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To:
From:
Submitted by:
Subject:
CITY OF CARMEL-BY-THE-SEA
Council Report
January 7, 2014
Honorable Mayor and Members of the City Council
Jason Stilwell, City Administrator
Sharon Friedrichsen, Publi c Services Director
Review of the Shoreline Management Plan and Forest Management Plan
Implementation
Recommendation(s): Receive a report on the review of the implementation of the Shoreline
Management Plan and Forest Management Plan and provide direction to
staff as necessary.
Executive Summary: One key initiative adopted by Council for calendar year 2013 is to review
the implementation of the Shoreline Management Plan ("SMP") and the
Forest Management Plan ("FMP") and update as necessary, including
attention to right-of-way and trail connectivity. Both of these documents
are part of the City' s General Plan and Local Coastal Plan and contain
numerous goal, objectives and policies to guide implementation.
The SMP is an implementation guide that contains various policies
pertaining to shoreline access; the shoreline's natural landscape and
structural features such as guard rails, revetments, signage, restroom
facilities and trash containers; recreational activities including beach
fires; erosion, sand redistribution, shoreline armoring; public safety and
monitoring and inspection schedules. The Forest and Beach Commission
reviewed the SMP and recommended no changes to the existing
management policies contained within the document. However, the
Commission identified several key areas for implementation including: re-
establishing ongoing beach assessments; executing the dunes habitat
restoration plan; revitalization of the Scenic Pathway; the management
of beach fires and the management of trash-related issues. The
Commission also recommended that an annual report on the "State of
the Shoreline" be developed and presented to Council.
As the Shoreline Management Plan is a component to the City' s planning
documents, the Forest and Beach Commission's recommendations were
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brought forward to the Planning Commission for review as well. The
Planning Commission concurred with the recommendations of the Forest
and Beach Commission, noting the importance of routinely assessing the
conditions of the shoreline. However, the Planning Commission
recommended that the policies pertaining to the dunes habitat
restoration plan contained within the Del Mar Master Plan be
reevaluated and practices pertaining to the replacement and removal of
trees at the dunes be reexamined.
The Forest Management Plan was developed with the intent to
strengthen the connection between trees and City residents. It provides
management guidance to preserve the City's "urbanized forest." Both
the Forest and Beach and Planning Commissions are not recommending
any changes to the FMP at this time. Rather, recommendations focus on
implementation efforts including evaluating the resources needed for a
tree planting program; continued work on right-of-way compliance and
concentrated information and outreach efforts and more ongoing
reporting, including the development and presentation of an annual
"State of the Forest" report to Council.
Analysis/Discussion: The Shoreline Management Plan ("SMP") is Appendix A of the City's Local
Coastal Program, which was certified by the California Coastal
Commission in 2004. As part of the review process, the Forest and Beach
Commission evaluated the progress made to date on implementing the
SMP using a color-coded scorecard whereby green means the policy has
been fully implemented; yellow indicates it has been partially
implemented and red indicates it has not been implemented as written in
the SMP (attachment). While implementation of several management
policies has been deficient over the years due to declining financial
resources, the City has responded to several major storm events and
strengthened infrastructure and has improved access to the Shoreline in
the last several years through grant and City funded projects such as the
4th Avenue boardwalk and the Del Mar viewing platform.
The SMP is a comprehensive document that begins with an overview of
the Shoreline, the Carmel Bay, the Beach Bluffs and the Dunes. The
management policy in this section pertains to pursuing funding from
governmental agencies for scientific studies of physical processes
occurring at the Carmel Beach. While this management policy has not
been fully implemented, the recommendation is for staff to work with
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government entities and local universities to encourage research and
funding of projects at the Shoreline.
Chapter 3 of the SMP pertains to access to the Shoreline. The Forest and
Beach Commission noted that the SMP narrative should be updated to
reflect completed projects that provide access and trail connectivity.
