Agenda packet

Carmel-by-the-Sea City Council
August 4, 2026

Document: Agenda packet
Meeting: August 4, 2026
Body: Carmel-by-the-Sea City Council
Pages: 569
Original file: 106.9 MB

Text extracted from the city's file for reading and search. Open the original on carmelbytheseaca.api.civicclerk.com. That file is the official record.

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ATTACHMENT 8

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$$%&'$(()*+$,-./(,0,)(-,+.//,12,3.++.*')0456(783(8.-++,9,:)3-;)-+ <,0)()*+$,-=>?>@%@A(8B0$:$($,-C.DCEDC5DC$$$D% FGHIJIKLLIKJMNOPIQOLJORSMSOQNHKNMNKNIMKNNKTHIUVQSNMKJIJIWVSJIU OQXVYNSZ[KXSY\MSNIM]^_`aVYNS[KXSY\UbIYYSQcMdKJISUIQNS[SIUUSMNSQTNY\ US[[IJIQN[JOX`LJSXKJ\UbIYYSQcdKQU`MSQcYI[KXSY\UbIYYSQcMd NHJOVcHOVNNHIMNKNIMNKNVNI_ $$$%e$-.//fA+'))-+$3)+f,2()*+$,-Eg%456%hih)j*/80)(73,7,()0;8/+$2.;$/f 0):)/,7;)-+(23,;*3).+$-k456(%456(.3).//,1)0*,-*833)-+/f1$+' 73,7,()0;8/+$2.;$/f01)//$-k(A783(8.-++,9,:)3-;)-+<,0)()*+$,-=>?>@%@A (8B0$:$($,-(C.DCEDC5DC$$$D.-0C)DCEDC5D% Flal]m_nop_qrq_n_]_PKYYObMIsSMNSQcKQULJOLOMIU_ ]t_]m_nop_qrquvwxe/,,343).Ay8/+$2.;$/fxzYOOJnJIKSMJIMNJSTNIUNONHIYSXSNMO[ONHIJMITNSOQM O[NHITOUI{SQTOQ[YSTNbSNH|ORIJQXIQNlOUIMITNSOQ^}~}_{MVPUSRSMSOQMuKwumw{uTwuwulwKQU uIwu]wuow_VPUSRSMSOQuKwumwMNKNIMNHKNQOONHIJOJUSQKQTI{LOYST\OJJIcVYKNSOQMHKYYPINHIPKMSM O[NHIUIYK\OJUIQSKYO[KQnopLIJXSN{bHSYIuTwuwulwKQUuIwu]wuowUINKSYnopMbHSTHXK\QON PIJIMNJSTNIUP\YONTORIJKcI{UIQMSN\{OJ[YOOJKJIKKYYObKQTIM_ K_I[IJNOUSMTVMMSOQSQMITNSOQ_IRSMIU[OJTOQMSMNIQT\bSNHJIMLOQMINOlOXXIQN_ ]r_]m_nop_qrquowx)$k'+Ay8/+$2.;$/fxIScHNSMJIMNJSTNIUNO]~[N{SQTOQNJKMNNOuTwuwuowuSSSw{ bHSTHKYYObM[OJKQKUUSNSOQKYNbO[IINSQHIScHNNOXKNTHJOO[LSNTH{KQUuTwuwuowuSRwbHSTHKYYObM VLNO}[NOJNHIYSXSNKNSOQOQNHILJSXKJ\_ K_
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$%&$'&$(&%)*$%&$''&+,-./-01%121-%1%)345*620)6127/22*1-2%886,%982*2)0.1:;6<1-2861+ %)*.0/6)0.012)1,.1-1-2=6).)>*20.>)%1.6)6)1-2861? %?@2;2<16*.0/A00.6).)B2/1.6)CD? 'E?'E?345?FGF$H&IJKLMNOPQROSRTSLUVWXQMYRZMX[I420.>)01%)*%<*0%\\8:16%883450?]6,2^2<+ 1-.0.0.)/6);8./1,.1-H6^2<)_2)1(6*202/1.6)`abac?c+0A9*.^.0.6)$2&+,-./-.0272_\1;<6_ 86/%8*20.>)01%)*%<*0? %?@2;2<16*.0/A00.6).)B2/1.6)C'F?
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#$%#&%'()%*+*,-./0123456789:;</=>?@AB>C>DE?AFGHDIHJF>KLHF>MNO>DAP'()HJBQDR>FE>M SFQCAIAFAI>TADMEOAE?AFGHDICLJEBQC?@UNHEOEO>F>KLHF>C>DEJQSEO>LDM>F@UHDIVQDHDI MHJEFHBE%WQN>R>FTXQR>FDC>DEYQM>J>BEHQDZ+[+\%\\JEAE>JEOAEAMMHEHQDA@?AFGHDIJOA@@DQE]> F>KLHF>M%^QQSS_JEF>>E?AFGHDIF>KLHF>C>DEJAF>F>KLHF>MEQ]>BQR>F>M% A%`O>F>?@AB>C>DE?AFGHDIDQE>MHDEO>?FQ?QJ>MQFMHDADB>HJSQFEO>?FHCAFUMN>@@HDITDQE SQFEO>P'()%`O>F>HJA@JQDQF>KLHF>C>DEEOAE?AFGHDIHJBQR>F>M/?AFGHDIHDEO>=_# MHJEFHBECAU]>?FQRHM>M]UIAFAI>TBAF?QFETQF?AFGHDI?AM% -FQCPL@U\*\\WY('()WADM]QQG,?AI>\a.bc0de1<e5fgegh1g89:;<i2e1gej45ghe 1gg1ihej61216e12e5fg<klmeiggfghe<1neo123456o2fgeig4f5<1<9:;<15jifkdjle 2epk42ejlqghedfi1d16e5iqgfo2fr4je2eod1iene5go123456st \*%#&%'()%*Z*,'.T,u./:e<465ver4ew/'MCHDHJEFAEHR>JEADMAFMJCLJE]>HDB@LM>MNHEOHDEO>'() QFMHDADB>TAJDQQEO>FQFMHDADB>T?Q@HBUQFF>IL@AEHQDCAU]>LJ>MHDEO>>RA@LAEHQDQS'()J?>F XQR>FDC>DEYQM>J>BEHQDZ+[+\%\TJL]MHRHJHQD,A.,&.%`OHJHJA@JQHDBQDS@HBENHEOXQR>FDC>DE YQM>J>BEHQDZ+[+\%\TJL]MHRHJHQD,>.TNOHBOHJ>x>C?ESFQC@QBA@M>JHIDJEADMAFMJ%'MMHEHQDA@@UT cA??>AFADB>yADMcE>xELF>yAF>JL]z>BEHR>E>FCJNHEODQC>ADJQSLDHSQFCR>FHSHBAEHQDEOFQLIO AD>xE>FDA@]>DBOCAFGTADMEO>F>SQF>MQDQEC>>EEO>M>SHDHEHQDQSQ]z>BEHR>JEADMAFMJ?LFJLADE EQXQR>FDC>DEYQM>J>BEHQDZ+[+\%\TJL]MHRHJHQD,z.,&.% A%{EASSF>KLHF>JSLFEO>FMHF>BEHQDSFQCWY(F>IAFMHDIEO>A]QR>BQCC>DE%|EHJLDB@>AFNOU AJ?>BHSHBc?QHDE>FyNHEOHDEO>QFMHDADB>EQADQEO>FQFMHDADB>}F>JQ@LEHQD}MQBLC>DEHJ HC?>FCHJJH]@>% 4s'SHDMHDISQFY(~A??FQRA@HJEOAEch1ggheo2fmeig1<je<i24lej45ghe1ood4i1g4f5 15j1iifno15q456n1ge241d<71<nfj44ejlq15qif5j4g4f5<f1oo2fr1d7 if5f2n<w4ghgheie2g44ej4gqf12nedlqghee1fi1df1<g1d02f621nts `OHJAJJLC>JEO>?FQz>BECLJEA@JQBQC?@UNHEO?FQRHJHQDJQSEO>BQM>QLEJHM>QS EO>'()QFMHDADB>%{>>XQR%YQM>{>BEHQDZZ \$%
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`INLNLOTOQNI^IOVaIN[R^aMQZOYbW[bNLObcOMdRTMYaRMUNMYeQR\QMZfJ @.,-#--+6)-&.)<(1?)0&6+-&#8-1016<8:9,&.<(15,-,12-1'&.)01/)1+&-,/)1' &.)ABC1(/,2#20)$%))g15$E1/)%)0&,12hhijk$ A-/)-0(,4)/,2&.)l)4(+#(:miDjnni-&#''()<1(&'1(&.)#/1<&,121'&.)E,&:F-G#2/C-) H8#2o aMQZOYIURXOR^NLRUOUPOTIMYTRZZpXINIOU^RQ`LITLaRMUNMYqTNUOTNIRX rstur`MU`QINNOXJKLRp\LZpTLIUZMVOR^NLOOTYOTNITTRNNM\OUIXNLO ^RQOUNMXVWQIYYIMXN`LINOUMXVWOMTL]`RQYVbQOXR`XOVULRPPIX\]PQRvIZIN[ NReOWWYOwOMTLMXV\MNO`M[NRwI\cpQ]NLOdxeVROUXRNVOUI\XMNOaMQZOY MyUPOTIMYTRZZpXIN[y`RQNL[R^PQRNOTNIRXJzRVI^ITMNIRXt{MT|XR`YOV\OU NLOUI\XI^ITMXTOR^aIN[}UpXI~pOTLMQMTNOQMXVVOUI\XMNOUaMQZOYMUPOTIMY TRZZpXIN[MXVLI\LY[UTOXITMQOM^RQNLOPpQPRUOUR^aRMUNMYqTNcOTNIRXU rstu]rstur]MXVrssMYRX\`INLTRQQOUPRXVIX\QO\pYMNIRXrtusJKLIU VOUI\XMNIRXPQR_IVOUNLOWMUIU^RQQO~pIQIX\TRMUNMYVO_OYRPZOXNPOQZIN QO_IO`R^VO_OYRPZOXNPQRPRUMYUNLMNPRNOXNIMYY[IZPMTNLIUNRQITMXVRQ TLMQMTNOQQOURpQTOUJ
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#$%&%&'($%')*+',-.'/$0$%(1#&$)&'+',$(/'((1#*2/34','52$,'3$6%&'($%'3*'(7*% )*08/9#$%&($%')*+',-.'/$0$%(:;33$%$*7-//91%&'%,''3'7($%9,'52$,'0'7%(1)*7($(%'7% #$%&*%&',8,*+$($*7(*6%&'<=>?>*/$)9>@A@@1>@ABCD#*2/3-/(*7''3%*4'0'%: =*+',-.'8/-9(-7$7%'.,-/%*%&'8,*%')%$*7*6)*-(%-/,'(*2,)'($7%&')$%9:E')-2('%&' )$%91&-(6'#6*,0-/(%,''%$08,*+'0'7%(*,3,-$7-.'(9(%'0(1FGHIJKLMNOPHQRSTKHUFMVUT UHKWHUFTXTNWHYKJNTSSSKTZFGH[MFHKUGHQFTFGHLHMXGMNQ\MKZHV]MYFGKTJ^GMWMKOHFY TSNMFJKMVQKMONM^HU_U[MVHU_MNQXKHH`UabGHSTKHUFcHKSTKZUFGHOZcTKFMNFSJNXFOTNUTS MLUTKLON^[MFHKSKTZFGHUTOV_KHQJXON^KJNTSS_SOVFHKON^cTVVJFMNFU_MNQZONOZOPON^ HKTUOTNadUUJXG_FGHIJKLMNOPHQRSTKHUFKHQJXHUFGHMZTJNFTScTVVJFHQKJNTSSMNQONVMK^H cMKF_GHVcUFGH\OFYXTZcVY[OFGFGHeMFOTNMVfTVVJFMNFgOUXGMK^HhVOZONMFOTNiYUFHZ jefghikfGMUHlliFTKZmMFHKcHKZOFKH^JVMFOTNU:n@ o&'<-73p('>/-762,%&',3'(),$4'3%&-%MUHqOUFON^GTZHUMKHKHLJOVFTKHNVMK^HQFGHOK XTNNHXFOTNFTKTMQUMNQOZcMXFTNQKMONM^HTSFHNXGMN^HUarMK^HKGTZHUXTWHKZTKHUOFH MKHM[OFGOZcHKZHMLVHUJKSMXHUXMJUON^ZTKHKJNTSSstKLMNQKMONM^HXMKKOHUcTVVJFMNFU FT\MKZHV]MY_MNdKHMTSicHXOMV]OTVT^OXMViO^NOSOXMNXHMNQcMKFTSFGHuTNFHKHY]MY eMFOTNMVuMKONHiMNXFJMKY:nB o&'*+',-//-73($08/$6$'3.*-/$(%*&-+'-(02)&(%*,0#-%',$76$/%,-%'*7A($%'-(8*(($4/' -73%*,'A+$%-/$v'%&'6*,'(%:w*#'+',1$6%&'7*7)*76*,0$%$'(-,'7*%)*,,')%'3-%%&' %$0'*6)*7(%,2)%$*71%&'*8%$0-/%$0'%*-33,'((7*7)*76*,0$%$'(1($%'(0-9'x$(%$7- (%-%'%&-%6-,'x)''3(%&'@@y)*+',-.'/$0$%8,'(),$4'349%&'<p>:;33,'(($7.- 7*7)*76*,0$7.)*73$%$*7$7-))*,3-7)'#$%&%&','52$,'0'7%3'(),$4'3-4*+'0-97*% $76-)%4,$7.%&'($%'$7%*)*76*,0-7)'#$%&%&'@@y8',0$%/$0$%1&*#'+',1$%3*'(4,$7. %&'($%')/*(',%*%&'8,'(),$4'3/$0$%%&-7$%#*2/34'*%&',#$(': ;(3$()2(('3$7(')%$*7zn1-4*+'1{bGH\TMUFMV\TZZOUUOTNUFMSSKHcTKFSTKFGHMQTcFOTN TSFGHXOFYr\f|MX`NT[VHQ^HUFGMFUOFHXTWHKM^HOULJFTNHXTZcTNHNFTSFGHVMNQJUH} [MFHK~JMVOFYNHqJU_LJFOFQTHUJNQHKUXTKHFGHOZcTKFMNXHTSZONOZOPON^OZcHKWOTJUUOFH XTWHKM^HTWHKMVVa&*2/3%&'('7*7)*76*,0$%$'(7*%4'-33,'(('31%&'8*%'7%$-/$08-)%( #$//)*7%$72'%*4''x-)',4-%'3: n::;p:?>DlNFHKOTKdXXHUU 7%',$*,-))'(($(7*%8',0$%%'34'%#''7-8,$0-,927$%-73-7 ;p:o&$($($7)*76/$)%#$%&*+',70'7%=*3'(')%$*7B@@n:n1(243$+$($*7?'D1#&$)&$('x'08% 6,*0/*)-/3'+'/*80'7%(%-73-,3(: -:'+$('36*,-//*#-7)'6*,(243$+$($*7'27$%(: n::;p:?oD\TNWHKFHQdgtU;p(02(%4')*7+',%'36,*0/'.-//98',0$%%'3-))'((*,9 (%,2)%2,'(:o&$($($7)*76/$)%#$%&*+',70'7%=*3'(')%$*7B@@n:n1(243$+$($*7(?-D?D?D?+$$D1 ?3D?nD1-73?'D?D1-73?'D?nD:%-%';p<-#*7/9,'52$,'(%&-%(%,2)%2,'()*7+',%'3$7%*;p(4' 'x$(%$7.1,'.-,3/'((*6#&'%&',%&'9-,'/'.-//98',0$%%'3*,7*%: ¡¢£ ATTACHMENT 8

