Journal Staff

University of Guam Master of Public Administration graduate students unveiled two policy proposals on May 23, that aim to tackle some of the island’s most urgent challenges: the housing crisis and gaps in workforce development. 

The projects presented at the School of Business and Public Administration include a proposed dual-enrollment academy for 12th graders and a public-private housing initiative on CHamoru Land Trust lands.

Judith P. Guthertz, professor of the PA545B private enterprise and public policy course and former senator; said, “The purpose of this event is to share the research that these students have been working on all semester.” 

She said the projects were designed to be actionable. “We want our proposals to be helpful to the people and the region.”

The first proposal, “From House to Property: A Public-Private Blueprint for Attainable Housing on CLTC Land,” aims to activate thousands of idle acres and reduce Guam’s housing shortage through a model that blends affordability, accountability, and land preservation.

Christian Delgado, one of the student presenters, said, “Because of a combination of different factors affecting the housing market here on Guam, such as rising costs, growing population, both have contributed greatly to the increasing housing shortage.”

The group’s proposed solution is a Design, Build, Finance, Operate, Maintain model. Under this public-private partnership, private developers would build and manage housing units for 15 – 20 years before transferring full ownership back to the CHamoru Land Trust Commission.

Kalyne Roberto, another presenter, said, “This approach not only creates more housing, it does so in a way that is financially sustainable, culturally respectful, and community focused.”

The housing types would include both single-family homes and higher-density options such as duplexes, condos, and town homes. “These are essential middle-market homes that fill the gap between subsidized housing and luxury development,” Roberto said.

The proposal also adopts a rent-to-own framework inspired by the Department of Hawaiian Homelands model. 

Harley Edeluchel Jr. said, “Eligible beneficiaries will rent for a specified period, which is about 15 years, and then rental payments are structured at a more affordable rate… renters may have the option to purchase the unit.”

To illustrate the feasibility of such a model, the class cited the Hale Mo‘ili‘ili project in Honolulu, Hawaii. “It’s a 23-story high-rise of affordable rental with 271 condo units and 7 townhouses,” Edeluchel said. “This (Hale Mo‘ili‘ili) project cost $155 million to develop.”

The development succeeded through layered financial incentives, including low-interest loans for homebuyers via Hawaii’s Rental Housing Revolving Fund, federal and state low-income housing tax credits, and tax exemptions. “This is just an example of something that we could adapt here in Guam,” he said.

To move the proposal forward, students emphasized the need for coordinated planning and permitting. “You would need to get the architectural structure of the building first before obtaining a building permit,” MacQuinn Manning said. “DPW must inspect the land to ensure it’s ready for construction.”

He said construction costs can range between $180 to $400 per square foot, depending on design, materials, and location. “The estimated cost for building could be up to $280,000 per unit,” he said. “That price depends on location; higher elevations and southern areas, especially south of Yoña, may raise costs due to transportation and terrain.”

Despite the cost, Manning stressed the long-term benefit to families and the island’s economy. He said, “You invest so much money into the military, into tourism, but why not invest that to give back to our people?”

To bring their housing blueprint to life, the student team outlined a series of targeted legal and financial reforms.

They propose amending Guam law to authorize CLTC to support public-private housing development, lower the cost burden for developers and encourage private investment by leveraging tax incentives under existing Guam laws. 

The proposal includes a Rent with Option to Purchase program modeled after Hawaiian Homelands. It allows eligible CLTC beneficiaries to rent homes at reduced rates for 15 years, then transition to ownership using assistance programs like the Guam Housing Corp.’s First-Time Homeowner Program, USDA Section 502 Direct Loans, VA loans, or other federal mortgage assistance options.

The students emphasized the importance of rental subsidies for low- to moderate-income families as well as expanding the use of the Housing Choice Voucher (Section 8) program administered by GHURA.

Roberto said the proposal is meant to activate CLTC’s land assets for their highest public benefit while staying true to the spirit of the law. “Our proposal was really to take a leap toward addressing the inactive land use while also addressing the local families that are looking for homes who are on the CLTC application list.”

