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Planning Commission
Staff Report
January 11, 2017
Public Hearing
TO:
Planning Commissioners
FROM:
SUBJECT:
Consideration of Coastal Development Permit (CDP) for landscape renovation work for the
Scenic Road Pathway
RECOMMENDATION
Approve the issuance of Coastal Development Permit (CDP) for landscape renovation work for the Scenic
Road pathway.
BACKGROUND / SUMMARY
Application: CDP 16-513
Location: West side of the Scenic Road Right-of-Way (five locations between 8th Avenue and Santa Lucia)
Applicant: City of Carmel-by-the-Sea
Background and Project Description:
The original landscape plan for the Scenic Road pathway was created in 1985 by Landscape Architects
Royston Hanamoto Alley and Abey. The landscape plan incorporated: a pathway along the shoreline, benches,
fencing, irrigation system, and drought tolerant plantings.
The Scenic Road pathway is one of the most popular and well-used parks located in the City. The
decomposed granite (DG) pathway begins at Scenic and 8th, continues south along the bluff-top, and ends
near Martin Way. The pathway is approximately 3,200 feet long (almost 3/4 of a mile) and incorporates nine
beach access stairways. The bluff-top pathway provides important coastal views of Carmel Beach, Point Lobos
and Pebble Beach. The pathway also provides coastal access for individuals that may have difficulty walking
along the sandy portion of the beach.
City staff maintain the pathway and the landscaping adjacent to the pathway and along the shoreline. The
original landscape design incorporated drought tolerant California native plants and Mediterranean-appropriate
species. Many of the plant species originally introduced to this area have ended their life cycles and are in
need of replacement.
In 2014, the City retained Coastal Biologist David Shonman to complete a shoreline assessment of the
components of Carmel Beach including the pathway. It was noted in his report that the Scenic pathway
landscape was suffering from many problems: disappearance of plants from the original landscape, invasion of
exotic species, blockage of coastal views, and the obscuring of signage along the pathway.
117
The City approved funding in the 2015-2016 Fiscal Year for repairing some of the landscape deficiencies noted
in the Carmel Shoreline Assessment. The City retained Scott Hall of Hall Landscape Design to prepare a new
plan to renovate five specific areas along the Scenic pathway. The five areas were selected due to the fact that
these areas all needed upgrades and that these were some of the highest use areas along the pathway.
The five locations proposed for landscape improvements along the Scenic Road pedestrian pathway include:
a. Eighth Avenue
b. Tenth Avenue
c. Twelfth Avenue
d. Thirteenth Avenue
e. Santa Lucia Avenue
An ad-hoc committee of the Forest and Beach Commission (Karen Ferlito and Jeff Baron) was convened to
provide input during the development of the landscape renovation plan. Several site visits to the project site
were made in the summer and fall of 2016. Some of the ideas that came out of the site meetings included:
widening sections of the pathway, installing additional Shoreline Landscape Barriers, removing diseased plant
material, reducing the height of existing plant material, irrigation upgrades, and setting priorities for the most
important areas to renovate.
The landscape design plan also includes new plant material, irrigation improvements, pathway renovation, and
updated digitized map files. The plant species for the landscape renovation have been carefully selected and
sited to ensure that they would not block coastal views. The plan is intended to be a model for future landscape
renovations along the Scenic pathway. The new plantings would be watered with a redesigned and refurbished
sprinkler system.
Staff Analysis:
Permit Requirements
A CDP is required under Chapter 17.52 (Permit Procedures) of the City Municipal Code. The CDP would
provide authorization for the City to implement planting, signage, installing of shoreline landscape barriers,
pathway re-alignment and removal of plant material in the five work areas identified in the plan.
A new stairway on Scenic near the 13th Avenue Cove has been identified as a potential future improvement.
Should this be selected in the future, it would require a separate CDP and environmental review.
Policy Consistency
The proposed project was reviewed for consistency with the Citys General Plan, including the Local Coastal
Program (LCP) and the Shoreline Management Plan, which is an appendix to the Citys LCP. The proposed
project is consistent with relevant goals, policies, and objectives, as discussed in more detail in the projects
Findings for Approval (Attachment 1).
Forest and Beach Commission Review
The Forest and Beach Commission reviewed the proposed project on November 11, 2016, and was supportive
of the concept and the proposed modifications.
Funding
The Citys approved Capital Improvement Program for Fiscal Year 2016-2017 allocates $66,000 for the first
phase of implementation of this project. Future funding will likely be required for full execution of the project.