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"#$%&'()*+,-./0,12*3456.789-2:32;<.=2,++-/+-3,.282>3*3/5?,@354A/893*-2B73-28./?,@2.=2 0/CC/;3540358354*C3*.2835DED#F(GH(&I&(J(K358354*0/-12*345L2:32;)++-/:,C,58DED #F(GH(&I&(D()883.3/5,CK358354*0/-12*3456.789)++-/:,C(D/?+C3,5>2;3.=.=2*20358354*;/7C825*7-2 .=,.82:2C/+?25.3*>/5*3*.25.;3.=.=2MD",58.=2D/,*.,C)>.+-/:3828,52N>2+.3/53*35>C78280/- ,883.3/5,C0C//-,-2,3*,CC/;280/-O9+2P)1Q*( O=2D/??3**3/5=,**.,.2835.=23-R,57,-9S#<S&SS?2?/.=,.T2?+=,*3*,882835UVWX'Y Z[\]^_[^`abb\cc\adea^cda_fghh^d_]i[jk^_[^^lm]\f\_jg_[ah\_i_amhak\e^ahmha_^f_ jnnahejo]^[agc\dp\d_[^fajc_j]qad^r_[^`abb\cc\ad[jcfad_\dg^e_amh^c^hk^^l\c_\dp e^dc\_ijdejnnahejo]^[agc\dps[^d^k^hmacc\o]^r\df]ge\dpoicgmmah_\dpjde ^dfaghjp\dp_[^fh^j_\adantuvwcjdexuvwcyz{|}}~} }}}}}|}||} r\df]ge\dpfh^j_\dpjee\_\adj][agc\dpgd\_canj_im^jdec\q^_[j_fjdo^bah^ jnnahejo]^_[jda_[^hnahbcan[agc\dp\d_[^fajc_j]qad^r}~| }}}z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ATTACHMENT 8

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Guidance on Processing
Local Coastal Program
Amendments for
Accessory Dwelling Units
in the Coastal Zone
July 1, 2026
Laguna Beach | Nestadu
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TABLE OF CONTENTS
Executive Summary .............................................................................................. 3 I. Purpose ............................................................................................................... 5 II. Background on ADUs in the Coastal Zone................................................... 5 A. Overview of New Legislation ............................................................. 5 B. Coastal Act Authority........................................................................... 6 III. ADU Ordinances and LCPs ............................................................................ 7 A. Minor LCP Amendments ................................................................. 11 B. De Minimis LCP Amendments........................................................ 11 C. Major LCP Amendments ................................................................. 12 D. External References .......................................................................... 14 E. Categorical Exclusion Orders ......................................................... 16 VI. Examples of Recently Updated ADU Provisions in Certified LCPs........19 VII. Conclusion.....................................................................................................21 ATTACHMENT 9

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Executive Summary
This Guidance on Processing Local Coastal Program (LCP) Amendments for Accessory Dwelling Units (ADUs) and Junior Accessory Dwelling Units (JADUs)1 in the Coastal Zone provides the following key takeaways to guide local governments in preparation of LCP amendments related to ADUs:

1. The California Coastal Commission strongly urges local governments to:

A. Review existing ADU regulations in their LCPs.

B. Add new ADU policies and regulations in LCPs that have no such regulations or policies.

C. Expeditiously update any existing LCP policies regulating ADUs to conform with state ADU standards, in a manner that does not lessen the effect of the Coastal Act.

2. Local governments should use any flexibility allowed by LCPs to modify standards that conflict with State ADU Law or make construction of ADUs more difficult, so long as doing so does not lessen the effect of the Coastal Act by causing impacts to sensitive coastal resources or public coastal access or putting residents or structures at risk of coastal hazards.

3. There are three types of LCP amendments that the Commission can consider:
minor, de minimis, and major.

A. “Minor” amendments: if a proposed ADU ordinance or update to an ADU ordinance contains clarifying or non-substantive changes that do not affect the kind, location, intensity, or density of use, or that simply modify the notification, hearing, or other procedures required for approving ADUs, the Commission would likely consider this to be a minor amendment that will not require a full public hearing in front of the Commission.

B. “De minimis” amendments: in contrast with “minor” amendments, may involve relatively substantive policy changes, so long as there are no impacts on coastal resources and no change in land use, water uses, or any change in the allowable use of property. These amendments also do not require a full public Commission hearing.
1 This Guidance uses the general term “ADU” to refer to both accessory dwelling units (ADUs) and junior accessory dwelling units (JADUs), unless stated otherwise.

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C. “Major” amendments: If an ADU ordinance or update thereto does not qualify as a de minimis or minor, including if it requires suggested modifications by the Commission to ensure that it conforms with the Coastal Act, then it must be processed as a standard, or “major,” LCP amendment.

4. Local governments can reduce the frequency and complexity of LCP updates by structuring their ADU ordinances to be easily adaptable as State ADU Law evolves, for example by cross-referencing the current version of State ADU Law in the LCP or by including only coastal-specific ADU provisions in the LCP and relying on uncertified State ADU Law provisions for the rest. Such approaches can help keep LCPs current while ensuring protection of coastal resources consistent with the Coastal Act.

5. Certified and uncertified jurisdictions may pursue Categorical Exclusion Orders to exempt ADUs from requiring a coastal development permit in areas or circumstances where they will pose no threat of having a significant adverse effect on coastal resources.

6. Local governments should coordinate with HCD before adopting their LCP amendments at the local level or formally submitting them to the Commission.

They should also coordinate early and often with the Commission when preparing an LCP amendment to reduce delays at the end of the process.

This document also includes a list of, and links to, recently certified LCP provisions related to ADUs.

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I. Purpose
The California Coastal Commission has previously circulated several memos to assist local governments with understanding how to carry out their Coastal Act obligations while also implementing rapidly evolving state laws that regulate Accessory Dwelling Units (ADUs) and Junior Accessory Dwelling Units (JADUs). 2 Senate Bill 1077 (Chapter
454, Statutes of 2024) requires the Commission to develop new ADU Guidance, in coordination with the California Department of Housing and Community Development (HCD). In fulfillment of the requirements of that statute, the purpose of this Guidance is to provide direction to local governments on how to facilitate the preparation of amendments to their certified local coastal programs (LCPs) that clarify and simplify the permitting process for ADUs and JADUs in the coastal zone. This Guidance also contains an overview of the authority that the Coastal Act grants the Commission and local governments over ADUs and JADUs in the coastal zone, and it clarifies how LCP amendments with ADU policies can be processed quickly while still ensuring Coastal Act consistency.

II. Background on ADUs in the Coastal Zone
The widening income gap and unmet demand for housing throughout the nation continues to exacerbate housing inequity in California, especially in coastal areas, where housing and rental costs are consistently above the state and national average. To address this critical issue, the state Legislature has enacted a number of laws over the last decade that are designed to encourage construction of additional homes in appropriate locations. In particular, state housing laws have been changed to facilitate development of ADUs and JADUs, which can be more affordable to build and to rent than other forms of market rate housing. In the coastal zone, some of these changes have modified the procedures that the Commission and local governments must follow when considering coastal development permit (CDP) applications for ADUs. However, when considering proposals for ADUs, local governments and the Commission must also apply the substantive resource protection requirements of the Coastal Act, and by extension, LCPs. Thus, local governments in the coastal zone must streamline approval of ADUs and JADUs in conformity with state housing law while also complying with, or creating new, LCP provisions that continue to protect coastal resources and coastal public access and ensure development is safe from coastal hazards.

A. Overview of New Legislation
In March 2026, HCD published the most recent version of its ADU Handbook, which gives an overview of legislative changes to State ADU Law as of January 1, 2026. Since publication of the previous version of HCD’s ADU Handbook in 2025, the Legislature 2 Memos published on April 18, 2017; November 20, 2017; April 21, 2020; January 21, 2022.

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has enacted AB 130 (Chapter 22, Statutes of 2025), AB 462 (Chapter 491, Statutes of 2025), AB 1154 (Chapter 507, Statutes of 2025), SB 9 (Chapter 510, Statutes of 2025), and SB 543 (Chapter 520, Statutes of 2025). Importantly, AB 462 makes coastal development permits (CDPs) approved by local governments for ADU-only (or JADUonly) projects no longer appealable to the Commission. It also shortens, from 90 days to 60 days, the deadline for the Coastal Commission and local governments to act on complete CDP applications for ADU-only, JADU-only, or ADU and JADU-only projects.

B. Coastal Act Authority
The Coastal Act includes standards that development in the coastal zone must meet, including specific policies addressing public coastal access, recreation, protection of habitats, development design, and other coastal planning topics. It also requires local governments within the coastal zone to develop LCPs (and amendments thereto), which are subject to Coastal Commission certification. Certified LCPs provide the standards and procedures the local government uses to apply the Coastal Act at the local level.

They contain the rules for new development, policies for protection of coastal resources, and the associated processes to carry out the requirements. Each LCP contains a land use plan and implementing measures, such as zoning and maps. Once the Commission certifies an LCP, the local government assumes primary responsibility for permitting most development, including housing, within its coastal zone.

Approximately 90% of land in the coastal zone is covered by a certified LCP. In the remaining twelve (12) uncertified jurisdictions,3 as well as other areas of deferred certification and the Commission’s retained CDP jurisdictional area, CDP applications are reviewed, and CDPs are issued, by the Commission directly.

The Coastal Act has a variety of provisions directly related to housing. Importantly, the Coastal Act does not “exempt local governments from meeting the requirements of state and federal law with respect to providing low- and moderate-income housing, replacement housing, relocation benefits, or any other obligation related to housing imposed by existing law or any law hereafter enacted” (Pub. Res. Code Section 30007).

The Coastal Act also requires the Coastal Commission to encourage housing opportunities for low- and moderate-income households (Pub. Res. Code Section 30604(f)). Finally, new residential development must be “located within, contiguous with, or in close proximity to, existing developed areas able to accommodate it” or in 3 The twelve remaining uncertified local jurisdictions are: Fortuna, City of Monterey, Goleta, City of Los Angeles, Hermosa Beach, Santa Monica, Torrance, Seal Beach, Costa Mesa, Aliso Viejo, San Clemente, and Solana Beach.

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other areas with adequate public services and where development will not have significant adverse effects on coastal resources (Pub. Res. Code Section 30250).

Although the Coastal Act no longer gives the Commission the explicit authority to require or protect affordable housing in the coastal zone and states that “[n]o local coastal program shall be required to include housing policies and programs” (Pub. Res.

Code Section 30500.1), nothing precludes local governments from submitting Land Use Plan Amendments with provisions that protect and encourage affordable housing consistent with the Chapter 3 policies of the Coastal Act.4 Once certified, these Land Use Plan policies become the standard of review for both Implementation Plan amendments and coastal development permits issued by the local government and by the Commission on appeal.

Through its existing authority, the Commission has continued to preserve existing density and affordable housing, including by supporting and encouraging the creation of ADUs and JADUs. The creation of new ADUs and JADUs in existing residential areas is one of many strategies that aims to increase housing stock by creating additional housing units of a type and size that can be more affordable than other forms of housing in the coastal zone. Coastal Act and LCP policies can also ensure that new ADUs and JADUs are developed in areas where they will be safe from hazards and will avoid significant adverse impacts on coastal resources.

III. ADU Ordinances and LCPs
State ADU Law provides the statutory minimum requirements for ADUs and JADUs.

Local governments may elect to go beyond this statutory minimum to further the creation of ADUs and JADUs (Gov. Code Sections 66325(b), 66339.5(b)). To that end, local agencies may choose to adopt an ADU ordinance. The preparation, adoption, amendment, and implementation of local ADU ordinances must be carried out consistently with Government Code Section 66314 (and Section 66333 for JADUs) and must not unduly restrict the creation of ADUs (or JADUs). Once a local agency adopts an ADU ordinance, it may impose objective development and design standards in compliance with Government Code Section 66314 (or Section 66333 for JADUs). 4 For more information on the Commission’s historical interpretation and implementation of this authority, see Report on Coastal Act Affordable Housing Policies and Implementation dated February 10, 2015.

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In the coastal zone, local governments must carry out State ADU Law in a manner that conforms with the Coastal Act.5 Because ADU ordinances affect zoning, design standards (e.g., height, setbacks, floor area), and other regulatory provisions governing development, local governments in the coastal zone should include them in their certified LCP in order to ensure protection of coastal resources. ADU ordinances are generally incorporated into the Implementation Plan, or IP, portion of the LCP. State ADU Law has changed frequently in recent years, but not all LCPs have been updated as frequently. As a result, many LCPs now have ADU provisions that are out of step with current State ADU Law. It is therefore imperative that local governments promptly review their LCPs and add or update ADU policies, as needed, to carry out the objectives of State ADU Law while also protecting significant coastal resources as required by the Coastal Act.
5 See Govt. Code Section 66329, stating in relevant part that “nothing in this article shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act of 1976 (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall, pursuant to Section 66317, either approve or deny a coastal development permit application for an accessory dwelling within 60 days of receiving a completed application, and shall not be required to hold public hearings for coastal development permit applications for accessory dwelling units.”
The Commission therefore strongly urges local governments to:
1) REVIEW their LCPs to determine what, if any, provisions regulate ADUs (which may also be called, e.g., “second units,” “granny flats, or “guest units”);
2) ADD new ADU policies and regulations in LCPs that have no such regulations or policies; new provisions should regulate ADUs in a manner that conforms with the substantive and procedural requirements of State ADU Law unless doing so would lessen the effect of the Coastal Act and its mandate to protect significant coastal resources;5 and 3) Expeditiously UPDATE any existing LCP policies regulating ADUs to the extent that such policies do not conform with current state ADU standards, are no longer necessary to protect significant coastal resources or carry out Coastal Act mandates, or make it difficult to approve ADU projects. New provisions should regulate ADUs in a manner that conforms with the substantive and procedural requirements of State ADU Law unless doing so would lessen the effect of the Coastal Act and its mandate to protect significant coastal resources.

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During the time before an LCP is updated to reflect the current language of ADU law, local governments will need to carefully consider the extent to which they can apply their existing LCP provisions to regulate proposed ADU projects. In general, if a local government’s LCP does not contain any ADU (or JADU) regulations, then it should process applications for ADUs pursuant to State ADU Law standards contained in Government Code Section 66310 et seq., but with the LCP lens applied. The local government should still review such applications for consistency with applicable coastal resource protection standards, including, but not limited to, standards related to protecting habitat, ensuring that new development will minimize risks from flooding and other coastal hazards, or establishing height limits that protect public coastal views.

Applying these types of standards, which may at times require discretionary review, will ensure that ADU projects that proceed under State ADU Law will not lessen the intended effect of the Coastal Act, as carried out through LCPs.

