Important New Link in the California Coastal Trail (APPROVED WITH CONDITIONS) & North Del Mar Dunes Boardwalk Controversy

ABSTRACT: At the California Coastal Commission’s Thursday, March 11, 2010 meeting, the Coastal Commission approved with conditions an application “to construct new pedestrian trail segment and improve existing trails to connect Del Monte Forest Trail system to Carmel Beach as part of the California Coastal Trail (includes trail and new stairway improvements in the forest, and decomposed granite walkway along North San Antonio Ave., new boardwalk, and new stairway access in City of Carmel (near the Carmel Gate into the Del Monte Forest.” Selected sections of the Staff Report and an ADDDENDUM with links to visual exhibits of the project are presented. A COMMENT is made regarding the Commission’s requirement of a boardwalk, the City’s opposition and Mayor Sue McCloud’s actions.

CALIFORNIA COASTAL COMMISSION
MARCH 2010 AGENDA
SANTA CRUZ COUNTY
BOARD OF SUPERVISORS CHAMBERS
701 OCEAN STREET
SANTA CRUZ, CA 95060
(831) 588-4112
THURSDAY, MARCH 11, 2010

7. COASTAL PERMIT APPLICATIONS.

b. Application No. 3-10-003 (Pebble Beach Co., Monterey Co.) Application of Pebble Beach Co. to construct new pedestrian trail segment and improve existing trails to connect Del Monte Forest trail system to Carmel Beach as part of the California Coastal Trail (includes trail and new stairway improvements in the Forest, and decomposed granite walkway along North San Antonio Ave., new boardwalk, and new stairway access in City of Carmel) near the Carmel gate into the Del Monte Forest, Carmel, Monterey County. (KM-SC) [APPROVED WITH CONDITIONS]

COASTAL DEVELOPMENT PERMIT APPLICATION

Application number.......3-10-003, Del Monte Forest to Carmel Beach Trail

Applicant.........................Pebble Beach Company

Project location..............Along the existing historic Redondo Trail alignment and the west side of Carmel Way (between the Pebble Beach Golf Links maintenance driveway and the City of Carmel gate) in the Del Monte Forest, and along North San Antonio Avenue (from the Carmel Gate to 4th Avenue) and the existing 4th Avenue beach accessway to Carmel Beach in the City of Carmel, Monterey County.

Project description.........Construct new public access pedestrian trail segments and improve existing trails to connect the Del Monte Forest trail system to Carmel Beach as part of the California Coastal Trail (includes trail and new stairway improvements in the Forest; decomposed granite walkway along Carmel Way and North San Antonio Avenue; a new trail through the North Del Mar Dunes area; and a new stairway to Carmel Beach).

Local approvals ..............City of Carmel Planning Commission design study MP 09-9; Monterey County design approval PLN090414.

File documents................Monterey County certified Del Monte Forest Area Local Coastal Program (LCP); City of Carmel certified LCP, including Del Mar Dunes Master Plan; Coastal Commission file for CDP 3-06-033; Coastal Commission file for LCP amendment CML-3-09 Part 1.

Staff recommendation...Approval with Conditions

A. Staff Recommendation
1. Summary of Staff Recommendation
The proposed trail improvements and new trail would be located where the Del Monte Forest area of unincorporated Monterey County connects to the northern edge of the City of Carmel. The project is divided into three segments: (1) trail improvements along 960 feet of the existing historic Redondo Trail alignment in the Del Monte Forest, (2) a new approximately 0.24-mile long trail/footpath along Carmel Way/North San Antonio Avenue, and (3) trail improvements along the existing 4th Avenue accessway, including new stairs to Carmel Beach. The total length of existing trail improvements and new trail would be approximately 0.6 mile.

Because the proposed project is located in the Coastal Commission’s original jurisdiction, Monterey County’s certified LCP jurisdiction, and the City of Carmel’s certified LCP jurisdiction, and based on consent of all required parties, this application is being considered as a consolidated CDP application pursuant to Coastal Act Section 30601.3. As such, the applicable standard of review is Chapter 3 of the Coastal Act, with the Monterey County and City of Carmel LCPs as non-binding guidance.

The proposed trail and associated improvements would expand and enhance public recreational access in the southern Del Monte Forest and in the Carmel Beach North Dune areas, and comprise an important new link in the California Coastal Trail (CCT) that would connect the existing Del Monte Forest trail system to the City of Carmel’s trail system and Carmel Beach. The project area has long been identified as a significant gap in the CCT that limits access into the Forest, and ultimately limits access through the Forest and connecting to upcoast Pacific Grove at Asilomar Dunes.

There is one component of the proposed project that does not adequately protect habitats and provide adequate access connectivity, however. This segment is that portion of the existing 4th Avenue beach accessway that currently extends across the dunes themselves. As proposed, new post and rope demarcation would be provided, but users would still be directed to walk through the dune sands directly. Although such demarcation helps direct users, the bare sand trail would preclude members of the public in wheelchairs and other assisted wheeled devices, including walkers and strollers, from using the trail. It would also make it difficult for users not interested, inclined, or otherwise physically able to try to walk across shifting dune sands. In short, a sand trail component like this would lessen the utility of the trail connection proposed, and this is inappropriate at such a critical public access link in not only the area’s trail system but also the California Coastal Trail.