These projects include the 4th Avenue Boardwalk and Stairs and
connectivity from San Antonio to 4th and 2nd Avenues (completed in
2010), San Antonio Pathway from 4th Avenue to Ocean and the Del Mar
Viewing Platform (completed in 2013}. The Scenic Pathway and 4th
Avenue Stairs also include signage indicating that these access points are
part of the California Coastal Trail. The 12th Avenue Stairway, cited as a
future project within the SMP, should be included within the City's capital
improvement plan if the development of the stairway is still feasible.
Ongoing efforts related to maintenance of the sand ramps, boardwalk
and viewing platform, beach stairways and Pathway to ensure safe access
should be continued and funded accordingly. Another management
policy contained within this section is to "provide adequate and
aesthetically pleasing trash containers" and the Forest and Beach
Commission has indicated developing a management plan for trash issues
at the Shoreline to be a key implementation item for 2014.
The SMP includes management polices pertaining to the natural and
structural landscaping. As indicated on the attached scorecard, many of
these policies focus on maintaining the vegetation and trees along the
shoreline and maintaining the dune ecology of Carmel Beach.
Recommendations from both Commissions include focusing on the
revitalization of the Scenic Pathway and the implementation of the Dunes
Habitat Restoration Plan. In terms of dunes restoration, the
interpretation of the policies regarding the replacement of trees should
be re-examined.
Chapter 5 of the SMP pertains to recreational activities and special events
at the beach. The Forest and Beach Commission recommends the
development of a beach fire management plan that would focus on:
Temporary signage until new signage is developed and approved;
Improved signage to better explain the beach fire rules and
identify location;
Development of protocols to implement the use of fire baskets;
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Increased public education and outreach, including coordination
with special events at the beach;
lhcreased enforcement, assisted by improved signage;
Possible development of a new City Municipal Code prohibiting
the burning of anything but designated firewood on the beach.
The SMP also includes an extensive section on monitoring and
inspections. Such monitoring includes shoreline surveys that document
the changes in the beach width, sand volume, rates of bluff erosion, and
movement of seawalls, retaining walls and revetment boulders. The SMP
includes proposed schedules for conducting beach profiles to assist in
sand redistribution efforts and monitoring of armor structures. While
ongoing surveys have not been consistently performed throughout the
years, City staff has responded to needs at the Shoreline during major
storm events as well as ongoing maintenance efforts pertaining to the
covering of revetments and sand redistribution. Both Commissions have
recommended that beach assessments be funded and that an ongoing
schedule for assessments and inspections be re-established, including
utilizing new technology and other strategies to assess the shoreline.
The Forest Management Plan ("FMP") is Appendix G of the City's General
Plan. It contains 15 objectives and 56 policies pertaining to four key goals:
Preserve and enhance the City's legacy of an urbanized forest of
predominately Monterey pine, coast live oak and Monterey
cypress
Maintain and enhance the informality of streetscapes
Preserve and acquire open space and parks
Conserve water and minimize storm runoff
Similar to the SMP review, the Forest and Beach Commission completed
an assessment of the efforts to date in executing the FMP utilizing a
color-coded scorecard (attachment). As noted in the attachment, efforts
related to training and outreach to the public and entities doing business
within the City regarding tree protection and tree-related issues should
be increased. An important component of education and outreach
includes frequent reporting to the Commissions and Council on the City's
efforts related to tree replanting and the overall status of the City's
urbanized forest. Continuing collaboration and cooperation with
volunteer groups is also a key strategy for implementing the FMP.
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Fiscal Impact:
Addressing the issues of encroachments in the right-of-way and reducing
hardscape are also areas that need additional attention in terms of
implementation. The Planning Commission also reviewed the Plan and
did not recommend any changes to the policies. It also reiterated the
need for regular reporting on the state of the forest and continued
monitoring of the effectiveness of the policies contained the FMP.
The SMP includes a checklist of ongoing monitoring and inspection
activities that should occur throughout the year to assess the shoreline.
It also recommends that a reserve be established to fund possible
damage resulting from catastrophic weather events. The FMP includes
implementation strategies that can occur based upon a set budget,
including several low cost implementation strategies related to public
outreach and education. The cost to implement these plans will be
included in the capital improvement plan and departmental budget.