If an LCP does contain ADU regulations, but those regulations are outdated, the Commission recommends that jurisdictions should continue to carry out LCP policies to the extent needed to protect coastal resources. However, the Commission encourages jurisdictions to be flexible in carrying out and interpreting their LCPs so that they can streamline the construction of ADUs without compromising coastal resource protections. For example, if LCPs allow for variances from standards that make ADU construction more difficult, jurisdictions should consider granting the variances unless they would result in impacts to sensitive coastal resources or public coastal access or put residents at risk of coastal hazards.

By contrast, development standards, such as setbacks, that are designed to protect sensitive habitats or to ensure that development is safe from erosion or other coastal hazards should not be modified, as this would lessen the effect of the Coastal Act’s resource protection policies.

Some LCPs may contain side or front yard setback
requirements or other design standards that conflict with State ADU Law and that are not necessary to protect coastal resources (e.g., they are not needed to protect public
access, wetlands, or public view corridors). In such cases, the Commission believes that jurisdictions should use
flexibility within LCPs (e.g., variances, administrative modifications of standards, ranges) to modify the standards in order to comply with State ADU Law without lessening the effect of the Coastal Act.

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Many local governments have embraced ADUs as an important part of their overall housing policies, and they have amended their LCPs to include innovative strategies to expedite the permitting and construction process for ADUs and JADUs. Moreover, ADUs and JADUs are often clustered within an existing developed area, and as such, they may often result in fewer adverse impacts on the environment and on coastal resources. Thus, as an overall category of development, ADUs and JADUs are great candidates for streamlining—both in terms of authorizing individual projects, but also during Commission review of ADU ordinances (as LCP amendments) for Coastal Act compliance.

IV. Methods for Amending LCPs and Streamlining
Opportunities
As shown by way of examples in Section VI of this Guidance, the Coastal Commission has prioritized ADU-related LCP amendments, and the Commission has streamlined the review when possible. The Coastal Act allows the Commission to process three types of LCP amendments, which in order from least to most complex include: (1) minor, (2) de minimis, and (3) major.

There are three ways that the Commission processes LCP
amendments:
1) Minor amendment, which can include non-substantive
revisions or procedural changes;
2) De minimis amendment, which means the amendment has
no individual or cumulative impact on coastal resources; or 3) Major amendment, which typically involves anything that does not meet the definition of de minimis or minor
amendments and/or involves suggested modifications.

Takeaway: Local governments should update their LCPs to create or modify provisions related to ADUs in order to encourage and regulate them in line with State ADU Law while at the same time protecting coastal resources consistent with the Coastal Act. Prior to certification of such updates, local governments may have the discretion to modify some standards to facilitate new ADU construction, provided that coastal resources are not diminished as a result.

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A. Minor LCP Amendments
LCP amendments may be fast-tracked if the Commission’s Executive Director determines they are “minor” in nature (Pub. Res. Code Section 30514(c)). Title 14 Section 13554(a) of the California Code of Regulations (CCR) provides that a minor amendment includes, but is not limited to, changes in wording which make designated uses in implementing actions more specific without affecting the kind, location, intensity, or density of use and that are consistent with the certified Land Use Plan. 14 CCR Section 13554, subsections (c) and (d) further provide that a minor amendment may include changes in the notification and hearing procedures that are consistent with the requirements of the Coastal Act or the correction, reorganization, revision, or deletion of certified Land Use Plan language which does not change the kind, location, intensity or density of use or modify the resource protection measures for any area.

If the Executive Director of the Commission determines that an amendment qualifies as “minor,” it must be reported to the Commission at the next meeting. Unless one third of the appointed members of the Commission object to the Executive Director’s determination, the minor LCP amendment will take effect on the 10th working day after Commission concurrence.

B. De Minimis LCP Amendments
For “de minimis” LCP amendments, the proposed amendment cannot propose any change in land use, water uses, or any change in the allowable use of property; in addition, the amendment must have no impact, either individually or cumulatively, on coastal resources and must be consistent with the coastal resource protection policies of Chapter 3 of the Coastal Act. (Pub. Res. Code Section 30514(d)(1)). De minimis LCP amendments have slightly different noticing and public participation procedures than minor or major LCP amendments. Out of an abundance of caution, local governments may choose to satisfy these specific noticing/participation requirements as well as the noticing and public participation procedures for minor and major amendments, which would allow flexibility for processing if the Commission determines that an amendment does not fit the de minimis criteria. Alternatively, to ensure the best outcome, local governments should coordinate in advance with Commission staff for amendments where they intend to use the reduced de minimis noticing procedures.

Takeaway: if a proposed ADU ordinance or update to an ADU ordinance contains clarifying or non-substantive items or simply modifies the notification, hearing, or other procedures required for approving ADUs, the Commission would likely consider this to be a minor amendment that will not require a full public hearing in front of the Commission.

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If a local government finds that the amendment is de minimis and submits it to the Commission as such, the Commission’s Executive Director must determine, within 10 working days of the date of submittal, whether the proposed LCP amendment qualifies for de minimis processing. This requires the Executive Director to find that the amendment meets the criteria above and that the local government has met certain local noticing requirements (Pub. Res. Code Section 30514(d)(1), (3)).

If the proposed amendment is determined to be de minimis, the proposed amendment is noticed on the agenda of the next regularly scheduled Commission meeting, along with any public comments forwarded by the local government. Unless three or more members of the Commission object to the Executive Director’s de minimis determination, the de minimis LCP amendment will become part of the certified LCP upon adjournment of the Commission meeting that day. The Commission recommends local governments exercise this option when considering an ADU ordinance of a more limited scope, or which involves a simple update to an already certified ADU ordinance.

While State ADU Law considers ADUs to be by-right development associated with residential development on any site zoned for residential or mixed use, local ADU policies may affect the allowable use of property, or ADU development may have adverse impacts on coastal resources, and thus not all ADU-related LCP amendments may be considered de minimis.

C. Major LCP Amendments
Finally, if an ADU ordinance or update thereto does not qualify as a de minimis or minor LCP amendment, including if it requires suggested modifications by the Commission to ensure that it conforms with the Coastal Act, then it must be processed as a standard, or “major,” LCP amendment. Local governments may submit no more than three major LCP amendment submittals in any calendar year, although there are no limits on the number of amendments included in each of those submittals (Pub. Res. Code Section 30514(b)). Thus, as a first order of streamlining, local governments may choose to Takeaway: For expedited processing of ADU-related amendments, consider packaging all de minimis changes to a certified LCP as a single LCP amendment that can qualify as a de minimis
amendment. “De minimis” amendments (in contrast with “minor” amendments, above) may involve relatively substantive policy changes, so long as there are no impacts on coastal resources.

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bundle major ADU ordinances with other housing actions or other types of LCP amendments for simultaneous Commission review.
6 Additionally, as discussed in greater detail in Section V of this Guidance, the Commission strongly recommends that coastal jurisdictions coordinate with HCD early in the process, and prior to submitting proposed LCP amendments to the Commission, to ensure that proposed language is consistent with State ADU Law. This will minimize the need for either: 1) the Commission to suggest modifications to address changes requested by HCD,
7 or 2) for the local government to withdraw its submittal, have it readopted by its council or board with the required modifications, and resubmit it to the Commission. In all cases, the Commission and HCD remain committed to expeditious collaboration with local jurisdictions to address questions and resolve potential conflicts.

The Commission, for good cause, may extend the time limitations for processing an LCP amendment by up to one year (Pub. Res. Code Section 30517). A time extension may be valuable in situations where the local jurisdiction and Commission staff need to work on mutually-agreeable suggested modifications, or the jurisdiction needs to draft a supplementary ordinance to address HCD’s comments in a future LCP amendment or withdraw the LCP submittal and rework it to ensure compliance with State ADU Law.

However, close and early coordination with HCD and Coastal Commission staff can help avoid the need for an extension whenever possible, and ensure that only the minimum extension period is actually used if an extension is necessary. By aligning the ADU ordinance with current State ADU Law, coordinating with HCD and Commission staff before local adoption, and addressing potential coastal resource impacts early, the LCP amendment process can proceed more efficiently and with fewer delays. 6 Where appropriate, the Commission’s Executive Director may still choose to parse out the ADU ordinance portion of the major LCP amendment submittal as a separate “part” (e.g., Part A, B, C, etc.) for recordkeeping, filing, and/or consideration.
7 To the extent that such modifications are needed to comply with the Coastal Act (for Land Use Plan amendments) or the Land Use Plan (for Implementation Plan amendments).

Takeaway: If an ADU ordinance or update does not qualify as a de minimis or minor, including if it requires suggested modifications by the Commission to ensure that it conforms with the Coastal Act, then it must be processed as a standard, or “major,” LCP amendment.

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D. External References
Given that State ADU Law has been amended frequently in recent years, and that future amendments may continue to occur regularly, it can be time-consuming for local governments in the coastal zone to incorporate these changes through frequent LCP amendments. However, it is also crucial that LCPs remain adaptable to a changing regulatory landscape and do not become out of date as state housing laws change. The Commission can assist local governments in structuring their ADU ordinances so that future LCP amendments are not needed as frequently or can be simplified, such as by building in flexibility to allow for more limited or less substantive updates, which would make the Commission’s review faster and easier.

One potential option, which local governments have sometimes requested, is to have LCPs cross-reference State ADU Law (Gov. Code Sections 66310-66342) rather than spell out all of the applicable requirements of ADU law in an LCP. This would allow LCPs to be shorter, as they would not need to include all of the specific language contained in State ADU Law. It could also reduce the potential for LCP language to become out of date when State ADU Law changes, thus lessening the need to make corresponding changes to the LCP every time state law is amended.

However, the Commission has not accepted the approach of fully incorporating State ADU Law (or most other external laws or regulations) into an LCP by reference. This is because, to certify an LCP amendment, the Commission must find that it conforms with the Coastal Act’s Chapter 3 policies (for a Land Use Plan, or LUP) or conforms with and is adequate to carry out the provisions of the certified LUP (for an Implementation Plan amendment). If an LCP amendment contains an external reference, the Commission can look at that reference—such as current ADU law—and determine if it conforms with the Coastal Act or LUP. But it cannot determine that all future changes to the outside reference will still conform with the Coastal Act or LUP. Accordingly, the Commission has historically found that it cannot certify, as part of LCPs, outside references that may change in the future, because there is no way to know whether such future changes will make the LCP amendment no longer consistent with the Coastal Act or LUP standard of review.

However, there are two potential ways to address this issue. First, the Commission has sometimes allowed LCPs to incorporate outside documents or laws by reference so long as the LCP clearly states that it is only incorporating the version of the outside reference that exists as of a specified date (e.g., January 1, 20XX) or the date of ATTACHMENT 9

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Commission certification.8 This approach allows a local jurisdiction to incorporate an outside law’s provisions, such as state ADU requirements, into the LCP without having to draft new LCP provisions that reiterate the law. This approach requires that a copy of the outside law be kept so that applicants designing projects and future decisionmakers can find the version of the law that was incorporated in the LCP. As such, it ensures that the Commission has the opportunity to certify that the provisions being incorporated into the LCP are consistent with the Coastal Act or LUP.

This approach still requires future (potentially frequent) LCP updates if there are changes to the outside document/law that need to be incorporated into the LCP.

However, those updates may be limited in scope; for example, the local jurisdiction could simply update the reference date in the ordinance if changes to State ADU Law do not raise Coastal Act issues, which can be processed as a minor or de minimis LCP amendment. A minor or de minimis LCP amendment may also be appropriate even in cases where changes to State ADU Law do raise Coastal Act concerns, if the local jurisdiction properly addresses such concerns in the proposed amendment. In other words, such an approach could help local jurisdictions avoid processing a major LCP amendment to match new State ADU Law language. Should local governments have questions about incorporating new language into their LCP, they should reach out to Commission staff as noted in section VII of this Guidance.

A second potential approach is to not fully incorporate State ADU Law into an LCP, but rather to have an LCP that only includes a few specific provisions related to ADUs. In other words, the local government would only submit to the Commission portions of a full ADU ordinance (e.g., per Gov. Code Sections 66314, 66323, 66333) that are relevant to Coastal Act priorities as part of an LCP amendment. For example, an LCP could specify that ADUs are permitted uses in any zone that allows residential uses, specify the procedures for processing CDPs for ADUs, and describe the coastal resource protection policies that apply to ADU projects, such as standards related to sensitive habitat, coastal hazards, and public coastal access. 9 The LCP would not,
however, need to include standards for all of the issues that State ADU Law addresses; thus, it might not include things such as definitions of terms, ADU minimum or maximum sizes, or building setbacks or height limits, unless there was a need to provide a standard to address specific coastal resource concerns. Because local governments are 8 E.g., LCP-6-CAR-23-0048-1 (Carlsbad, ADU Update 2023), LCP-4-STB-24-0064-2 (Santa Barbara County, SB 423), LCP-6-OCN-25-0029-2 (Oceanside, Downtown Density). 9 See LCP-3-STC-25-0040-2-Part A (City of Santa Cruz, ADUs/Code Updates). This approach has also been certified for Density Bonus Law LCP amendments, e.g., LCP-6-CAR-20-0078-2 (Carlsbad, Density Bonus Update), LCP-3-SLO-21-0025-1-Part D (San Luis Obispo County, Density Bonus Regulations), LCP-4-VNT-25-0010-1 (Ventura County, Housing Bill Implementation Ordinance).

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required to follow State ADU Law, they would be subject to and would need to follow those laws even if they were not incorporated, either explicitly or by reference, into an LCP.
10 In this way, the LCP would be akin to a Coastal Act overlay on top of the local government’s other state law obligations related to ADUs by specifying additional or alternative standards that apply to ADUs in the coastal zone to protect significant coastal resources.

This approach might provide a method that would prevent the need to update LCPs as often. If State ADU Law provisions changed, the LCP would not necessarily need to be updated so long as the State ADU Law changes did not affect how that law interacts with the Coastal Act. Rather, the LCP provisions protecting coastal resources would continue to apply and ensure that the effect of the Coastal Act was not lessened, as required by Government Code Section 66329.

E. Categorical Exclusion Orders
A Categorical Exclusion Order can provide a narrowly tailored CDP exemption for ADUs and JADUs that clearly pose no significant risk to coastal resources—for example, when they are clustered with existing development and located within already developed or urbanized areas. The Coastal Act authorizes the Commission to exclude from CDP requirements any category of development within a specifically defined geographic area if the Commission finds that: 1) the exclusion will not result in a potential for any significant adverse effect, either individually or cumulatively, on coastal resources or on public access to, or along, the coast; and 2) where the exclusion precedes certification of an LCP, it will not impair the ability of the local government to prepare an LCP in the future (Pub. Res. Code Section 30610(e)). 11 Categorical Exclusion (Cat Ex) Orders are prohibited from applying to: tide and submerged lands; beaches; lots immediately 10 If they were not incorporated in an LCP, these provisions of State ADU Law would not be the standard of review for CDPs, but jurisdictions would still need to comply with the law in taking any actions to approve ADUs.
11 The regulations governing Cat Ex Orders can be found at Title 14 California Code of Regulations Sections 13240-49, and additional descriptions of how Cat Ex Orders operate can be found in the Commission’s Summary of Categorical Exclusion Orders.

Takeaway: Local governments can reduce the frequency and complexity of LCP updates by structuring their ADU ordinances to be easily adaptable as State ADU Law evolves, for example by cross-referencing the current version of state law or by including coastal-specific ADU provisions and relying on state law for the rest.

