CITY OF CARMEL-BY-THE-SEA

Planning Commission
Staff Report
January 11, 2017
Public Hearing
TO:

Planning Commissioners

FROM:

Matthew Feisthamel, Assistant City Forester

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

Attachment 1 Findings for Approval

CITY OF CARMEL-BY-THE-SEA
DEPARTMENT OF COMMUNITY PLANNING AND BUILDING
FINDINGS FOR APPROVAL
Application: CDP 16-513
APN: N/A; City Right-of-Way (ROW)
Location:
West side of the Scenic Road ROW between Eighth and Santa Lucia Avenues
Applicant:
City of Carmel-by-the-Sea

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.

FINDINGS FOR APPROVAL:

After taking public testimony and hearing evidence from the City staff, the Planning Commission
makes the following findings:
1.

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

CDP 16-513 (City of Carmel-by-the-Sea Scenic Pathway)

Findings for Approval
January 11, 2016
Page 2

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

CDP 16-513 (City of Carmel-by-the-Sea Scenic Pathway)

Findings for Approval
January 11, 2016
Page 3

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

Attachment 2 - Conditions of Approval

CITY OF CARMEL-BY-THE-SEA
DEPARTMENT OF COMMUNITY PLANNING AND BUILDING
CONDITIONS OF APPROVAL
Application: CDP 16-513

APN: N/A; City Right-of-Way (ROW)

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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TABLE OF CONTENTS:

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F.I--'TRY PHOTO I SKETCH COMPARIS0:-.1- BEFORF. & AFTF.R

PLANT DESCRIPTIONS & PHOTOS

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FOREST & BEACH COMMISSION REVIEW

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CONSTRUCTION DETAILS & SKETCHES

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JRRlGA TION VALVF. l.OCATIONS AREA 5 + SPF.CIFICATIOf'I,;S.

PROJECT TITLE SHEET

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THIRTEENTH AVENUE "'0R7ION OF >"'AL'<
t S7A I ~AY F'ENINSliLA

i
\
\

:
I

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-------~M'.::.:'.:"-----~~~--ll..l,.____1.L.ltl:_ _
LANDSCAPE PlANTING

-1110.7016

6
____ j

129

"""'""".-,I:NNLD

------ . -.. --- . ----- .. -- .... -- .... -- .. -....

!llll'c:oi...OIIt.~MA'TTI.I'f:""""""' ~N5

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~

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Of'

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TO fllleHT

10

.6
0
~

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ZONE:

:~o ~

~s

LANDSCAPE PLANTING

5AN7A L-UC. ,A 5TAIF<.Y'lAY 4 ADD IT IONAL f'LANT IN<S AROUND

F<.::5TF<.OOY 4 '-'::A::> LAND AR.EA

CARMEL BEACH RESTORATION

~~p~~~.. ~.~.~'!~:!.. ~

130

Sli'iPL E 7 <o:UTHS AND POSSIBI .... ITIE:S O!=

":"Rii'ilviiNcS
A~D "'I...A.NTINcS .......................... .
REI'iOV!NcS T""iE POLE TOO

PHOTO 5KE"'"O

EN7RY

~05516 1 L ITI:::5

titA\Jscape

1::5estgn

PROJECT ENTRY POSSIBILITIES

- -- - -

b~~~:P"Arrlll te!.,..,....,.,

!11\!lild'ld>._ ..._
P.IQ(..<.,.,....(a._,
(,\11)t!'".:I!Q

131

~[L~~l [L~~l [Ml]~l~~J((

CCC

~~[E[M~~ ~(O)~[D) [B)[E~~[H]

\YM~[L[K\ [L~[M[D)~~~~[E ~[E[M(O)\YJ~l~(O)[M

~@l~!Ml~c[b)Wcfilfuc~@l

PLANT 5"'EC.IE:5 L157 ! :::>E5C.RIPT ION5

PROJECT PLANTS

4_

132

Carmel-by-the-Sea Beach Path Planftng Resloraflon

SCOTT HALL Landscape Archltecl

Botanical Name

LARGE SHRUBS :

Common name

Mature I Evergreen
Height& I
I
Width
Deciduous

5-7Ft H

Atriplex lentiformis 'Brewerii'

Salt Bush

EG

6-8Ft. W '

Sun I
Shade
Tolerance

ill

California
Native

Water Use:
LOWMEDIUM

CN

MED

CN

LOW

CN

LOW

9-8Ft+

Rhus integrifolia

Coastal Lemonade Berry

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

PLANT LIST FOR BEACH FORESTRY COMMISSION Meeting 11-10-2016

133

Carmel-by-the-Sea Beach Path Planftng Restorafton

SCOTI HALL Landscape Archtlecl

Botanical Name

Common name

Mature I Evergreen
Height & I
I
Width I Deciduous

Sun I
Shade
Tolerance

California
Native

Water Use:
LOWMEDIUM

Armeria alliacea alt.' Maritima'

Sea Pinks

8" X 18"

EG

Erigeron glaucus

Seaside Daisy

6" X 12"

EG

Eschscholtzia californica var maritima

Coastal Califonia Poppy

8" +X 8"

DEC

LOW

Limonium perzii

Sea Lavender

1Ft X 1Ft

EG

MED

Iris douglasiana

Douglas Iris

1Ftx1Ft .