118
Environmental Review
The project involves the restoration and minor modifications to landscaping and hardscaping along the Scenic
pathway, which is an existing landscaped area that has fallen into a certain degree of disrepair. The
improvements and minor modifications would not result in any potentially significant environmental impacts, and
the project qualifies for a Class 1 CEQA Categorical Exemption under Section 15301 (Existing Facilities) of the
State CEQA Guidelines. There are no unusual circumstances that would present the potential for a significant
environmental impact.
Alternatives Analysis
Staff recommends that the Planning Commission approve CDP 16-513 subject to the attached findings and
conditions. Alternatively, the Planning Commission could take the following actions:
1.
2.
3.
Approve the project with other minor revisions, as long as these are consistent with the Citys Local
Coastal Program.
Continue the application with a request for more substantial revisions.
Deny the application. As a funded project within the Citys approved Capital Improvement Program, this
alternative is not recommended.
ATTACHMENTS
1. Attachment 1 Findings for Approval
2. Attachment 2 Conditions of Approval
3. Attachment 3 Project Plans
119
CONSIDERATION:
Consideration of Coastal Development Permit for Landscape Renovation of the Scenic Road
Pathway.
FINDINGS OF FACT:
1.
A Coastal Development Permit (CDP) application has been filed by the City Public Works
Department for landscape renovation of 5 locations along the Scenic Road Pathway.
2.
The proposed activities require a Coastal Development Permit under Chapter 17.52
(Permit Procedures) of the Citys Municipal Code.
3.
A public meeting was held by the Forest and Beach Commission on November 10, 2016,
for review and comment on the project.
4.
A duly-noticed public hearing was held before the Planning Commission on January 11,
2017.
The project, as conditioned, is consistent with the General Plan of the City of Carmel-bythe-Sea, including the Local Coastal Program and Title 17 (Zoning) of the City Municipal
Code. In compliance with Citys requirements, a Coastal Development Permit application
has been filed.
2.
The project objectives of the Scenic Road Pathway Landscape Renovation are to beautify,
enhance and create a more pedestrian-friendly and useable pathway along Scenic Road.
The landscape renovations are designed to create a cohesive, consistent plant palate
120
that will reduce future maintenance requirements and improve the appearance of the
Scenic Road Pathway.
3.
The project is consistent with the following General Plan and Local Coastal Program
goals, policies and objectives.
a. G4-1 Provide for maximum public access to, and recreational use of, the shoreline
consistent with private property rights and environmental protection.
b. O5-3 Perpetuate the mix of native dune and horticultural plants in an informal
natural beach landscape.
c. G4-3 Provide adequate facilities that will serve the needs of the public, mitigate
damage to the environment, and respect the neighborhood.
d. O4-6 Limit development along the Carmel shoreline to facilities that support
passive and active recreational activities, beach access, bluff protection and
protection of infrastructure. Bluff protection and protection of infrastructure shall
be permitted only when required to protect existing structures that are in danger
from erosion.
e. P5-32 Evaluate the Pathway landscape, including plant selection and associated
design elements in consultation with a coastal landscape specialist; indentify sites
that require revitalization and implement restoration based on the Pathway
Design Plan. Address the most severely impacted sites first.
f. P5-27 Maintain an attractive mix of plant material that favors native species and
other drought-tolerant, non-invasive species.
g. P4-13 Sustain and maintain the Beach Bluff Pathway design concept and
landscape plant selection. Authorize the Forest and Beach Commission to review
and approve minor design changes and plant selections. Require a coastal
development permit for significant changes or any change that would
substantially alter the design concept.
h. O5-4 Maintain the vegetation and trees along the shoreline in a safe and healthy
condition.
i. P5-7 Encourage the use of existing stairs, trails, and pathways, and discourage offtrail short-cuts on or over the bluff face. Install landscaping barriers at each
short cut on the face of the bluffs and immediately restore damaged
landscaping.
j. P4-14 Install more seating along beach pathway.
k. P5-35 Pruning of vegetation will be done as needed for the health of the plants.
This is a natural landscape and formal garden pruning is to be avoided. The
pathway must be kept clear of overgrowth and periodic pruning is desired.
However, neat straight edging is discouraged. Prevent shrubs from growing too
high and blocking views of the ocean through the Cypress trees along the Beach
Bluff Pathway.
121
l.
P5-29 Prohibit planting and control the spread of invasive non-native plants.
4.
The proposed project is consistent with the land use designation of the site.
5.
The proposed project, as conditioned, will not be injurious to public health, safety or
welfare.
6.