Such approaches can help keep LCPs current while ensuring protection of coastal resources consistent with the Coastal Act.

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adjacent to the inland extent of any beach; lots immediately adjacent to the mean high tide line of the sea where there is no beach; and public trust lands (Pub. Res. Code Section 30610.5(b)).

Both certified and uncertified jurisdictions may choose a Cat Ex as an avenue to streamline the approval process for ADU and JADU development in areas that pose no significant risk of impacts to coastal resources. For jurisdictions that do not have a Cat Ex Order, or whose Cat Ex does not include ADU development, local governments may propose a new and separate Cat Ex Order or amend an existing Cat Ex Order to allow for ADU and JADU development without the need for CDPs. Commission staff has previously coordinated with several uncertified jurisdictions and continues to encourage them to consider a Cat Ex as a viable option for providing local Coastal Act authorization for ADUs and JADUs without an LCP.12
Local governments should consult with Commission staff if they intend to propose a Cat Ex Order. Such Orders are processed separately from LCP amendments, require a twothirds vote of the Commission’s appointed membership to be approved, and are typically subject to conditions. Moreover, Coastal Act Section 30610.5(b) requires that Cat Ex Orders “assure no significant change in density, height, or nature of uses;” in infill and urban areas, some ADUs may meet this standard if they are in existing developed areas with similar heights on lots that already allow residential uses. For ADUs that otherwise would not qualify, a local jurisdiction would use other proceedings under the Coastal Act, such as a CDP or CDP waiver.

Once approved, the local government is responsible for reviewing and granting exclusions, consistent with the terms and conditions of the Cat Ex Order and is typically required to report all exclusions granted to the Commission. It is important to note that, while Cat Ex Orders can be a powerful tool, the Commission may only approve one if it concludes that the specific category of development in a specific geographic area has no potential for any significant adverse coastal resource impacts. Thus, the local government pursuing a Cat Ex must provide evidence that can show that to be the case. 12 Notably, the Legislature has endorsed the use of Cat Ex Orders to streamline authorization of affordable housing projects. See SB 484 (Laird, Ch. 416, Stats. 2025) requiring the Commission to craft three Cat Ex Orders for jurisdictions without LCPs that would exclude deed-restricted affordable housing projects in infill areas from CDP requirements.

Takeaway: Certified and uncertified jurisdictions may pursue Categorical Exclusion Orders to exempt ADUs from requiring a CDP in areas or circumstances where they will pose no threat to coastal resources.

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V. Interagency Coordination: Local Governments, HCD, and the Coastal Commission
HCD has enforcement authority over State ADU Law, including ADU ordinances, and as such, issues technical guidance documents on ADUs and regularly provides technical assistance on these laws, including “preliminary reviews” of draft ADU ordinances for local governments in the coastal zone. Moreover, State ADU Law requires local governments to submit ADU ordinances to HCD within 60 days after adoption; an ordinance becomes null and void if not submitted to HCD on time or if the jurisdiction does not address HCD comments in a timely manner.13 Because the Coastal Commission must certify ADU ordinances in the coastal zone as part of certified LCPs, Commission and HCD staff have devised a protocol whereby HCD staff conducts a preliminary review of the proposed ADU ordinance prior to Commission certification.

Therefore, local governments should coordinate with HCD before adopting their LCP amendments at the local level or submitting them to the Commission. This presubmittal coordination with HCD can help avoid the need for local governments to resubmit a pending LCP amendment or to submit additional LCP amendments after certification to address changes required by HCD.

Local governments should submit draft LCP amendments implementing ADU law to the HCD ADU Portal before they are locally adopted.14 Local governments should include in the submittal summary or in a cover letter contact information for their primary Coastal Commission staff person and that the submittal is a draft LCP amendment. Once HCD staff undertakes its preliminary review of the proposed ADU ordinance, it will provide comments to the local government, which must incorporate all comments, or otherwise explain why the proposed language is necessary to comply with the Coastal Act (and thus why HCD’s requested changes cannot be implemented). Coordination may need to occur between HCD staff, Commission staff, and the local government staff, should issues arise. Once the local government adequately addresses all preliminary comments, its council or board can formally adopt the ADU ordinance and submit it to the Coastal Commission as an LCP amendment. The LCP submittal should include a summary of how HCD’s comments, if any, were addressed. Commission staff may determine that a pending application for an LCP amendment implementing ADU law is ‘incomplete’ without copies or summaries of comments received from HCD and of the local government’s response to these comments.
13 Gov. Code Sections 66326 (d), 66333.5(d).
14 Note that for requests related to a specific ADU or JADU project, local agencies can also submit their inquiries via HCD’s ADU Portal.

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If a local government has already submitted an LCP amendment to the Commission, or if Commission staff have already deemed an LCP amendment application complete— without the requisite preliminary review or comments addressed—the local government should still submit the LCP amendment to HCD via the applicable portal, and Commission staff may need to coordinate with HCD on the timing for HCD review. This post-submittal review can raise challenges because the Commission has limited authority to suggest modifications to address any housing law changes flagged by HCD.
15 As a result, local governments may be required to withdraw and resubmit a modified LCP amendment that addresses HCD’s issues, or to submit another LCP amendment after the initial amendment is certified to resolve any state housing law consistency issues identified by HCD.

Once an LCP amendment is filed, Commission staff will continue to coordinate with local government and HCD staff on the staff recommendation, especially if there are suggested modifications or additional issues to be resolved prior to the hearing.

VI. Examples of Recently Updated ADU Provisions in
Certified LCPs
A number of local jurisdictions have recently updated their LCPs to include new ADU provisions. Coastal Commission staff reports are linked below, which summarize issues that arose between Coastal Act requirements and the new ADU provisions as well as the changes that were made in order to harmonize each jurisdiction’s LCP with the state housing laws. The suggested modifications shown in the staff reports were all approved by the Coastal Commission and approved by the local governments.

County of Santa Cruz (approved March 2022). This minor LCP amendment refined substantive and procedural parameters with respect to the County’s ADU provisions. 15 If necessary, a local government can request that the Commission make suggested modifications to address HCD comments, and the Commission may consider making “friendly” suggested modifications to address these issues. The local government would then need to take any Commission-suggested modifications back to its council or board for a public hearing and adoption. See generally, Pub. Res.

Code Sections 30512(b), 30513; 14 CCR Sections 13532, 13544 (governing process for suggested modifications).

Takeaway: Local governments should coordinate with HCD before adopting their LCP amendments at the local level or formally submitting them to the Commission. They should also coordinate early and often with the Commission when preparing an LCP amendment to reduce delays at the end of the process.

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For instance, the amendment changed the definition of “conversion ADUs,” specified coastal resource protection measures, and modified ADU parking standards and precisely targeted parking requirements within the urbanized portion of the County. In agriculturally-zoned properties and rural timberlands, the County retained existing requirements and findings for ADUs (such as clustering within existing residences) that ensure protection of continued agricultural or timber production and minimization of any loss of productive lands.

County of Santa Barbara (approved February 2024). This de minimis LCP amendment modified existing zoning standards and added new standards pertaining to accessory dwelling units (ADU) to comply with recent changes to state housing law, including SB 897 (2022) and AB 2221 (2022). These included increases to maximum height standards for certain ADUs, allowing ADUs to be stacked above other accessory structures, revisions to existing definitions, modifying how floor area is calculated, revising lot requirements to allow the combination of one conversion ADU and one new construction detached ADU on a lot within residential and mixed-use zones, objective design standards, and requiring replacement parking for principal dwellings proposing ADUs within certain geographic coastal areas where there were public access concerns related to parking.

City of Carlsbad (approved February 2025). This major LCP amendment changed the effective dates in the definitions section, clarified parking requirements in rural residential areas, provided additional provisions on how the City can approve or deny ADUs, updated height development standards, updated references to State ADU Law, and removed conflicting language for development standards in certain zones. These changes reflected requirements under SB 897 (2022) and AB 2221 (2022).

City of Del Mar (approved March 2025). This major LCP amendment streamlined the existing processes for the construction of ADUs and JADUs on most parcels in the City, and the Commission made suggested modifications to ensure that ADUs or JADUs do not result in new or increased impact to coastal resources including hazards, environmentally sensitive habitat areas, wetlands, and public views.

City of Santa Cruz (approved September 2025). This de minimis LCP amendment modified the regulations governing ADUs and JADUs in accordance with state housing law (including changes associated with AB 976 (2023), 587 (2019), 1033 (2023), 2533 (2024), and SB 1211 (2024)), and to make minor changes to public hearing requirements associated with the application of objective design standards.

Importantly, the amendment modified ADU review and processing in the coastal zone via a new administrative coastal permit process for ADUs that makes clear that ADUs within the coastal zone are processed administratively and without a public hearing.

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County of Monterey (approved October 2025). This LCP amendment expanded where ADUs are allowed to include all zones that currently allow for single-family residences, while also requiring ADUs to meet all applicable LCP coastal resource requirements, such as prohibitions in sensitive habitats (such as wetlands, streams, environmentally sensitive habitat areas, and their corresponding buffers), protections of agriculturally productive soils and the agricultural economy, prohibitions on visibility in Big Sur’s critical viewshed, and required evidence of adequate water and wastewater. The amendment specified size and length of tenancy requirements in Big Sur, but eliminated minimum parcel size requirements.

VII. Conclusion
The Coastal Act and ADU laws are complementary, serving to encourage housing in the coastal zone while protecting coastal resources. However, recent and frequent changes to state ADU requirements, which are intended to expand housing opportunities, have created additional responsibilities for local governments. Updating local ordinances and LCPs to reflect these evolving laws can be challenging, particularly given limited time and capacity; however, doing so can help create a more predictable permitting process that provides housing opportunities while protecting coastal resources.

There are several ways to structure and process an LCP amendment to improve efficiency and minimize delays. This Guidance outlines potential approaches for local governments as they consider their specific circumstances and determine how best to update ADU provisions. Section IV.D, in particular, discusses the option of focusing LCP amendments on Coastal Act–related issues rather than incorporating all ADU design standards. This strategy can reduce the number of future amendments needed as State ADU Law continues to evolve. The Guidance also highlights a range of Coastal Act tools such as streamlined LCP amendment procedures and Categorical Exclusion Orders that can expedite ADU approvals while maintaining consistency with the Coastal Act and the certified LCP.

This document provides examples of recent ADU ordinances adopted in the coastal zone to illustrate different local approaches and demonstrate how early coordination with HCD and Coastal Commission staff can help resolve issues proactively. Local governments are encouraged to contact their appropriate Coastal Commission district office to discuss approaches that best support local goals and priorities. The Commission welcomes the opportunity to provide technical assistance, feedback, and tailored guidance to ensure an efficient, transparent, and successful process.

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STATE OF CALIFORNIA-THE RESOURCES AGENCY

CALIFORNIA COASTAL COMMISSION CENTRAL COAST DISTRICT OFFICE 725 FRONT STREET, SUITE 300
SANTACRUZ, CA 95060
(831) 427-4863
TO: Commissioners and Interested Persons
FROM: Charles Lester, District Director
Diane Landry, District Manager
Rick Hyman, Deputy Chief Planner
Mike Watson, Coastal Planner
GRAY DAVIS, Governor
Th7b
November 21, 2002
SUBJECT: CITY OF CARMEL-BY-THE-SEA: LAND USE PLAN RE-SUBMITTAL (3rd). For public hearing and Commission action at its meeting of December 12, 2002 to be held in San Francisco at the Hyatt Regency-Embarcadero, 5 Embarcadero Center, San Francisco, CA 94111.

SYNOPSIS
DESCRIPTION OF THE SUBMITTAL This is the Executive Director's Staff Report and Recommendation on the City of Carmel-by-the-Sea Local Coastal Program (LCP) Land Use Plan (LUP). This is the third re-submittal of the Land Use Plan. The previous iterations were prepared in the early 1980's. The current submittal is an entirely new compilation of documents and policies developed over the last several years, and consists of three main chapters and six appendices. It was submitted on December 20, 2001, but could not be filed due to a lack of some SI.Jpporting documentation.

Meanwhile Coastal staff worked with City staff on issues raised by the submittal. The City Council passed and submitted an amended version of the Plan on November 12, 2002. The standard of review of the land use plan is Chapter 3 policies of the California Coastal Act. The City has also forwarded a companion Coastal Implementation Plan that is not yet filed and will be considered at a later date.

SUMMARY OF STAFF RECOMMENDATION
Staff recommends that the Commission hold a public hearing and take the following action for the City of Carmel-by-the-Sea Land Use Plan: First staff recommends Denial of the Land Use Plan as resubmitted. Then staff recommends approval if the resubmittal is modified. The City has six months to accept the modifications or the resubmittal stands denied.

The recommendation for denial of the LUP is based on inconsistencies of the resubmittal with several Coastal Act policies: those requiring scenic and community character protection, providing for public access and recreation and ensuring that cce
California Coastal Commission
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2 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc development is commensurate with the level of public services (in this case, water) available.

The recommendation for Certification of the Land Use Plan contains Suggested Modifications to address each of the noted deficiencies as discussed below.

SUMMARY OF UNRESOLVED ISSUES
Community Character:

The proposed land use plan contains several policies designed to ensure that Carmelby-the Sea's unique community character is retained. Over the years Carmel's community character has changed significantly, as the community has redeveloped.

Through the permit review process, and this LCP review, the Commission has identified specific ways that the character is being eroded; including replacing smaller homes with larger homes, increased tree removal, greater lot coverage, incompatible designs, and general loss of potential historic structures. Although the proposed land use plan has several policies that address each of these elements of community character, they are somewhat general, non-directive, and in some cases permissive. If the Land Use Plan were approved as submitted, community character would not be protected.

Therefore, staff recommends that modifications be adopted to bring the LUP into conformance with Chapter 3 of the Coastal Act. These modifications in large part add a •·
series of design criteria to the land use plan. These suggested additions are based • primarily on the City of Carmel-by-the-Sea's own Designs Tradition document. While application of these modified policies will still leave considerable discretion to the City decision-makers on matters of design style and elements, it will also better ensure that new development fits within the City's existing community character.

The Land Use Plan has a series of policies designed to protect Carmel-by-the-Sea's historical structufes, which ~re a significant component of the Citts overall community • character. Generally, these policies define what is historic and limit the amount of alterations that could occur to these structures. However, the Land Use Plan is deficient in describing key components of the identification process and in ensuring that all identified resources are subject to the appropriate regulatory policies, thereby, not assuring that all significant historical structures will be protected. Therefore, modifications are suggested with regard to the Historical Preservation Board, the Carmel Inventory of Historic Resources, the City's Historic Context Statement, the site inspection process, the California Register of Historic Resources criteria, and the development review process.

Public Access and Recreation:

The proposed Land Use Plan has a good description of the various public access and recreational and visitor-serving opportunities available. Carmel-by-the-Sea is a popular visitor destination with a spectacular white sandy beach, bluff-top pathway, vibrant California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 3 . #f/4
• downtown shopping area, numerous overnight accommodations, and picturesque streets and residences. In general, the Land Use Plan policies call for protecting these facilities and access to them and for some improvements. However, staff has identified three deficiencies with the policies that would have adverse implications for public access and visitor-serving facilities. First, the land use plan places significant restrictions on beach parking in the evening hours, thereby depriving visitors of a way to be able to conveniently access the beach. Second, the land use plan does not address proposed abandonment of a shoreline street that could provide public access. Finally, the land use plan does not address retention of lower cost visitor serving facilities.

