I can't list with any certainty all the reasons why DVD does multiple declarations for the resorts. But there is one factor I know comes into play: Construction must be essentially complete on all vacation homes included in the declaration and they must be ready for occupancy before they can be declared for a condo association.
So far, there have only be two declarations for PVB, the initial declaration on January 7, 2015, and another declaration on 1/25/2016. When the initial declaration was made in January 2015, work had not yet been completed on the studios in Pago Pago or Tokelau. Thus, the studios in those longhouses were excluded from the initial declaration.
Even when construction is completed on the vacation homes, DVD is not obligated to declare those vacation homes. Tokelau has been in use for several months, but none of the residential Units comprising it have been declared for the PVB condo association.
DVD doesn't pay maintenance fees on undeclared Units, because those Units may never become part of the
DVC condo association. Keep in mind that language in the master declarations state that if a resort is being built in phases, DVD is not legally obligated to declare all Units. So far, this has only happened at Vero Beach, where DVD did not build all the Units it had originally planned.