Budgeted {yes/no): Yes Funding Source (general fund, grant, state)
General Fund
Previous Council
Action/Decision History:
Attachments:
Reviewed by:
Council included the review of these plans as a key initiative in
January 2013.
A- Forest Management Plan Score Card
Link to Shoreline Plan:
http://ci .carmel.ca.us/carmel/index.cfm/linkservid/A25248FE-
3048-7 B3 D-CSCFC53C2A45 8534/showM eta/0/
B- Shoreline Management Plan Score Card
Link to Forest Management Plan Scorecard
http://ci .carmel .ca.us/carmel/index. cfm/linkservid/A2547786-
3048-7B3D-C5855FD7FSBA7E22/showMeta/0/ and
http://ci.carmel .ca.us/carmel/ index.cfm/linkservid/A2563880-
3048-7B3 D-CSACB64CE0320FD1/showM eta/0/
City Administrator t y Attorney 0 Administrative Services D
Asst. City Admin.
Public Safety Dir
0
D
Dir of CPB
Library Dir
D
D
5
Dir of Public Svcs
Other
D
D
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5
Forest Management Plan Scorecard
P9-202 I 6
P9-203 I 6
P9-208 I 7
Review periodically existing tree-related ordinances and policies i n Forest
management Plan/LCP and proposed changes as needed
Maintain, restore and enhance 1,1pper/lower tree canopy
Implement adopted tree density policies for private and public property
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ATTACHi'1ENT A
FPB is a division of Services Dept 2013
Ongoing, FBC recently adopted tree monitoring
ordinance; possible other ordi nances to review
in the future
Ongoing practice
Property owners are often required to plant
t rees as a conc;tition of planning approval. City
staff olant additional t rees on
Property owners are often required to plant
as a condition of
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Forest Management Plan Scorecard
P9-218 18
P9-220 I 8
P9-221 I 8
P9-222 I 8
P9-223 I 8
P9-224 I 8
09-39 I 8
nvolvinll an increase in lot coverage or tree removal to a
Record and monitor replacement trees to ensure establ ishment and maturity
Requi re ample/appropriate landscaping and tree planti ng on all sites
Require a d.o.cuments site or meeting between planner, forester and
property ofeach construction site to discuss tree
and
Version 12/5/13 Page 2
Ongoing practice
Adopted City policy
Tree monitoring Ordinance amended; st ill
wait ing on Coastal Commission aooroval
Landscapi ng plan is required on large
construction sites.
Ongoing practice
Ongoing practite
work follows adopted
laPdscaping is in accordance with .City Codes and
is required as part of planning approval
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Forest Management Plan Scorecard
P9-227 I 8
P9-228 I 9
P9-19 I 9
P9-226 9
09-41 9
Require all City departments, utility companies, tree service companies, arborists,
landscapers and gardeners adhere to adopted tree maintenance standards, policies
and e:uidelines
Educate and involve the public in tree 1ssues
Version 12/ 5/13 Page 3
Ongoing practice
Training needs improvement
Tree services, arborists, city staff use adopted
standards etc.; others should also abide by
standards. codes. oolicies
Mai lings, articles, workshops, and Arbor Day
have been used
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Forest Management Plan Scorecard
P9-243 110
09-42 110
P9-244 110
P9-245 110
P9-248 110
09-44 11
Involve citizen groups m forestry programs
Remove/reduce unnecessary or excessive hardscape and other nonconforming
encroachments to parkland and within street right of way to provide for and
Incorporate adequate landscaping and trees of the urbanized forest in all public
construction oroiects
Version 12/5/13 Page 4
Friends of Carmel Forest, Friends of Mission trail
Nature Preserve
Ongoing practice
Ongoing practrce
Ongoing practice
Addressed in planning phase of publ ic projects.