Therefore, staff is recommending modifications to increase hours of available parking, mitigate the street abandonment, and retain lower cost visitor opportunities. •
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Hazards
The proposed land use plan generally addresses coastal hazard issues in conjunction with shoreline policies. This is appropriate because, for the most part, coastal hazard issues within Carmel are predominantly shoreline related (including preserving Carmel Beach and shoreline environs consistent with the established character and aesthetic there). The policies propose a series of analytical studies to allow the City and the Commission to better understand the interplay of natural shoreline process and how these processes have been, and will continue to be, affected by the inland urban development, including the seawalls and revetments that cover much of the Carmel's back beach shoreline. Additional policies are proposed that are designed to describe the circumstances under which shoreline armoring is allowed and how to manage the overall shoreline area. The intent of the proposed policies is to preserve and enhance the Carmel Beach shoreline area to ensure that this public access jewel remains in place and retain_s its charm for current and future generations to enjoy.

The submitted LUP generally responds to Coastal Act hazard policies, but. it isn't entirely consistent with the Act in each case. There is also a lack of clarity and some internal inconsistency within the proposed policies that could lead to confusion when the LUP is implemented in the future. Such confusion would be at the expense of the coastal resources it is designed to protect. Therefore, staff is recommending modifications designed to clarify the contextual background, the range of information necessary to adequately understand Carmel Beach shoreline dynamics, the types of armoring projects that may be allowed in the future (and the types of measures necessary to ensure that they are consistent with the character of the beach area), and the measures necessary to preserve the beach area in a hazards context.

Public Works
The proposed land use plan generally adequately describes the City's public infrastructure and offers policies for its future improvements and maintenance .

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4 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc However, the City of Carmel-by-the-Sea is in an area that basically is out of water and the proposed policies do not adequately address this situation in a manner consistent with the Coastal Act. Therefore, staff is recommending modifications to follow use priorities of the Coastal Act, ensure development applications are complete with regard to available water sources, and prohibit individual private wells or desalination facilities.

Other Issues
By and large the proposed Land Use Plan adequately addresses issues of archaeological resources, ESHA, and water quality protection. There are proposed policies for identification and preservation of archaeological sites and environmentally sensitive habitats. The City also commits to a number of actions to actively manage and improve its habitat areas. Similarly, there are proposed policies to address storm water runoff in a manner to prevent water pollution, ultimately of Carmel Bay. There are a two omissions from having a comprehensive set of water quality policies regarding limiting site coverage and meeting the 85th percentile storm event . There are also a few updates that need to be made to the ESHA discussion. Therefore, staff is recommending modifications to add to the water quality policies and update the ESHA policies.

In terms of other Coastal Act topics, they are not relevant and thus not discussed in this report. The City of Carmel-by-the-Sea lacks any agricultural land, timberlands, boating facilities, dams, coastal-dependent industries, or major energy plants.

PUBLIC PARTICIPATION SUMMARY
The noted issues and others of more local concern were debated in many public forums. The City has provided a detailed summary of public participation available for review at the Co.mmission off.ices. As described, the Land Us~ Plan is a compilation of and based on material from different documents. Many of these were subject to local hearings. The City Council, Planning Commission, and other City committees held at least a combined 140 public hearings on various aspects of the Plan.

ADDITIONAL INFORMATION
For further information on the Land Use Plan or the staff report, contact Mike Watson at (831) 427-4863. Correspondence should be sent to the Santa Cruz district office at 700 Front St., Ste. 300, Santa Cruz, CA 95060.

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 5 Staff Report Contents page
SYNOPSIS ....................... ........................................................................................................................... I I. STAFF RECOMMENDATION: MOTIONS AND RESOLUTIONS ................................................... 5 II. SUGGESTED MODIFICATIONS ........................................................................................................ 6 ill. FINDINGS AND DECLARATIONS .............................................................................................. 18 A Background: History of the Local Coastal Program ........................................................................ 18 B. Community CharacterNisual ........................................................................................................... 19

1. Character Resources ......................................................................................................................... 21

2. Historic Resources ............................................................................................................................ 30

3. Scenic Resources .............................................................................................................................. 34

4. Archaeology ..................................................................................................................................... 35 C. Public Access and Recreation .......................................................................................................... 35

1. Preferential Parking .......................................................................................................................... 42

2. Del Mar Road Abandonment ............................................................................................................ 47

3. Low-Cost Visitor-Serving Amenities ............................................................................................... 48 D. Hazards ............................................................................................................................................ 48 E. Water Resources ..................................... .......................................................................................... 53 F. Water Quality .................................................................................................................................. 58 G. Environmentally Sensitive Habitat. .................................................................................................. 64 H. California Environmental Quality Act (CEQA) .............................................................................. 67 I. STAFF RECOMMENDATION: MOTIONS AND RESOLUTIONS
Staff recommends adoption of the following resolutions:

Resolution I. (Resolution to certify the Carmel-by-the Sea Land Use Plan as submitted)
Staff recommends a NO vote on the motion below. Failure of this motion will result in denial of certification of the land use plan as submitted and adoption of the following resolution and findings. The motion passes only upon an affirmative vote of a majority of the appointed Commissioners.

Motion #1: I move that the Commission cerlify the Land Use Plan for the City of Carmel-by-the-Sea Local Coastal Program as submitted.

Resolution to Deny Certification: The Commission hereby denies certification of the Land Use Plan of the City of Carmel-by-the-Sea Local Coastal Program for the reasons discussed below and because the City of Carmel-by-the-Sea Land Use Plan fails to meet the requirements of and does not conform to the policies of Chapter 3 of the Coastal Act to the extent necessary to achieve the basic state goals specified in Section 30001.5 of the Coastal Act; is not consistent with California Coastal Commission
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applicable decisions of the Commission which shall guide the local government • in its future actions under Section 30625(c) of the Coastal Act; and does not meet the requirements of Sections 21080.5(d)(2)(i) of the California Environmental Quality Act, because there are feasible alternatives or mitigation measures available that would substantially Jessen any significant adverse impact that the Land Use Plan may have on the environment.

Resolution II. (Resolution to certify the City of Carmel-by-the-Sea Land Use Plan if modified)
Staff recommends a YES vote on the motion below. Passage of this motion will result in certification of the Land Use Plan with the suggested modifications and adoption of the following resolution and findings. The motion to certify with the suggested modifications passes only upon an affirmative vote of a majority of the appointed Commissioners.

Motion #2: I move that the Commission certify the Land Use Plan as submitted by the City of Carmel-by-the-Sea , if modified as suggested by the following modifications in this staff report.

Resolution to Certify the Land Use Plan if Modified: The Commission hereby certifies the Land Use Plan of the City of Carmel-by-the-Sea Local Coastal Program subject to the following modifications, and adopts the findings set forth • below on the grounds that, if modified as suggested below, the Land Use Plan will meet the requirements of conformance with the policies of Chapter 3 (commencing with Section 30200) of the California Coastal Act to the extent necessary to achieve the basic state goals specified in Section 30001.5 of the Coastal Act; the Land Use Plan will contain a specific access component as required by Section 30500(a) of the Coastal Act; the Land Use Plan will be consist£mt With applicable decisions of the Commission ·that shall guide local government actions pursuant to Section 30625(c); and certification of the Land Use Plan will meet the requirements of Section 210805(d)(2)(i) of the California Environmental Quality Act, as there would be no further feasible mitigation measures or feasible alternatives which could substantially lessen significant adverse impacts on the environment. The suggested modifications to the submittal are necessary to achieve the basic state goals set forth in Section 30001.5 of the Coastal Act.

The Commission finds that if the City of Carmel-by-the-Sea adopts and transmits its revisions to the Land Use Plan in conformity with the suggested modifications, then the Executive Director shall so notify the Commission.

II. SUGGESTED MODIFICATIONS
The Commission suggests that the following changes to the submitted City of Carmelby-the-Sea Land Use Plan are necessary to make the requisite findings. If the local California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 7 government accepts the suggested modifications within six months of Commission action, by formal resolution of the City Council, the Land Use Plan will become effective upon Commission concurrence with the Executive Director finding that this has been properly accomplished.

COMMUNITY CHARACTER

1. Add the following new policy to page 37. New residential development shall maintain Carmel's enduring design principles of variety, modesty, and simplicity, and shall draw from and contribute to its neighborhood by generously providing for open space and preserving the City's traditions of simple homes set amidst a forest landscape.

2. Add the following new policy to page 37. New residential development shall be similar in size, scale, and form to buildings in the immediate block and neighborhood. Minimize the mass of building as seen from the public way or adjacent properties. Require building mass of new development to relate to the context of other homes in the vicinity. Larger building masses should be divided into forms that are similar in scale to houses see in the immediate neighborhood.

3. Add the following new policy to page 37. Require preparation of a preliminary site assessment that includes assessing the block and neighborhood as well as the resource constraints of the site prior to submittal of design plans for new development or projects that will alter the building footprint. add a second story or involve excavation. A site plan shall be prepared by a qualified professional and illustrate topography, drainage features, existing trees and structures, street edge, and existing conditions on immediately adjacent properties. Require a Forest Enhancement and Maintenance Plan during the site assessment. The Plan shall address the impacts of the proposed development on the existing forest conditions of the site. Site plan designs shall recognize the constraints of the land and work within these limitations. Minimize the extent of excavation and fill on a site: new development shall follow the natural contours of the site.

4. Add the following new policy to page 37. Maintain and enhance the informal, vegetated, open space character of the City's right-of-way. Trees in the right-of-way shall not be removed to provide parking. With the exception of driveways, new paving in the right-of-way is prohibited.

5. Add the following new policy to page 37. Prohibit the removal of significant trees (i.e., greater than 12" dbh) unless it would prevent a reasonable economic use of the site or pose a threat to health and safety. Locate buildings and other site structures to avoid removal and pruning and otherwise minimize damage to existing significant trees. Avoid impacts to trees by avoiding/minimizing impacts California Coastal Commission
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8 I City of Carmel LUP submittal {CML-LUP-SUB-R3) stf rpt.doc to the root protection zone (i.e. within the drip-line). Establish continuity of landscape elements throughout each neighborhood. Replace trees removed for construction with several saplings. Require that they be nurtured until well established.

6. Add the following new policy to page 37. All demolitions, remodels, and substantial alterations shall be consistent with the following findings:
• The design uses simple/modest building forms and roof plans, and a restrained employment of offsets and appendages consistent with neighborhood character.
• Mass of the building relates to the context of other homes in the vicinity.
• The development is similar in size, scale, and fonn to buildings on the immediate block and neighborhood.
• The development does not require removal of any significant trees (> 12" dbh) unless necessary to provide a viable economic use or protect public health and safety. All development will be setback a minimum of 6 feet from significant trees.

7. Add the following new policy to page 37. Limit above grade floor area on single lots (i.e, 4,000 square feet} to a maximum of 1,600 square feet. Projects with less above grade square footage shall be preferred. Structural coverage shall not exceed 40% of the site. Total site coverage· (structural and other impervious coverage) on 4,000 square foot lots shall notexceed50% of the site. Locate open space so thatit visually links with adjacent properties.

8. Revise description of land use density for Single-Family Residential on page 29, LAST TWO SENTENCES; Above-ground building intensity in this area may not exceed 4& 40 percent floor area ratio and all development requires at least 4& 50 percent open space.--with proportionately less floor area and greater open space a-Fe required on larger lots-. greater than 4,000 square feet.

HISTORICAL PRESERVATION

9. Add the following text to page 23, END OF 1ST PARAGRAPH; The Carmel Inventory of Historic Resources shall be updated on an ongoing basis as new resources are surveyed. Properties not listed on the Inventory shall be evaluated on a case-bycase basis as the need arises (e.g., when an application is filed for demolition or alteration, etc.).

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 9 1 O. Add the following new policy to page 44. All resources previously surveyed and evaluated by the City that meet the criteria established by the City's LCP shall, as of the date of certification of the Carmel-by-the-Sea LCP, be deemed included in the Carmel Inventory of Historic Resources.

11. Revise policy P9-62 on page 44. Maintain an Historic Context Statement that documents the historic periods, themes, events, people, architects and builders who have contributed to the cultural and developmental history of the City. Use the Historic Context Statement to identify, document and understand the importance of historic resources. Exclusion from this document shall not preclude a finding of significance for any resource. The Historic Context Statement shall be updated at least every five years. Updates shall be submitted to the California Coastal Commission as LCP amendments. periodically to remain current (See Appendix F: Historic Context Statement, Carmel-by-the-Sea, 1997).

12. Revise policy P9-63 on page 45. Apply California Register of Historical Resources (California Register) criteria 1 as tho framework to identify and document all historic resources. Use the Historic Context Statement to interpret the California Register criteria in determining the significance of Carmel's historic resources.

13. Revise policy P9-64 on page 45. To qualify for listing in the Carmel Inventory, historic resources shall meet at least one of the California Register criteria, shall be representative of at least one theme included in the Historic Context Statement and shall retain substantial integrity2. Integrity (association, feeling, setting, location, design, materials and workmanship) shall be documented by comparing the existing condition of the resource with the original building plans or early photographs or other substantial evidence (e.g. literature review, architectural files, land records, Sanborn maps, etc.) and/or by physical inspection by a qualified historic preservation professional.

14. Revise policy P9-65 on page 46. To qualify for listing in the Carmel Inventory, an historic resource eligible under for the California Register under just criterion #3 only, shall be required to meet a higher standard for integrity than is required for resouroes qualifying under criteria #1, #2 or #4, and shall~ have been designed and/or constructed by an architect, design/builder or contractor whose work has contributed to 1 The California Register has four criteria for historic significance. These (1) are associated with events that have made a significant contribution to broad patterns of local or regional history or the cultural heritage of California or the United States; or (2) are associated with the lives of persons important to local, California or national history; or (3) embody the distinctive characteristics of a type, period, region, or method of construction or represents the work of a master or possesses high artistic values; or (4) has yielded, or has the potential to yield, information important to the prehistory or history of the local area, California or the nation. 2 Integrity is based on why a property is significant. Ultimately, the question of integrity is answered by whether or not the property retains the identity for which it is significant. The steps is assessing integrity are (1) defining the physical features that must be present for a property to represent its significance, (2) determining whether theses features are still visible enough to convey significance, (3) determining whether the property needs to be compared to other similar properties to understand its significance and (4) determine which aspects of integrity are vital if the property is to qualify as a resource (adapted from the National Register of Historic Resources, Bulletin #15) .

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10 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc the unique sense of time and place recognized as significant in the Historic Context Statement: (2) have been designed and/or constructed by. Tho work of a previously unrecognized architect, design/builder or contractor may be found historically significant only >.•.ihon !! there is substantial, factual evidence that the architect, designer/builder or contractor contributed to one or more of the historic contexts3 of the City to an extent consistent with other architects, design/builders or contractors identified within the Historic Context Statement; (3) be a good example of an architectural style or type of construction recognized as significant in the Historic Context Statement: or (4) display a rare style or type for which special consideration should be given. All such determinations shall be made by tho Planning Commission based on recommendations from tho Historic Preservation Board.

