LAHAINA, Hawaii — Twelve days after a massive fire tore through the historic town of Lahaina, killing at least 102 people and destroying nearly 2,200 structures, Maude Cumming rushed to break ground on housing for survivors. 

Through the Family Life Center, her Maui-based nonprofit organization, Cumming planned to build an 88-unit village of modular homes.

A year later, just 10 units are occupied, fueling frustration in a community fighting to heal and recover amid continued housing…