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Forest Management Plan Scorecard
City staff shall involve FPB staff on planning and implementation stages of the Needs Improvement
P9-250 111 Include funding for t he design and installation of landscaping as part of each public I Depends on scale of project , funding source, and
avai labilitv of maintenance oersonnel
09-46 11 Council decis1on
P9-254 111 I Establi sh and implement a procedure for removal of invasive vegetation Ongoing practice
P9-256 111 I Identify/ protect ESHA against significant disruption of habitat values Ongoing pract ice
P9-260 112 I Provide for public access and passive enjoyment of City parks and open space I Ongoing practice
P9-261 112 I Provide and maintain informal trails if there is public demand Ongoing practice
0 9-48 112 I Optimize public use of City parks Ongoing practice
P9-258 112 I Implement the recQmmendations of a.ll existing Master Plans (MTNP, Shoreline, I Ongoing practice
Forest Hill Park) considering pr-ioritized needs and available
P9-259 112 I Develop and implement specific plans, master plans or other programs m other I Ongomg practice
areas where needed
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Forest Management Plan Scorecard
P9-262 I 12
P9-263 12
P9-264 12
09-49 12
P9-266 13
P9-267 13
P9-269 113
New construct ion plans should include design features t o enhance surface water
ercolation
Encourage homeowners to absorb surface water on their own property
landscape with drought tolerant plants, shrubs and trees of the urbanized forest
Provide to the public an establishecj list of indigenous and non-indigenous drought
tolerant
Require approval Qf landscape for drought tolerance and trees by FBP on new
construction at final design review or before issui ng a bui lding permit
Use low output sprinkler heads or drip irrigation for irri gation systems
Use on-site water retention devices to capture preci pitation to surface runoff for
landscape maint enance purposes
Version 12/5/13 Page 6
St rict site coverage requirements ensure
uate surface water oercolation.
Strict site coverage requ1rements ensure
uat e surface water oercolation.
Landscape plans are submitted with planning
and construction drawing to ensure compliance
Wit h riPQIIbatin n
Available on city web site, although difficult to
find
l andscape plans are submitted with plannmg
and construction drawing t o ensure compliance
with
i ncorporat ed collection program at cit y hall f or
future i mplementation; other sites evaluat ed on
cost/benefit
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ATTACHMENT B
Shoreline Management Plan Scorecard
Version 12/13/ 13 Pase 1
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Shoreline Management Plan Scorecard
. .
r
3.5
3.5
3.5
3.5
3.5
3.5
3.5
3.5
3.5
3.5
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Shoreline Management Plan Scorecard
3.5
3.5 3.16 I Provide adequate and aesthetically pleasing trash containers Assessing capacity and size No Work on implementation strateg1es,
and type of enclosures; Big key implementation Initiative for staff
for 2014
I 13.16 I Provide secure bicycle racks I Bike racklnstalled at Del No Cont inue to mainta1n racks 3.5
3.5
3.5
3.5
3.5
3.5
3.5
4.4
4.4
4.4
Mar, but needs ma1ntenance
Version 12/13/ 13 Pa1e 3
Continue to maintain condition of
benches and other log seating
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Shoreline Management Plan Scorecard
4.4
4.4 4.18 I Retain second restroom at Santa Lucia Avenue until replaced by permanent site/remove
upon construction of restroom south of Eighth Avenue
4.4 14.18
4.4 14.18
4.4 14.18
4.4 14.18
4.4 14.18
Beach restroom at Scenic I No
and 13'h recently approved
by Planning Comm1ss1on and
Council.