15. Delete policy P9-67 on page 46. Properties that fail to moot tho above established criteria for inolusion in the Carmel ln¥entory shall not be treated as historio resouroes under this section or under pro¥isions of the California En¥ironmontal Quality Act.

16. Revise policy P9-68 on page 46. Establish procedures for the Planning Commission, based on recommendations from the Historic Preservation Board, to add QI_remove historic resources from the Carmel Inventory based on substantial evidence. incorreot o¥idonco, in>1alid analysis, or loss of integrity of tho identified historic resource.

An historic resource listed on the Carmel Inventory shall be presumed historically significant and shall not be removed unless a propondoranco of tho substantial evidence demonstrates that it is not an historic resource.

17. Revise policy P9-70 on page 47. Use the Carmel Inventory to identify historic resources for purposes of required coastal development permit and California Environmental Quality Act (CEQA) review of proposed projects. Historic resources on the Carmel Inventory shall have a presumption of significance pursuant to CEQA § • 21084.1 and shalLbe treated .as.historical resources under CEQA and the Carmel LCP.

Failure to include a property on the Carmel Inventory shall not preclude a future determination that it qualifies as an historic resource based on new evidence.

18. Change policy P9-79 on page 48 to a Goal and revise as follows: Protect and enhance historic resources. Ensure that City ordinances, development review processes and administrative policies support, facilitate and coordinate with preservation activities.
3 An historic context is a body of information about historic properties organized by theme, place and time. A single historic context describes one or more important aspects of the development of an area relating to its history, architecture, archaeology and culture. A context may be based on one or a series of events, patterns of community development, or associations with the lives of a person or group of persons that influenced the destiny and character of a place or region (from National Register Bulletin #24). Currently there are five themes developed in Carmel's Historic Context Statement. They are: (1) Prehistory and Hispanic Settlement, (2) Economic Development, (3) Government, Civic and Social Institutions ( 4) Architectural Development in Carmel and (5) Development of Art and Culture.

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 11 • 19. Change policy P9-80 on page 48 to an Objective and revise as follows:
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Incorporate historic preservation principles into the City's project review processes.

Avoid and minimize potential impacts on historic resources through implementation and enforoomont of when developing and enforcing land use, design review, zoning, building code, fire code, environmental review, and other City regulations.

20. Add new policy to page 48. Review all proposed demolition and substantial alteration projects for potential historic resource impacts. Resources older than 50 years shall be evaluated for historic significance by the Historic Resources Board, pursuant to the objectives and policies contained herein and corresponding implementing ordinances. Resources less than 50 years old may be recommended for historic evaluation at the discretion of the Planning Director.

21. Revise policy P9-81 on page 48. Implement Use the Secretary of the Interior's Standards and Guidelines as the standard of review for development projects affecting historic resources. The City shall retain qualified professionals to review proposed exterior changes to historic resources to determine whether they are consistent with the Secretary of Interior's Standards and Guidelines Standards, and to make recommendations. where necessary. to the Historic Resources Board.

22. Revise policy P9-82 on page 49. Prohibit the demolition of all historic resources and prohibit changes to historic resources that are inconsistent oonfliot with the Secretary of Interior's Standards and Guidelines unless it is determined through environmental and City Council review that rehabilitation of the resource is not feasible. there are no feasible altemati'los. When completing environmental review of any project affecting an historic resource, require exploration of one or more alternative designs that would be consistent with the Secretary of the Interior's Standards and Guidelines Standards.

23. Revise policy P9-83 on page 49. Apply the Implement Design review guidelines to ensure preservation, protection, enhancement, rehabilitation, reconstruction, and perpetuation of existing structures of historic significance in a manner consistent with the character of the village. Such criteria shall include, but not be limited to, architectural design, size, scale, height, site coverage. spatial relationships, window, dormers, appurtenances, proportion and placement of improvements on the parcel, and landscaping, including planting or removal of vegetation.

24. Add new policy on page 46. Establish a Historic Preservation Board with powers and duties to administer the City's Historic Preservation Program. Establish requirements for Board members to demonstrate historic knowledge of Carmel, knowledge of history, architecture, archaeology, or past experience with preservation.

25. Add new Goal on page 50. Provide incentives for property owners to preserve and rehabilitate Historic Resources.

26. Add new policy on page 50. Pursue and support the use of appropriate federal, California Coastal Commission
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12 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc state, local, and private grants, loans, tax credits, and tax relief. Develop or assist financial, technical, and legal assistance programs to encourage or assist with rehabilitation and maintenance. Participate in the State and Federal preservation process and programs. Make application to the State for becoming a Certified Local Government (CLG), which enables the City to receive technical training.

VISUAUCOMMUNITY CHARACTER

27. Add the following new goal to page 35: The incorporated City of Carmel-bythe-Sea shall be designated a special community and a highly scenic area. New development shall protect this special community and its unique characteristics.

PREFERENTIAL PARKING

28. Revise policy P9-134 on page 68._Provide convenient and free public beach parking from 5:00 a.m. until 1 o:ao p.m. 1 :00 a.m. daily. Parking outside of these hours along Scenic Road and tho Doi Mar parking lot shall bo limited to residents and guests with a resident's parking permit.

DELMAR ROAD ABANDONMENT

29. Revise policy P9-101 on page 64. Abandonment of any segments of the Del Mar Avenue roadway shall include on-site mitigation to include provisions for public access. Mitigation shall consider installation of a lmpro~«e pedestrian oiroulation path between the north end of the Beach Bluff Pathway at Eighth Avenue and the beach facilities at Ocean Avenue and the Del Mar Avenue parking lot. as part of tho Doi Mar and North Dunes Master Plan.

VISITOR-SERVING
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30. Add the following new policy to page 10:· Lower cost visitor and recreational facilities be protected and encouraged and where feasible, provided. Developments providing public recreational opportunities are preferred.

HAZARDS

31. Add Coastal Act Section 30253(1) and (2) into the list of relevant polices in the Coastal Resource Protection Section on page 75 of the LUP:

New development shall:
{1) Minimize risks to life and property in areas of high geologic, flood, and fire hazard. (2) Assure stability and structural integrity, and neither create nor contribute significantly to erosion, geologic instability, or destruction of the site or surrounding area or in any way require the construction of protective devices that would substantially alter natural landforms along bluffs and cliffs.

32. Revise Coastal Resource Protection section background as follows:

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 13 a) Pages 76-77: "Carmel, like ... , appears to derives most of its sand ... " b) Page 77, last paragraph: "If left unmanaged, the bluffs surrounding Carmel Bay would progressively erode from the impact of winter storm waves.I. and from surface drainage, and other steady and episodic erosion processes. c) Pages 77-78: "Erosion of Carmel's bluffs is quite variable along the shoreline and IB includes both steady erosion and episodic events."
d) Pages 78, second paragraph: Change the reference to Figure 9.7a to Figure

9.6.a.

33. The "Seawalls and Retaining Walls" bullet on page 78 shall be changed as follows:
" ... Thus far, anecdotal evidence suggests that the accelerated loss of beach sand that is often associated with seawall construction does not generally appear to be occurring along Carmel Beach. This may partially be due to the unique natural sand transport process that is characteristic of the Carmel shoreline or it may partially be due to the City's annual sand redistribution that artificially moves beach sand from the lower beach to the upper beach to cover revetments and to restore access at the foot of Ocean Avenue. Recent studies, however, appear to contradict the longheld assumption that the beach is not retreating here. In fact, at least one recent study indicates that the beach has actually been decreasing in width since 1949.4 Further long-term study of beach levels is warranted to provide the best management for Carmel's beach .... "

34. Replace LUP Figure 9.6a on page 83 with SMP Figure 8, and rename it as LUP Figure 9.6a.

35. Change title and legend of LUP Figure 9.6b on page 83 to "Sand Redistribution Sites."

36. Revise Policy P9-158 on p~ge 98 as follows:

Obtain and maintain an accurate digitized map of the Carmel shoreline to develop the City's beach management and maintenance policies. Analyze historic beach trends using aerial photo analysis and other available tools. Update topographic information at least every 5 years and analyze shoreline changes to facilitate early identification of erosion hot spots, sand sediment losses/gains, migration of engineered revetments, and other long-term impacts.

37. Revise Policy P9-159 on page 98 as follows:

Place a series of permanent surveyed benchmarks inland of the bluffs running the length of Carmel Beach. The surveyed benchmarks shall be described in relation to National Geodetic Vertical Datum (NGVD) and identified through permanent 4 A recent article in the International Journal of Marine Geology reported that the beach width at Carmel Beach has narrowed noticeably in the last 40 years (C.D. Storlazzi, M.E. Field/ Marine Geology 170 (2000) 289 - 316).

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14 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc markers, benchmarks, survey position, written description, reference numbers, et cetera to allow measurements to be taken at the same location in order to compare information between years.

38. Revise Policy P9-161 on page 98 as follows:

Protect public access, Scenic Road, and the aesthetic character of the coast by maintaining existing seawalls and engineered revetments and by installing now protoctiyo structures '.Yhon 'Narrantod. When any existing seawalls or revetments need to be replaced or substantially reconstructed, review seawall and revetment design alternatives, as well as other beach management strategies and determine the best balance among objectives for access, aesthetics and protection of coastal resources (biological, geological, and recreational). Protect the natural character and features of the Del Mar Dunes by prohibiting the construction of any new shoreline protective structures unless required for public safety, access or habitat preseF¥ation. For the beach and shoreline area south of Eighth Avenue, only consider the installation of new protective structures after careful review of alternatives and when found to be warranted required for protection of existing structures and access amenities facilities from erosion risks. Mitigate the impacts of shoreline protective structures on visual quality and beach dynamics using landscaping, sand management and prudent engineering.
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39. Revise Policy P9-162 on page 99 as follows: •
Construct new shoreline armoring in areas previously unprotected only when required to protect existing structures in danger of erosion or \\1 a'le action and when
designed to eliminate or mitigate adverse impacts on local shoreline sand supply.

Require any approved structures to include native landscaping (screening), be visually compatible with existing seawall designs, address drainage, incorporate visual mitigation, sand poverage for revetments, .and golden granite facing for seawalls: ' • •

40. Add two new policies following P9-162 on page 99 as follows:

Modification of existing shoreline structures shall adhere to the same standards for establishing need, obtaining permits, as well as landscaping, visual impacts, drainage and design as new seawall projects.

Any project (including but not limited to repair, maintenance, expansion, modification, or replacement) involving the shoreline armoring structure that extends along the Carmel Beach bluff southeast from the mouth of Pescadero Creek shall require the ·facade to match City-maintained shoreline armoring structures located along the Carmel Beach bluff south of 8th Avenue.

41. Revise Policy P9-165 on page 99 as follows:

Evaluate the storm-water outfall system for purposes of reducing impacts to the beach environment. Develop plan and identifyConsidor options to modify consolidate and/or remove outfalls from the beach and replace or retrofit storm California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 15 • drains with filters or treatment devices to reduce impacts on the shoreline environment.
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42. Revise Policy P9-167 on page 99 as follows:

Prohibit any construction of substantial or permanent structures on the beach or within Carmel Bay except where required to protect existing structures in danger from erosion for public health, safety, access or maintenance. Require design review for any structure proposed and minimize conflict with the scenic and aesthetic character of the shoreline environs through such review.

43. Revise Policy P9-169 on page 100 as follows:

Prohibit the placement of loose rock on the beach except where such rock is placed as part of a revetment allowed to protect an existing structure in danger form erosion. When any part of a rock revetment migrates from an engineered structure reposition it to maintain engineering stability or remove it from the beach.

44. Revise Policy P9-170 on page 100 as follows:

Protect the flat area/tidal zone of the beach for recreational use and to the extent feasible, avoid shoreline protective structures that reduce the amount of beach area available for public recreation.

45. Add new policy following P9-170 on page 100 as follows:

Evaluate the potential to replace existing revetments with faced vertical seawalls or seawalls designed to mimic the natural bluff face, to reduce sandy beach area coverage and the need for sand bulldozing. All replacement structures must be found compatible with the area aesthetic without introducing seawalls of significant height. Where the bluffs are very high and a very tall seawall may be required, consider a series of stepped, vegetated tiers supported by walls.

46. Revise Objective 09-29 on page 100 as follows:

Explore alternatives fGf--to maintaining the sand elevation at the foot of Ocean Avenue to facilitate ensure public access and to .,........GQover with sand all exposed engineered revetments along the length of Carmel Beach.

47. Revise Policy P9-171 on page 100 as follows:

Each spring inspect the volume of sand at locations along the backshore and determine if it is appropriate and timely to reestablish the sand to a higher elevation.

The use of heavy equipment is authorized for redistributing beach sand to rebuild the dunes and cover revetments. Minimize impacts on beach encroachment and public access and protect public safety during this process.

48. Revise Policy P9-173 on page 101 as follows:

After each ten-five-year period of monitoring beach sand elevations (beginning at 2005), review all available data and make preliminary determinations regarding the California Coastal Commission
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16 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc effects of seawall structures and sand redistribution activities. If the results of the City's beach monitoring program indicate that the beach has been losing sand over timo>.¥arranted, investigate options for beach nourishment using offshore deposits or other sources that match Carmel Beach sand to replenish the beach and protect its width. The beach nourishment program shall at a minimum: 1) identify potential sources of beach quality sand; 2) include testing and screening for determining the acceptable quality and quantity of beach material; 3) identify placement locations; 4) establish placement methods and any restrictions on work timing or methods.

49. Revise Policy P9-174 on page 101 as follows:

Maintain Carmel Beach as a public recreational resource. If the results of the City's beach monitoring program conclude indicate that the beach has been losing sand over time, develop, implement, and then further monitor and evaluate a beach nourishment program to maintain or increase the available volume of sand.

50. Revise Policy P9-176 on page 101as follows:

Where unavoidable, Mitigate or minimize and mitigate all impacts to both marine and terrestrial resources when performing sand redistribution.

51. Delete Appendix B, the Shoreline Management Plan, from LUP.

52. Add new heading and policy on page 97 as follows:

Hazards Prevention
New development shall minimize risks to life and property, assure stability and structural integrity over the life of the development, and neither create nor contribute significantly to erosion, geologic instability, or destruction of the site or surrounding area . ..

WATER POLICIES

53. Delete policy P9-36 on page 38: Maintain priorities for 1 .Yater allocations based on
the General Plan,lCoastal Plan. Gi1.<e highest consideration to residential uses, including residential lots of records, and to Municipal projects that servo tho broader community over other types of uses in tho e¥ent water supplies are too limited to serve all forms of potential development.

54. Replace policy P9-36 with new policy on page 40: Available water shall remain allocated to existing priority uses, including coastal dependent uses, essential public services and basic industries vital to the economic health of the region, state, or nation, public recreation, commercial recreation, and visitor-serving land uses.

55. Revise policy P9-43: Establish priorities for ongoing water use in the event that further reduction of water consumption is required (e.g. during droughts or Stateordered cutbacks). Gii.«o highest priority to residential uses and ossential services.

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56. Delete policy P9-42: Analyze the potential net inoroaso in water demand that may be generated by any proposed ohango and/or intonsifioation in land use. Prohibit tho approval of any dovolopmont application if •Nater for tho proposed typo of project is unavailable within the allocation.