The proposed project has been deemed categorically exempt from CEQA pursuant to
Section 15301 of the State CEQA Guidelines. The project involves minor maintenance and
improvements to an existing landscaped pathway. There are no unusual circumstances
that would present the potential for a significant environmental impact.
7.
The documents and other materials that constitute the record of proceedings upon which
this decision is based are in the custody of the Community Planning and Building
Department of the City of Carmel-by-the-Sea located at Monte Verde Street between
Ocean and 7th Avenues, Carmel-by-the-Sea, California, 93921.
122
CITY OF CARMEL-BY-THE-SEA
DEPARTMENT OF COMMUNITY PLANNING AND BUILDING
CONDITIONS OF APPROVAL
Application: CDP 16-513
Location: West side of the Scenic Road ROW between Eighth and Santa Lucia Avenues
Applicant: City of Carmel-by-the-Sea
______________________________________________________________________
AUTHORIZATION:
1. This permit authorizes maintenance and improvements to landscaping, hardscaping,
fencing and signage to five specific areas along the Scenic Road Pathway .
2. Activities authorized by this CDP include improvements and modifications to the Scenic
Road pathway, expanding the width of and minor revisions to the alignment of the
decomposed granite (DG) pathway, removing/adding plant material, installing new and
relocated shoreline landscape barriers, replacing/relocating signs, and expanding the size
of the planters.
3. Also authorized are a new look-out deck (12 feet by 8 feet) west of the pathway between
8th and 9th Avenues, two new bench locations on the pathway west of 12th Avenue, and
minor regrading of the surface at the 13th Avenue Peninsula with the addition of one new
bench and relocation of an existing bench in this area.
Special Conditions:
4. In the event of unanticipated issues associated with the project, this permit may be
scheduled for reconsideration by the Planning Commission to amend the permit or
conditions as necessary.
123
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PROJECT PLANTS
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132
Botanical Name
LARGE SHRUBS :
Common name
Mature I Evergreen
Height& I
I
Width
Deciduous
5-7Ft H
Salt Bush
EG
6-8Ft. W '
Sun I
Shade
Tolerance
ill
California
Native
Water Use:
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MED
CN
LOW
CN
LOW
9-8Ft+
Rhus integrifolia
EG
6Ft.+
SHRUBS:
Low Shrubs
Barrier
2ft- 3ft'
Ceanothus
Hybrid: 'Joyce Coulter'
California Lilac
Echium fastuosum
Pride of Madera
Achillea millefolium
Coastal Yarrow
Planting
COLOR PLANTING:
Low Shrubs
EG
EG
4ft
3'Ft x 3Ft
LOW
1 Ft
X
EG
CN
LOW
EG
CN
LOW
EG
CN
LOW
1 1/2 Ft
1 Ft
Erigeron glaucus
Seaside Daisy
11/2 Ft
1 112Ft
Eriophyllum staechadifolium
Lizzards Tail
2Ft
Page 1
133
Botanical Name
Common name
Mature I Evergreen
Height & I
I
Width I Deciduous
Sun I
Shade
Tolerance
California
Native
Water Use:
LOWMEDIUM
Sea Pinks
8" X 18"
EG
Erigeron glaucus
Seaside Daisy
6" X 12"
EG
8" +X 8"
DEC
LOW
Limonium perzii
Sea Lavender
1Ft X 1Ft
EG
MED
Iris douglasiana
Douglas Iris
1Ftx1Ft .
EG
EG
Page 2
CN
MED
CN
LOW- MED
CN
MED
LOW
134
Common name
Mature : Evergreen
Sun I
Height&
I
Shade
Width . Deciduous i Tolerance
Lupinus chamissionis
Coastal Lupin
2Ft X 3Ft
Botanical Name
LOW SHRUBS&
GROUND COVERS
EG
EG
EG
California
Native
Water Use:
LOWMEDIUM
LOW
121N
X
14FT
----- - - -
Cistus skambergii
Rock Rose
1-2FT X
5-FT
CN
LOW
CN
LOW
2FT
EG
MED
3FT
Carmel Creeper
12"- 18""
x6-FT
EG
CN
LOW
Erigonum parvifolium
Coastal Buckwheat
3-FTT
4-FTW
EG
CN
LOW
EG
CN
LOW
2Ft
X
2Ft
Page 3
135
Botanical Name
Common name
Mature
Height &
Width
4-Sin
Eeg
6Ft
--
-- -
- --
---1Ft
VINES
Sun I
Shade
Deciduous' Tolerance
Ever;reen
EG
8Ft
Page4
California
Native
Water Use:
LOWMEDIUM
CN
LOW
CN
LOW
136
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