Version U/13/ 13 Pase 4
Build and mamtam new restroom
facility, consider renovations t o Del
Mar restroom
Build new restroom facility
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Shoreline Management Plan Scorecard
4.4 14.18
4.4
4.4
4.19 I Maintain low to medium density (40-60) trees in the North Dunes
4.19 I Protect cypress from structural damage caused by high winds; develop proactive
trimming program to reduce length/weight of limbs and branches
4.4 14.19
4.4 I 4.19 I Maintain attractive mix of plant materials- native, drought-tolerant and non-invasive
There are more than 60
trees currently
Ongoing maintenance item No
4.4 14.19 I Encourage extension of Pathway landscaping onto neighboring properties; Bring all City I No consistent ongoing effort No
owned property on Scenic Road into compliance with Plan, Encourage private property
I I . owners to draw from olants used in P:othw:ov
4.4 4.19
4.4 14.19
4.4 14.19
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Shoreline Management Plan Scorecard
Version 12/13/13 Page 6
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Shoreline Management Plan Scorecard
4.4 14.21 I Prevent further planting and spread of invasive horticultural species within dunes at I DMP includes plan to restore Needs review More emphasis on dunes restoration;
Carmel Beach and protect north dunes. including removal of 1nvasive spec1es;
Currently being review dunes habitat plan in Del Mar
implemented Master Plan
4.4 14.21 I Remove non-native invasive vegetation from special status habitat to eliminate DMP includes plan to restore Needs review More emphaSIS on dunes restoration,
competition and implement a dunes restoration plan and protect north dunes. including removal of invasive spec1es;
Currently being review dunes habitat plan in Del Mar
implemented Master Plan
4.4 14.21 !Implement Dunes Restoration Plan I DMP mcludes plan to restore Needs rev1ew Execute dunes restoration plan and
and protect north dunes continue to evaluate; key issue for
Currently being implementation and recommended to
implemented. Council as a 2014 initiative; review
dunes habitat plan in DMP
4.4 14.21 I Mimm1ze spread of non-native plants I DMP mcludes plan to restore Needs review More emphas1s on dunes restoration;
and protect north dunes. including removal of invasive species
Currently being ,rev1ew dunes hab1tat plan in Del Mar
en ted. Master Plan
4.4 14.21
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Shoreline Management Plan Scorecard
4.4 14.21 I Monitor, study and develop effective management program for the City's parks and M1ssion Trail Nature I Needs review
ESHAs; endeavor to reduce conflicts between environmental protection and use of Preserve Master plan
public and private property within ESHAs developed; ongoing efforts
to moni tor programs
4.4 14.21 I Maintain and enhance resource value of environmentally sensit ive habitat areas in Biolog1sts have been I Needs review
consultation with qualified biologist and CA Dept. of Fi sh and Game; remove any non- consulted as needed
nat1ve, invasive vegetat1on from sensitive habitats
4.4 I 4.21 I Reduce introduction and spread of invasive horticultural species into and within Included in restoration plan I Needs review
identified ESHAs
4.4 I 4.21 I Provide beach users w1th Information about Beach, its vegetation, facilities, amenit ieS Some s1gnage included with I No
and limitations/ rules boardwalk, Carmel Garden
Club area, and viewing
platform
4.4 14.21 I Establish uniform signage program to better inform users of rules Funding for signage included I No
wi thin the City's 2013-18 CIP
4.4 I 4.21 I Post beach access/pedestnan only s1gns at top of pedestrian easements to help locate Completed I No
access routes
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Version 12/ 13/ 13 Pace 8
Need development of Implementati on
schedule and measurement m order
to monitor and study effectiveness;
review dunes habi tat clan m DMP
Establish rout ine utilizat1on of
b1ologist and consultation on
development of 1mplementat 1on plan;
review dunes habi tat clan in DMP
More emphasi s on removal of mvas1ve
wit hin ESHA areas (Dunes and MTNP);
revi ew dunes habi tat clan in DMP
Better development of s1gnage,
espeCially regarding rules. Key
1mplementat1on i ssue 1dent ified