Guthertz said, “The people that were promised the land should have the land. But there are impediments… Those of us who have previously served in the legislature like myself, know the impediment primarily is money.”

The second project, the “Triton Academy Program,” would allow qualified high school seniors to enroll in university-level certificate courses at the University of Guam in fields such as public administration, business, criminal justice, education, and general studies.

Anthony M. Babauta said, “Our group wants to walk you through the foundation of a proposal… At face value, that might sound like a straightforward education initiative. But I want to invite you to see it for what it really is, a strategic tool.”

The program responds to workforce shortages in public service, law enforcement, and teaching. 

Babauta said, “Guam’s high school graduation rate has been climbing, reaching over 90% in the school year 2022 and 2023, and that’s something to celebrate… But getting the diploma is only part of the journey. Too many students are still unsure of what comes next.”

“So the mission is simple,” he said. “To prepare Guam’s next generation of leaders… and the vision is much bigger. To make college-level training accessible, purposeful, and connected to the needs of our island.”

Babauta emphasized that the initiative targets students who may not yet see themselves in college, giving them confidence, academic momentum, and early credentials aligned with local workforce needs.

“This program doesn’t fill classroom seats,” said Sen. Vincent A.V. Borja, also a member of the student group. “It fills workforce needs, supports government service delivery, and gives our students the confidence and qualifications to succeed.”

Chirag Bhojwani, who presented the legal and market analysis, said, “The Triton Academy program responds directly to this demand by providing an innovative dual-enrollment opportunity tailored specifically to Guam’s educational and economic context.”

He said the program is especially important for first-generation college students and aligns with pressing local needs in public service, education, and law enforcement. “The program supports not only academic excellence but also operational efficiency, providing a Guam-acquired education, easing student loads, and maximizing outcomes.”

The group is requesting $300,000 in Manpower Development Fund support, in addition to grants and private-sector contributions. The group also proposed legislative amendments to allow MDF funds to support dual enrollment and certificate programs in sectors beyond tourism.

Bhojwani said, “TAP creates a full academic and professional experience that transitions high school seniors seamlessly into higher education and eventually into Guam’s workforce.”

James Ji Jr. provided a detailed overview of the academy’s course structure, admission requirements, and long-term implementation plan.

The curriculum allows for up to five university-level courses per semester. Students must have completed 18 high school core credits, hold a GPA of 3.0 or higher, secure parent permission, and receive a recommendation from a teacher or administrator.

Students can pursue certificates in public administration, criminal justice, business, education, or general studies, while simultaneously fulfilling their high school graduation requirements. Completion would earn them 16 college credits and a certificate that can be applied toward a UOG degree.

“We do expect a pilot program in 2025,” Ji said. “The initial program during fall 2025, we do have the infrastructure, we do have the administration, we do have the facilities and faculty to be able to cover.”

The projected full launch is planned for Jan. 15, 2028. Ji highlighted that legal approvals, faculty training, and formal agreements with GDOE and UOG governance structures will be key milestones between 2026 and 2027.

“In terms of governance, we have an incredible advisory council with SBPA,” he said. “They’ve always been supportive of our programs and our university, and we’ll continue to rely on them for guidance and support.”

Both proposals now rely on legislative action to move forward. The housing initiative requires changes to local policy to authorize CLTC to pursue ownership models. TAP needs adjustments to the MDF funding framework to support high school-based certificate programs.

Both projects included participation and feedback from representatives of the CLTC, the Guam Ancestral Land Commission, the Guam Housing & Urban Renewal Authority, the Guam Power Authority, the Guam Waterworks Authority, the Guam Department of Public Works, the  UOG Enrollment Management and Student Success, the Guam Contractors License Board, and the Guam Department of Labor. 

Guthertz said, “These students put their heart and soul into these projects… and this is like free consulting.”

She said, “We want to see these things become actionable… The students did a tremendous job pointing out the flaws, the recommendations, the limitations. Now it’s up to the policy makers if they want to do something and use this as a foundation.” mbj