57. Add new policy on page 41: Applications for new development shall demonstrate an adequate public (i.e., publicly-managed) water supply (e.g., the Cal-Am/ MPWMD system) to support the proposed development. Private water supplies are prohibited to serve existing and new development.

Applications for new development shall not be filed without a City determination that (1) no new water is required to serve the new development; or (2) there is unallocated water available in the City's allocation from the Monterey Peninsula Water Management District to support the new development. This determfnation shall include an evaluation of the proposed development's water demand, based on MPWMD's water unit value system. All water transfers and corresponding retirements, if any, shall be described and agreed to prior to any City determination.

Prior to the commencement of construction of new development, evidence of water service, in the form of a water use permit from the Monterey Peninsula Water Management District, shall be provided to the City Planning Department.

58. Add new policy on page 41: Public desalination facilities may be permitted provided that its capacity does not exceed demand for additional water (or replacement water, where the source of the water replaced will no longer be used) based on planned build-out and MPWMD's water use formulas and all adverse environmental impacts are fully mitigated.

59. Revise policy P9-40 on page 41;_Use appropriate vegetation for all public right-ofways. Require drought-tolerant plants for at least 75% of the commercial and residential landscaping n each development site. Encourage Require the use of native plants in all landscapes plans for new development.

WATER QUALITY

60. Revise Policy P9-348 on page 125. Provide development guidelines and permit conditions which: Limit impervious surfaces and the connection of multiple impervious surfaces; implement simple infiltration techniques throughout drainage areas to efficiently manage storm water; infiltrate runoff into the soil, retain runoff for slower release and convey runoff slowly through vegetation; employ treatment controls to capture and treat the polluted runoff before it enters the city's storm drain system or receiving waters; design structural BMPs to meet the 85th percentile storm event and assure m-compliance with the NPDES Phase II permit.

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61. Revise Policy P9-356 on page 126. Post-construction structural BMP's should be designed to treat, infiltrate, Gf and filter the amount of stormwater runoff produced by all storms up to and including the 85th percentile, 24-hour storm event for volume-based BMP's and/or the 85th percentile 1-hour storm event for flow-based BMP's. per the requirements of tho City's NPDES poFITlit
ESHA

62. Revise cited policies P9-218 , P9-220 in Appendix D Forest Management Plan to be consistent with policy P9-218 in the Coastal Resources chapter as follows:

P9-218 Permit the Forest, Parks and Beaoh Director City Forester to act on requests for the removal and pruning of all trees growing on public and private property.

P9-220 Permit the Forest, Parks and Boaoh Director City Forester to apply special procedures for tree removal and pruning during emergencies.

63. Add a note to the Table of Contents of Appendix D: Forest Management Plan:

A. Municipal Code:
*: Note these citations to the Municipal Code are illustrative of the Code in effect prior to certification of the Coastal Implementation Plan by the Coastal Commission. Please consult the certified portions of the Municipal Code for the current regulations. 111. FINDINGS AND DECLARATIONS
The Commission finds and declares as follows:

A. Background: Hfsfory of the Local Coastal Program .

The City of Carmel-by-the-Sea is located on the Monterey Peninsula and is entirely within the Coastal Zone. It is relatively small (1 square mile approximately) and has a population of roughly 4,500. The City fronts on Carmel Bay and has a world-renown white sandy beach running along its entire, approximate one and one-half mile length.

The City also has a unique community character that is described in detail in the next finding.

Carmel first commenced work on its local coastal program in 1978. The first land use plan was submitted in early 1980 and denied by the Regional Coastal Commission on April 14, 1980. The City Council revised the Land Use Plan and resubmitted it on • November 26, 1980 with amendments on January 5 and February 2, 1981. The Coastal Commission certified the LUP as submitted in part and denied then certified with suggested modifications in part (private Beachfront area), on April 1, 1981. Again, the City chose not to accept the modifications and to resubmit a new Land Use Plan. This California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 19 second resubmitted plan was denied and certified with suggested modifications regarding demolitions and historic buildings on April 27, 1984. The City did not accept the suggested modifications. There was a hiatus in work on the local coastal program until 1988 when a new draft was only partially completed, then sidetracked. In the 1990s several documents were prepared on specific topics that have been incorporated as Land Use Plan appendices. Work on the text of the three Land Use Plan chapters recommenced in earnest in 2000, in part funded by a Coastal Commission grant.

These three chapters are based largely on the City's General Plan, which had been amend over the years. The resulting third re-submittal, consisting of an introduction, the three chapters, and six appendices, is quite different from its early 1980 predecessors.

The document was delivered to the Coastal Commission on December 20, 2001, but could not be filed because not all of the required supporting information was received.

In the intervening period City and Commission staff have worked closely on modifications to the City submittal. On November 12, 2002 the City Council amended its submittal to incorporate numerous mutually-agreeable modifications. This amended land use plan re-submittal was filed on November 15, 2002. The City has also resubmitted a Coastal Implementation Plan that has not yet been filed.

The standard of review of the land use plan is Chapter 3 policies of the California Coastal Act. The following findings briefly describe the re-submittal in terms of its conformance to Coastal Act policy groups and then support the suggested recommendations.

B. Community Character/Visual
Coastal Act Provisions
One of the primary objectives of the Coastal Act is the protection of scenic and visual resources, particularly as viewed from public places. Section 30251 requires that development be sited and designed to protect views to and along the ocean and other scenic coastal areas. New development must minimize the alteration of natural landforms. This policy also requires that development is sited and designed to be visually compatible with the character of surrounding areas. Where feasible, development shall include measures to restore and enhance visual quality in visually degraded areas.

Another objective is to protect the character of special communities. Section 30253(5) requires that development protect special communities which because of their unique character are popular visitor destinations for recreational uses.

Coastal Act Policies:

Section 30251 of the Coastal Act states:

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20 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc The scenic and visual qualities of coastal areas shall be considered and protected as a resource of public importance. Permitted development shall be sited and designed to protect views to and along the ocean and scenic coastal areas, to minimize the alteration of natural land forms, to be visually compatible with the character of surrounding areas, and, where feasible, to restore and enhance visual quality in visually degraded areas. New development in highly scenic areas such as those designated in the California Coastline Preservation and Recreation Plan prepared by the Department of Parks and Recreation and by local government shall be subordinate to the character of its setting.

Section 30253 of the Coastal Act states:

New development sha/1 ... (5) Where appropriate, protect special communities and neighborhoods which, because of their unique characteristics, are popular visitor destination points for recreational uses.

Section 30244 of the Coastal Act states:

Where development would adversely impact archaeological or paleontological resources as identified by the State Historic Preservation Officer, reasonable mitigation measures shall be required.

Introduction/Background
It is often stated that Carmel, along with such other distinct communities as the town of Mendocino, is one of the special communities for which Coastal Act section 30253(5) was written. Carmel is a very popular visitor destination, known as much for the style, scale; and rich histo,ry ot its residential,-·commerciali and civic architecture, as for its renowned shopping area, forest : carfopy ·and white sand beach. As a primarily residential community, the web of residential development in Carmel plays a key role in defining the special character of the City, as various architectural styles reflect the historical influences that have existed over time. Carmel is distinctly recognized for its many small, well-crafted cottages, informal streetscapes, and forested landscape.

These modest, sometimes quaint residences are associated with the era in which Carmel was known for its resident artists and writers, and functioned as a retreat for university professors and other notables. Homes were nestled into the native Monterey pine/Coast live oak forest, on a grid of streets that yielded to trees more than to engineering expediency.

Early development was greatly influenced by the Arts and Crafts movement, which stressed the use of simple designs and natural materials-quite unlike the extravagantly detailed architecture of the earlier Victorian period. Several European Revival styles became popular in the 1920's and 1930's. The introduction of more modern styles followed post-WWII. Many of Carmel-by-the-Sea's small cottages exhibit California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 21 fine craftsmanship as seen in the varied architecture of Carmel. Local builders embellished their work with detailing and individual style creating a unique and appealing building design. Underlying this architectural diversity, are environmental influences (i.e., trees, topography, exposure to sunlight) and patterns of scale and form that consistently reappear to establish Carmel's character.

Historically, most buildings in Carmel had simple forms and were relatively small in scale in relation to the size of their lots and natural surroundings. As reported in the City's Design Traditions project and confirmed in the Commission's analysis of coastal development permit data, homes were small, one to one and one-half stories, averaging approximately 800 square feet to 1,500 square feet. Constructed primarily of wood, most had siding of shingle, vertical board and batten or horizontal clapboard.

Roofs were gabled and covered in shingles. Many could be considered vernacular rustic cabins, while others exhibit stylistic influences of the Craftsman movement. The established character of Carmel can be described by the following:

Architecture Variety of Craftsman-styled cottages.

Size Smaller structures averaging approximately 1,200 sq ft on 4,000 sq ft lots .

Scale Small in relation to lot size and natural environment.

Height Single-story cottages often less than 18 feet.

Setbacks Generous setbacks often exceeding minimum allowance.

Sensitivity Small cottages often well screened from streetscape.

Streetscape Informal meandering roads, unimproved rights-of-way often supporting trees and other vegetation.

Natural Environment Monterey pine and Coast live oak dominated forest.

Land Use Primarily residential with a strong commercial core, several public parks including 22 acre white
recreational blufftop path.

This is the context for Carmel's community life and its built character.

1. Character Resources
Consistency with the Coastal Act
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22 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc There are several components that together make up Carmel's community character, including the assortment of small eclectic cottages built in the early 20th century. This aspect of community character can be further broken into two related types of resources: Character Resources and Historic Resources. Character Resources are homes that do not meet National or State Register criteria for historic resources, but nonetheless embody attributes identified in Carmel's Design Traditions project as strongly contributing to the City's established character. It is the cumulative loss of these "character resources" that is contributing to the overall sense of loss of Carmel's community character. The issue has come to the forefront of Commission concern in recent years because: 1) the special character of this residential coastal community is considered a unique asset of statewide and national significance, and 2) the volume of requests for coastal development permits which affect community character is substantial. This issue was also identified in local public workshops as one of the primary concerns affecting the community at this time. As a result, the City dedicated the first chapter of the LUP to addressing the issue of community character and its many components.

Much of _the background text in the submitted LUP document (pp. 7 -13) is dedicated to describing the natural setting, subdivision patterns, layout of public roads, arrival of Bohemians, and early architectural influences. It generally describes the turn-of-thecentury cottages as simple, modest homes set amidst a forest landscape. Recognizing that some amount of development or re-development of these small cottages will be necessary, the LUP maps a two-prong strategy for dealing with historic resources and structures that are not historic (i.e., character resources). Character resources will be handled through a process of conservation, that allows for new development and/or redevelopment as long as it is consistent with the established character of the neighborhood. On page 22 of the Land Use Plan it states:
• The City implements conservation of its character through its Design Guidelines for the residential district, the commercial district, and for the public way. The overall character of the City can be conserved through appropriate polices related to the urbanized forest, roadway design and building design.

The policies, goals, and objectives, directing development, and re-development of Carmel's aging stock of residential homes are stated on pages 35-38 of the resubmitted Land Use Plan. The submitted LUP provides an adequate amount of policies protecting the existing land use and subdivision patterns in the residential and commercial districts. The first 12 policies are dedicated to maintaining the status quo in this area. The next 1 O policies fall under the heading of Residential Development and mostly establish a process for evaluating development. However, there is very little policy devoted to specifically identifying and protecting community character. Thus, as submitted, the City's LUP policies do not adequately identify the elements of character or provide enough specificity to protect the residential character of this special community. Specificity is important precisely because of the many factors that intertwine to define community character. Objectives and design principles that are also California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 23 well articulated will provide the necessary context to both the development community and the Coastal Commission that new development is protecting community character.

During the course of developing its Design Guidelines, the City's Design Traditions Project identified all of the elements of the established character in Carmel. Suggested recommendations and policies were developed to preserve and maintain those qualities. Many of those recommendations, though, did not carryover into LUP policies and/or current zoning standards. The LUP states that its conservation efforts are implemented through the [Residential] Design Guidelines. However, to be effective, it is important that clear guidelines be in the LUP. In the past several years, the Commission has reviewed numerous residential demolitions and rebuild proposals that illustrate the cumulative changes occurring in Carmel. In general these include:
1) Small cottages, usually 1 ,200 square feet or less, are being supplanted by 1,800 square foot homes, the maximum allowed by current zoning standards. 2) One-story structures are often replaced with two-story structures. 3) Mass, site coverage, and height are increasing substantially. 4) Open space, setbacks, and forest resources are decreasing.

The City has developed a strong set of Residential Design Guidelines that capture the important aspects of Carmel's character. The conservation of character resources could be achieved if the City's Design Guidelines were made to more meaningfully thus apply.

One way to achieve this is to capture the essence of the policies and recommendations taken from the Guidelines and place them into the Land Use Plan. The City's Residential Design Guidelines more specifically address the treatment of size, massing, coverage, open space, streetscapes, and the forest landscape than the City's LUP submittal, Primary consideration is given to compatibility with the design traqitions of Carmel, maintaining the urban forest character, promoting buildings that are in scale with that context, while encouraging diversity in design. The Commission recommends that the LUP be modified to incorporate various Design Guidelines, while still allowing for discretion by planners in building design.

Other aspects of character not addressed by the re-submitted LUP are the standards for floor area ratio and site coverage. The increase in floor area allowed by the City's current zoning standards has slowly been eroding the small scale aspect of character, as the City's older housing and commercial stock is demolished to make way for new, usually larger in size and scale, developments. According to the Commission's permit tracking database, approximately 170 projects involving demolition have received coastal development permit authorization in Carmel since 1973. Of those, 23 CDP's were issued before 1990. Since 1990, roughly 13 residentially related demolition project applications per year have been received; nearly all of these have been approved.

Other than the three-year period from 1992 - 1994 when a total of 13 applications were received, the number of development proposals in Carmel had been rising fairly steadily California Coastal Commission
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24 I City of Carmel LOP submittal (CML-LUP-SUB-R3) stf rpt.doc until 2000. However, in the year 2000 alone, the Commission received 44 applications; a full quarter of all applications received by the Commission for development in Carmel in the last decade. Of these 44 applications received in the year 2000, 33 of these involved some form of demolition, rebuilding and/or substantial alteration of residential structures. In 2001, 24 applications were received; 16 of these involved residential demolitions/alterations. Thus far in 2002, 17 applications have been received; 12 of these involve residential demolitions/alterations. Clearly the trend for demolition/rebuild/substantial remodel has been magnified in current years as demand for Carmel properties has outstripped the limited supply represented by the approximately 3,200 parcels within the boundaries of this small town. As this trend has continued, it has become increasingly difficult to conclude that the demolition of residential structures is not significantly changing the unique character of Carmel.

Staff recently evaluated a sample of these projects (40 projects), which revealed that the average size of the small cottages to be demolished was approximately 1, 180 square feet, whereas the replacement structures approved were just under 1,740 square feet on average -a 47% increase in size (See Figure 1 ). Staff also found from the sample that nearly 60% of the residential demolition and rebuilds involved the replacement of a one-story structure with a two-story structure. This data analysis is consistent with the results of the City of Carmel's own Design Traditions project released in October 1997. That project evaluated the recent development trends in the City from January 1990 to May 1997 and found that 1 , 192 building permits were issued for development in the residential district during that time. This represents roughly 180 permits per year. Of those 1,192 building permits issued, only 242 (20%) received design review; 950 did not. The report did not specifically break down by type of development the 950 building permits issued without the benefit of design review, however it did note that the permits were issued for alterations, repairs, and remodels.