Commission have been reviewing
s1gnage improvements and have
Identified sign age on beach rules as a
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Shoreline Management Plan Scorecard
4.4 14.22 I Consider locating signs at bottom of bluff I Ongoing I No I Commission have been reviewing
signage Improvements and have
1dentified signage on beach rul es as a
key impleme
4.4 14.22 I Use signs that are aesthetically pleasmg, easily seen, mmimal m s1ze, bnef in content, of Ongomg No
muted in color and uniform In design
identified s1gnage on
key implementation issue
4.4 14.22 I Post educational/interpretive s1gns where appropnate along Scenic Drive and in the Some si gnage included with No
North Dunes area boardwalk, Carmel Garden
Club area, and viewing
platform
4.4 14.22 I Use international symbols whenever possible along with brief explanatiOn of I Ongomg I No
prohibitions and Municipal Code citations
I I
I identified sign age on
ntation i ssue
----
4.4 14.22 I Mamtam signs to ensure legibility; replace vandalized s1gns as soon as possible I Ongoing 1 No
I Commission have been reviewing
s1gnage improvements and have
identi fied signage on beach rules as a
key implementation issue
4.4 14.22 I Maintain signs at stairways indicating fires must be 25 feet from base of bluffs and not
I Ongoing
I No
I Commission have been reviewing
allowed north of Tenth Avenue signage improvements and have
identified signage on beach rules as a
I Ongoing I No
I key implementa1
4.4 14.22 I Use trash containers as location for educational and regul atory signs; Provi de signage
prohibiting fires in the dunes area; consider using restroom stall for posting beach rules
4.4 14.22
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Shoreline Management Plan Scorecard
5.3 5.5
5.3 5.5
5.3 5.5
5.3 5.5
5.3 5.5
5.3 5.5
5.3 5.5
5.3 5.5
5.3 15.5
5.3 15.5
5.3 5.6
5.3 , 5.6
5. 3 , 5.6
5.3 J5.6
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Shoreline Management Plan Scorecard
5.3 5.6
5.3 5.6
Install to indicate times and distance and methods to extin2uish fire with water
Cont1nue Police Department enforcement of no fire regulation north of Tenth Avenue
and in Del Mar and North Dunes area
Ongoing No
Ongoing No
Commission have been reviewmg
sign age improvements and have
identified signage on beach r ules as a
issue
Commission have been rev1ewing
signage improvements and have
identified signage on beach rules as a
key implementation Issue so that
improved s1gnage assists with
educati on and enforcement efforts
I I .. 0 MUIIMiit JJ; ----_,. - flllj -
1
1ili ' .......... ._ .. , ..
6.5 16.14
6.5 16.14
6.5 16.14
6.5 16.15
6.5 I 6.15
6.5 16.15
6.5 16.15
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Shoreline Management Plan Scorecard
8.6
8.6
8.6 8.12 I Perform monitoring and maintenance of shoreline facilities and structure throughout
year; Restore sand levels annually and replace damaged vegetation as needed
8.6 18.12
8.6 18.12
8.6 I 8.12
8.6 18.13
8.6 18. 13
8.6 I 8.13
8.6 I 8.13
Repair of facilit1es and I No
structures as reported; sand
replenishment completed to
Version 12/13/13 Page 13
Re-establish schedule for montonng
and maintenance of facilities; utilize
beach profile surveys to determine
amount of sand needed annua
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Shoreline Management Plan Scorecard
with faced vertical seawalls designed Addressed as requared Continue to evaluate
area and need for sand
6.5
6.5 Maintain records and conduct beach
6.5
7.4 17.4
7.4 17.4
7.4 17.4
8.6 I 8.11 I Establish and Implement comprehensive shoreline management program
8.6 Minimaze erosaon of bluffs Ongoing No
8.6
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Shoreline Management Plan Scorecard
8.6
8.6
8.6
8.6
8.6
8.6
8.6
8.6
rPvPtmPnt<: by licensed engineer; minimum annual
low sand elevations in winter months
8.14 I Maintain shoreline armoring structures, irrigations, drainage and vegetation in
structurally sound manner (page 8-15)
Additional efforts needed to 1 No
maintain use of beach,
including beach fires; no
sand
Respond on as needed basis I No
Instead of routine
maintenance
Version 12/13/ 13 Page 14
Re-establish schedule for beach
assessments and profiles and use data
to determine sand loss
Continue to implement and use data
from regular monitoring to maintain
structures