EG

Lavender Goodwin Creek

Grey

2Ft X 2Ft '

EG

Lavendula A ginginsii 'Goodwin

Page 2

CN

MED

CN

LOW- MED

CN

MED

LOW

PLANT LIST FOR BEACH FORESTRY COMMISSION Meeting 11 10-2016

134

Carmel-by-the-Sea Beach Path Planftng Reslorafton

SCOTT HALL Landscape Architect

Common name

Mature : Evergreen
Sun I
Height&
I
Shade
Width . Deciduous i Tolerance

Lupinus chamissionis

Coastal Lupin

2Ft X 3Ft

Arctostaphylos edmundsii 'Little Sur'

Manzanita ground cover

Botanical Name

LOW SHRUBS&
GROUND COVERS

EG

EG

EG

California
Native

Water Use:
LOWMEDIUM

LOW

121N
X

14FT
----- - - -

Baccharis pilularis 'Pidgeon Pt.'

Coyote Bush grouind cover

Cistus skambergii

Rock Rose

1-2FT X
5-FT

CN

LOW

CN

LOW

2FT
EG

MED

3FT

Ceanothus griseus horizontalis

Carmel Creeper

12"- 18""
x6-FT

EG

CN

LOW

Erigonum parvifolium

Coastal Buckwheat

3-FTT
4-FTW

EG

CN

LOW

Elymus mollis spp. mollis

California Dune Grass

EG

CN

LOW

2Ft
X

2Ft

Page 3

PLANT LIST FOR BEACH FORESTRY COMMISSION Meeting 11-10-2016

135

Carmel-by-the-Sea Beach Path Planftng Restorafton

SCOTI HALL Landscape Architect

Botanical Name

Common name

Mature
Height &
Width

4-Sin

Abronia umbulata + latifolia

Coastal dune verbena

Eeg

6Ft

--

-- -

- --

---1Ft

VINES

Calystegia macrostegia 'Cyclostegia'

Coastal Morning Glory

Sun I
Shade
Deciduous' Tolerance
Ever;reen

EG

8Ft

Page4

California
Native

Water Use:
LOWMEDIUM

CN

LOW

CN

LOW

PLANT LIST FOR BEACH FORESTRY COMMISSION Meeting 11-10-2016

136

~ANDSC.AICIE SAFETV ~El':IA.II'ii! c:lilim~

SG"'~!;; I"

I ...0

L.. .A.~D5C. ..:>...P::

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TALL

BA.RRI~R

I'" 1'..0"

~-

LAND5GAF'~

'!G-Al-l!

YiELCOME SlcSN 6EAC.H

~AJ....I!

CONSTRUCT ION ID!:AS 5TAR7-LJP

PR.OPO~E;::>

DEC.<
6ENC.H PET .0.1'-S

~"'.F

CHECK EIT_.,_ e>7"'

~A~K

- S!:;E

P!-10~0

1-0H

6A.RR.I E.R

,. " I " -o

. jj

/SKETCH

~-o

LANDSCAPE CONSTRUCTION DETAILS & SPECS

~

q;._. ! SI<SN !

5"'---==

"'---

----------------------------------------------------------------------------------------------------137

l ~RIGATION

VALVES 4 i'-'IA 'N!..INE

8TH - "'TH AVEt-..U::S

------------------

!?
.

...~..,_,

. ---FI

r----1.
I

l'i:RIGATION VALVES 4 i'-'IA IN!..INE

+.::"'~'4+--"'""--..
NO'i:7H 107H A.VE TO SOUTf-' lOTH A'/E STA.I'i:5

---
IR'i:IGATION VALVE LOCA7 10N5 AREA I + 2

PROJECT IRRIGATION VALVE LOCATIONS

11

SC.!:NIC. 5EAOI P.._TH

138

I
I
I
I

'

~~~16A~ION /AL /ES ! !v!Ail-.;-'NE

12T_, AVENUE A"<.OUND COVE A.EA "3

I
I

;:: I

~I

'RRI6ATION VALVES 4 ~A I NLINE

'3T'- AVE e COVE HEADLAND
AREA "4

!RRI6A.TION

VA.~VE

5C.E\IIC. SEAC.H "ATf"

LOCATIONS ARE:A I + 2

PROJECT IRRIGATION VALVE LOCATIONS

CARMEL 8E.ACH RESTORATION
REOOUX 29 Years

t;ln o.-

'-' ""~' ' ' II" ~.s~ A

12

f
139

'RR icSATI O"- V A.... V E5 e 1'-(AIN'- INE

5AN7A -vC. IA I 1'-(AR":"IN 1-'!AY

....,4

,_.,
-~

~-,..,.
~

TOP'

RRicSATON VA;...' /ES ~ MAINLINE

"'RO X IMATE 5ANTA L.UC. lA 5TAIR5

A"<.EA #5

:RR icSAT ION VAL V ES SANTA L <.iC.IA I t-AART IN 1-'!Av

SC.ENIC. 6EAC.f-o PATH

......nt

(!I"~

ti:A\iscape
bestgn

....,.._ ...

I.And~Anfllt.,1t'lll"'

- PROJECT IRRIGATION VALVE LOCATIONS AREA 5

13

CARMEL BEACH RESTORATION

REOOUX 29 Yea~
(.I "'O" Co'<U.'<t -bY- !><.- S<-

r...&f""",c1'11\n~...

lll

140