In addition, a sand trail keeps users in the dunes themselves (as opposed to separated from them), which can lead to habitat impacts. Conversely, a boardwalk segment through the dunes would both facilitate access (including ADA access, and access for users not otherwise able or interested in traversing dune sand), and best protect the dune habitat from disturbance. In fact, the recent City of Carmel LCP amendment certified by the Commission in January of this year for this North Dune area explicitly calls out the use of boardwalks for this purpose at this precise location. The Commission has had long experience with boardwalk projects as a means of protecting dune habitats, and there is nothing specific to this location that would conclusively argue for a different approach here. As such, the permit has been conditioned to require an ADA boardwalk instead of a bare sand trail for this segment of the alignment.

As proposed and conditioned, the project represents an exceptional public recreational access project, with components that will be sited and designed in such a way as to provide maximum public benefit at this important public site while ensuring no significant disruption of habitat values. Staff recommends that the Commission approve, with conditions, a CDP for the proposed project.

B. Findings and Declarations
2. Coastal Development Permit Determination
D. Conclusion
As proposed and conditioned by this permit, the project will provide new public recreational access, including as an important new link in the California Coastal Trail in the southern Del Monte Forest/northern City of Carmel. The project, as conditioned, represents an exceptional public recreational and interpretive access project, with components that will be sited and designed in such a way as to provide maximum public benefit at this important public site while protecting sensitive habitat. As such, the project can be found consistent with the Coastal Act policies discussed above.

B. Special Conditions
1. Final Plans. PRIOR TO ISSUANCE OF THE COASTAL DEVELOPMENT PERMIT, the Permittee shall submit two full size sets of revised Final Plans to the Executive Director for review and approval. The revised Final Plans shall be in substantial conformance with the plans submitted to the Coastal Commission (dated received in the Commission’s Central Coast District Office on January 15, 2010, and titled “Carmel Way Pedestrian Trail,” “North San Antonio Avenue Pedestrian Trail,” and “Carmel Beach Stairs” prepared by WWD Corporation) except that they shall be revised and supplemented to: 1) provide a boardwalk across the North Dunes area constructed of natural wood materials designed in such as way as to blend as much as possible with the dune aesthetic; 2) omit decomposed granite at the top stairway landing and instead make a seamless connection between the boardwalk and the top stairway landing; 3) provide an overlook area at the top of the stairway, including a bench if feasible; 4) modify the path alignment on Carmel Way to avoid crossing the parking area near the Carmel gate and instead extend along the seaward side of the parking area off pavement (and on a decomposed granite path segment); 5) extend the decomposed granite path segment near the restroom along Carmel Way so that it provides seamless connection to decomposed granite path segments on either side; and 6) modify fence design so that supporting poles do not extend above pickets, and use 4”x4” poles and 2”x4” supports if feasible.; 7) repair and/or improve, as necessary, the existing trail between the 4th Street/North San Antonio intersection and the dune area so that it is safe and functional for public access use; 8) demarcate a 4-foot wide area of the existing trail (through striping, stenciling, or other method to clearly delineate the path) where it extends across pavement at the 4th Street/North San Antonio intersection (extending from North San Antonio Avenue to the existing decomposed granite trail segment); and 9) require all trail landscaping to be native plant species of local stock and appropriate to the surrounding habitat type, and prohibit non-native and/or invasive plant species along the trail.

COMMENT:
• Interestingly, according to an article in The Carmel Pine Cone March 19, 2010, the City “opposed a boardwalk, instead seeking a marked sand path across the dunes above the beach.” Mayor Sue McCloud requested the Commission reconsider the boardwalk requirement. McCloud argued that the dunes “should remain in their natural state without the use of boardwalks.” However, the recent City of Carmel LCP amendment certified by the Commission in January 2010 for this North Dune area explicitly calls for the use of boardwalks for this purpose at this precise location. Moreover, the Commission has had “long experience with boardwalk projects as a means of protecting dune habitats.” The California Coastal Commission approved with conditions Application No. 3-10-003, including the construction of boardwalks in the North Del Mar Dunes area.

ADDENDUM:
D. Exhibits
Exhibit A: Location Map (page 21)
Exhibit B: Overall Proposed Trail Plan (page 22)
Exhibit C: Aerial Photo (page 23)
Exhibit D: Carmel Way Trail Plans (includes Redondo Trail segment) (pages 24-33)
Exhibit E: North San Antonio Trail Plans (includes Del Mar Dunes segment) (pages 34-42)
Exhibit F: Carmel Beach Stairway Plans (pages 43-52)

STAFF REPORT for Th7b
CDP Application Number 3-10-003 (Del Monte Forest to Carmel Beach Trail)

CALIFORNIA COASTAL COMMISSION
MARCH 2010 AGENDA

Coastal panel OKs trail work, demands beach boardwalk, MARY BROWNFIELD, The Carmel Pine Cone March 19, 2010, 8A