Of those receiving design review, 128 involved substantial alterations, 49 involved demolitions with a single replacement home, 14 -involved demolition with two or _ rnore replacement homes,· and 39 involved new· construction on vacant lots. The vast majority of those projects other than substantial alteration were tor new two-story homes. 88% or 90 out of 102 new homes were two-story. The Design Traditions project also found that the established pattern of development was of larger homes on larger lots and smaller homes on small lots. Historically, given the common sized 4,000 square foot parcel, on average houses ranged in size between 800 and 1,500 square feet.

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 25 • Figure 1. Carmel, Changes in House Size
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Average House Size (Square Feet)
Existing to be Demolished vs Proposed New SFD
<= 1800 sq. ft. (N=40)
2000 F="""""'§fi~~~e;=======;:======7
1800
1600
1400 ._ ________ ...,....,. __ __
1200
1000
800
600
400
200
0 .....,__.:;;...____,;:.So,, ____ ==--....;______:::--=:.:::,ia. .............. __ ._ ___ ........___.

Existing Proposed
Since mid-1997, the City has continued to experience unprecedented development activity during one of the most prolific economic expansions in modern times. Staff evaluated building permits issued by the City during one 18 month period at the height of the boom (i.e., 9/2000 - 2/2002) and discovered that more than 80 substantial alterations and remodel permits were issued; 55 of those involved development in excess of $50,000. Though not technically considered demolitions (according to the City's current definition), these types of construction activities have significantly altered the character of existing structures and neighborhoods, but have been excluded from the coastal development permit review process. Please see Figure 2.

Figure 2 illustrates the scope and magnitude of the development activity occurring in Carmel. Of the approximately 170 demolition permits issued by the Commission, only 128 are represented on the figure. Additionally, as noted above, the data from the City building permits monthly reports are from one 18-month period .

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26 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc Figure 2: Development Activity: 1974 - 2001
Development Activity: 197 4 - 2001
Carmel by the Sea, Monterey County
illlr'0 ii',,·.
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. • •.•·•· .. ·.·1···•i ·1·••1}.
4 1111;~1111.11• ..' .· -. · rn~m rn~~m~
•. lllillll!~ill1i
• • • • ·. 1111111111:.i >;:; • •
-~~~1~002 "' t8~/.: ~,\ • I: ,. • I). ·Demolitions: •· • , , - • '.' : , ' _i N - 1974 - 2001 • · :, \ > < -:, · .. : ' 500 O 500 Parcels · ... - : : ,.:~ ,:_-_ -~ • - , source: Coastal Commission Permit Traclil,11g 5-ystem; , < .. Feet Carmel by the Se!f Su/Id Ing Permit Monthly Reports -... • • California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 27 This information shows that a significant number of smaller cottages have been demolished or altered or remodeled in a relatively short period of time. Furthermore, the replacement homes and substantial remodels are resulting in larger floor area, mass, and site coverage. The streetscapes and spatial relationships are changing, the forest prominence as a defining character element is declining, open space is disappearing, and more traditional architectural styles are being supplanted by modern eclecticism.

There are also as yet unmeasured impacts on the watershed functions of the forest including absorption and conveyance of storm water and filtration of pollutants.

Considering the trend of demolition, substantial alteration, and remodel over the past 10 years, it is becoming evident that this development activity is having a significant cumulative adverse impact on the unique character of Carmel and the LUP, as submitted, does not adequately address this trend. As such, it is inconsistent with section 30253 of the Coastal Act.

Modifications
As discussed above, policies addressing the treatment of size, mass, coverage, open space, streetscapes and the forest landscape are critical to maintaining and preserving community character in Carmel. The re-submitted land use plan policies does not fully encapsulate each of these character elements nor is it specific enough to ensure that they would be preserved. Thus, the Commission recommends the following modifications, adapted from the City's Design Guidelines be incorporated into the submitted Land Use Plan:

Modification 1 New residential development shall maintain Carmel's enduring design principles of variety, modesty, and simplicity, and shall draw from and contribute to its neighborhood by generously providing for open space and preserving the City's traditions of simple home$ set amidst a forest landscape.

Modification 2 New residential development shall be similar in size, scale, and form to buildings in the immediate block and neighborhood. Minimize the mass of building as seen from the public way or adjacent properties. Require building mass of new development to relate to the context of other homes in the vicinity.

Larger building masses should be divided into forms that are similar in scale to houses see in the immediate neighborhood.

Modification 3 Require preparation of a preliminary site assessment that includes assessing the block and neighborhood as well as the resource constraints of the site prior to submittal of design plans for new development or projects that will alter the building footprint, add a second story or involve excavation. A site plan shall be prepared by a qualified professional and illustrate topography, drainage features, existing trees and structures, street edge, and existing conditions on immediately adjacent properties. Require a Forest Enhancement and Maintenance Plan during the site assessment. The Plan shall address the impacts of the proposed development on the existing forest California Coastal Commission
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28 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc conditions of the site. Site plan designs shall recognize the constraints of the land and work within these limitations. Minimize the extent of excavation and fill on a site; new development shall follow the natural contours of the site.

Modification 4 Maintain and enhance the informal, vegetated, open space , character of the City's right-of-way. Trees in the right-of-way shall not be removed to provide parking. With the exception of driveways, new paving in the right-of-way is prohibited.

Modification 5 Prohibit the removal of significant trees (i.e., greater than 12" dbh) unless it would prevent a reasonable economic use of the site or pose a threat to health and safety. Locate buildings and other site structures to avoid removal and pruning and otherwise minimize damage to existing significant trees. Avoid impacts to trees by avoiding/minimizing impacts to the root protection zone (i.e, within the drip-line). Establish continuity of landscape elements throughout each neighborhood. Replace trees removed for construction with several saplings. Require that they be nurtured until well established.

In order to effectively implement the Design Guideline standards, the Commission is recommending that all approved projects meet the following standard:
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Modification 6 All demolitions, remodels, and substantial alterations shall be • consistent with the following findings:
• The design uses simple/modest building forms and roof plans, and a restrained employment of offsets and appendages consistent with neighborhood character.
• Mass of the building relates to the contsxt of other homes in the vicinity.
• The development is similar in size, scale, and form to buildings on the immediate block and neighborhood.
• The development does not require removal of any significant trees (> 12" dbh) unless necessary to provide a viable economic use or protect public health and safety. All development will be setback a minimum of 6 feet from significant trees.
• The development will not lead to an increase in water use.

Additionally, in an earlier section of this report, it was demonstrated that the current zoning standards for floor area ratio and site coverage were contributing to the erosion of community character through the approval of larger homes relative to the established • California Coastal Commission
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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc . I 29 size and scale of Carmel's small cottages. The current standards allow 1,800 square feet of floor area on single 4,000 square foot lots. This is roughly 50% greater in size than the average existing cottage and has resulted in adverse effects on site coverage, setbacks, massing, and the urban forest. Site coverage for a single-story residence including patios, driveways, and walks could exceed 60% of a 4,000 square foot lot. At this size, homes no longer are subordinate to the natural environment but rather they become the dominant feature of the site, often overriding other features such as trees and topography.

To remedy this, the Commission is recommending that the above grade floor area ratio be reduced to 1,600 square feet on 4,000 square foot lots and structural coverage limited to 40% of the site. Other site coverage (i.e., non-structural) would remain at 10% for a 4,000 square foot lot. This allows for a reasonable amount of re-development without significant adverse impacts. The proposed above-grade FAR is roughly onethird greater than the average established size of existing cottages and represents about an 11 % reduction in the current floor area standard. Limiting above-grade floor area will increase the amount of open space on these small lots by 200 square feet, providing extra room for trees and other vegetation while avoiding the extra mass associated with the larger home. There will be fewer impacts to the streetscape and less pressure on adjacent small cottages to re-develop. New homes could, of course, be greater than 1,600 square feet with the inclusion of some basement floor area, though this would be allowed only if the proposed design met all the other criteria identified in the LUP (e.g., preservation of trees, etc). There is also a precedent for limiting floor area to 1,600 square feet. Categorical Exclusion Order E-77-13 under which the City currently operates, excludes from the permit requirements of the Coastal Act construction of residential homes in Carmel 1,600 square feet or less. The Commission found at the time of the adoption of the order that development of singlefamily residents 1,600 square feet or less would not result in any significant adverse impacts. Overall, to achieve consistency with section 30253, ·· the Commission recommends the following modification to the City's submitted LUP document:

Modification 7 Limit above grade floor area on single lots (i.e, 4,000 square feet) to a maximum of 1,600 square feet. Projects with less above grade square footage shall be preferred. Structural coverage shall not exceed 40% of the site.

Total site coverage (structural and other impervious coverage) on 4,000 square foot lots shall not exceed 50% of the site. Locate open space so that it visually links with adjacent properties.

Thus, with the above required modifications, the Commission finds that the LUP Community Character policies are consistent with section 30253 of the Coastal Act.

California Coastal Commission
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30 I City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc

2. Historic Resources
Background
Central to the issue of protection of community character in Carmel is the treatment of historical resources. A large part of the community character debate has centered on the loss of potentially historical homes via demolition and redevelopment. Historical resources, like the character cottages described above, embody the attributes and design traditions recognized in the City's Design Traditions Project as providing "character'' to the community. However, historical resources are further distinguished from their character resource counterparts for their contribution to the broad patterns of local history. In California, criteria established in the California Register of Historic Resources typically are used to determine historical significance. The criteria for historical significance ranges from architecturally significant historic buildings, to representing the work of a master builder, or to being associated with important persons or events in Carmel's history. It also includes street features, landscaping, and both prehistoric and historic archaeological resources. The City has identified and adopted a Historic Context Statement (See Appendix F) that provides additional context for establishing historic significance under local criteria.

Historic preservation is a growing concern nationwide as redevelopment of our aging cities and towns intensifies. In Carmel, a rapid escalation in the value of property has led to an unprecedented amount of acquisitions of existing small cottages and requests for permits to demolish and redevelop the lots with larger modern homes. This has triggered a vociferous response by members of the community to convince the City to- • establish and implement a historic preservation program to protect historic resources from being demolished and guide future redevelopment of non-historic resources in · a manner that is consistent with the established character of the community. In large part, this single issue is driving the City's most recent effort at LCP certification. The City of Carmel has responded by submitting a program for preserving historic resources. The policies implementing this program are presented on pages 44 - 49 of the resubmitted Land Use Plan.

Carmel LUP as Submitted
The City's amended LUP submittal includes a variety of important policies to promote the identification and preservation of historic resources. This includes establishing procedures for identifying historic resources, updating the City's Historic Context Statement, educating the public about historic preservation, applying the Secretary of Interior Standards and Guidelines to proposed modifications of historic resources, ensuring rehabilitation of historic resources is consistent with the character of the City and so forth.

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City of Carmel LUP submittal (CML-LUP-SUB-R3) stf rpt.doc I 31 Coastal Act Consistency
The Commission recognizes that the loss of the City's historic cottages has the potential to adversely impact community character and thus the recreational opportunities represented by them. Coastal Act section 30253(5) requires that special communities such as Carmel be protected against the erosion of its character through policies that guide development and redevelopment in a manner consistent with the established character of the village.

In particular, demolition and/or substantial alteration of existing historic homes and cottages result in the loss of the unique character, which they individually represent and which cumulatively, form an important part of Carmel's character. Once a house has been modified, its character is forever changed -replaced by something that may or may not be consistent with the established character of the block, neighborhood, or City. As discussed in the Character Resources section above, the volume of requests for demolitions in recent years has increased substantially, leading to concerns that the character of the community may be slipping away.

As briefly summarized above, Carmel's resubmitted LUP contains a comprehensive set of historic resource policies design to promote the identification and preservation of historic resources including buildings, structures, objects, sites, districts, and archaeological resources (discussed in section 4 below). The primary objectives of the historic preservation element (policies) are:
• Identify and preserve historic resources;
• Incorporate historic preservation principles into the City's design review process
Although, the policies in the resubmitted LUP provide an initial framework for establishing a historic preservation program, they do not adequately achieve the objectives identified above consistent with 30253 of the Coastal Act. Modifications necessary to bring the historic resources element into conformity with 30253 are discussed below.

Modifications
As discussed above, identification and preservation of historic resources is critical to maintaining and protecting community character in Carmel. The City has submitted a historic preservation element that provides general guidance but it is inadequate to carry out the specific requirements of the historic preservation program.

Specifically, the City's submittal is silent on the creation of a Historic Preservation Board that performs the ministerial functions of the historic preservation program. Though California Coastal Commission
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32 I City of Carmel LOP submittal (CML-LUP-SUB-R3) stf rpt.doc there is reference to the Board in the policies (and the submitted IP contains some detail on the HPB), there is no policy requiring its creation or establishing qualifications for its members. Modification 24 requires the establishment of the Historical Preservation Board. This is important to acknowledge and provide for the heightened review of historic resource issues (Modification 21) by a specialized review body.

Over the course of the past twenty years, a number of historic resource surveys have been prepared and resulted in the compilation of an inventory of potential historic resources. These "lists" have been used by the City of Carmel from time to time to assist planners and city officials in making decisions. These inventories were created by registered Architectural Historians, which evaluated the structures for local historic resource significance. Although, there is still some debate as to the validity and current status of the inventories, they do provide additional context for the City and newly created Historic Resources Board in determining historical significance. Modification 1 O requires that all resources previous surveyed and evaluated that meet the criteria for historical significance be incorporated/consolidated with the newly created Carmel Inventory of Historic Resources.

The resubmitted LUP requires that the City's Historic Context Statement be updated periodically. The vintage Statement was developed in 1997. Since that time, at least one partial reconnaissance survey of the City has been performed potentially identifying •
additional context for Carmel's established character. Modification 11 requires that the • Context Statement be updated every 5 years to keep pace with changes and to assure that those updates are submitted as LCP amendments.

P9-64 of the resubmitted LUP established the procedures for determining the Integrity of a potential historic resource and includes employing the original building plans or early photographs. There are other materials available to assist in the determination of Integrity including literature. reviews, architectural files, l~nd records, Sanborn maps, etc. Modification 13 ··broadens the scope .• of materials . to used in making this determination. Additionally, modification 13 clarifies that a physical inspection be conducted by a qualified historic preservation professional.

To qualify as a historical resource under criteria 3 of the California Register of Historic Resources, a structure must "embody the distinctive characteristics of a type, period, region, or method of construction or represents the work of a master or possesses high artistic values." P9-65, as submitted, places additional restrictions on meeting these criteria. In the field of Historic Preservation the criteria for determining the significance of a resource are based in such factors as association with historical events, association with significant persons, embodiment of distinctive types, historic periods, and methods of construction, etc. The California Register, which is managed by the State Office of Historic Preservation, has encapsulated these into four criteria for historic significance: resources that (1) are associated with events that have made a significant contribution to broad patterns of local or regional history or the cultural heritage of California or the United States; or (2) are associated with the lives of California Coastal Commission
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