Title
Receive a preliminary response to Board Referral Number 2026.17 (Daniels) assessing the feasibility of establishing a “No Parking” zone south of the Point Lobos State Natural Reserve entrance in areas with limited shoulder space to enhance traffic safety and to collaborate with state partners on options for repairing the pedestrian bridge.
Body
It is recommended that the Board of Supervisors:
a. Receive a preliminary analysis report in response to Board Referral No. 2026.17 and:
b. Direct staff to proceed with completion of its response to the referral based on the proposed project description in this report; or,
c. Direct that staff:
i. Proceed with completion of its response to the referral based on modifications by the Board; or,
ii. Return to Board with a more comprehensive analysis of the referral and anticipated effort for completion.
d. Rescind the referral.
e. Provide further direction, as appropriate.
PRELIMINARY ANALYSIS:
Background:
On August 11, 2026, the Board added Supervisor Daniels’ Referral No. 2026.17 requesting staff to assess the feasibility of establishing a “No Parking” zone south of the Point Lobos State Natural Reserve entrance in areas with limited shoulder space to enhance traffic safety and to collaborate with state partners on options for repairing the pedestrian bridge. (Attachment A).
On January 29, 2019, the Board adopted Ordinance No. 5307 amending Section 12.28.010 of the Monterey County Code to prohibit parking at all times on the east side of State Highway 1 from the centerline of the Point Lobos State Park entrance northerly for a distance of 1800 feet and from the centerline of the Point Lobos State Park entrance southerly for a distance of 1800 feet, in the unincorporated area of Monterey County. The Board desired to limit this parking prohibition to an initial two-year trial period to assess effects of limiting parking and to see what provisions may be in place from broader planning efforts of parking for state and regional parks. Ordinance No. 5307 provided that the parking prohibition would automatically terminate two years after becoming operative unless a new ordinance is adopted.
In March 2019, Caltrans issued an order prohibiting parking on a state facility, consistent with Ordinance No. 5307. On April 8, 2019, Caltrans issued an encroachment permit to the County for the installation of No Parking signs along said section of State Highway 1.
On May 30, 2019, under PLN190123, Zoning Administrator Resolution No. 19-015, the County of Monterey Zoning Administrator adopted findings that the installation of the signs qualifies as a Class 1 Categorical exemption pursuant to Section 15301 of the CEQA guidelines, and approved a Combined Development Permit consisting of a coastal development permit and design approval to allow the installation of said signage. The installation was complete and approved on May 30, 2019, at which time the parking restriction became operative.
On May 25, 2021, the Board of Supervisors introduced, waived the first reading, and set June 8, 2021 as the date to consider adoption of the proposed ordinance to continue prohibiting parking at all times on the east side of State Highway 1 in the area of Point Lobos State Park. At that Board meeting, the County received a letter from the California Coastal Commission (CCC) staff expressing support for measures needed to address public safety issues; however, they also expressed concerns about displacement of public parking and adverse impact to public access, and requested that the ordinance be revised to extend the restriction more temporarily by one year. Because of public safety benefits, staff did not recommend an ordinance had with a termination date on the restriction. A review by County staff of collision data in this area indicated that since the inception of the parking restriction, there were no collisions reported involving pedestrians, which demonstrated the success of the two-year parking restriction with no reported adverse effects to Point Lobos Reserve attendance. Therefore, staff felt that a continued and permanent parking restriction would further promote safety in the area. Many community members and public safety providers supported the permanent parking restriction.
At the May 25, 2021 Board meeting, CCC staff also mentioned the need for a review of the County’s Local Coastal Program (LCP), and public access and recreational policies of the Coastal Act, and the need for the County to obtain a coastal development permit. County staff previously reviewed the County’s LCP and zoning code, and presented their findings at the May 30, 2019 public hearing of the Zoning Administrator (ZA). The ZA approved the Combined Development Permit, Resolution No. 19-015, consisting of a coastal development permit and design approval for traffic control signage with no termination date. No additional signage or change in signage was needed to change the restriction from temporary to permanent. The temporary parking prohibition had not affected Reserve attendance. Therefore, it was staff’s opinion that no additional CDP was needed.
At the June 8, 2021 Board Meeting, the Board adopted Ordinance No. 5352, permanently establishing “No Parking at Anytime” within these stated limits.
Proposed Project Description:
The purpose of this referral is to evaluate the implementation of “No Parking” zones along the south end of the entrance to Point Lobos State Natural Reserve--an area not designated for parking--where limited shoulder space causes vehicles to encroach into the roadway. It also requests that staff assess the feasibility of pursuing an ordinance and/ necessary permits, similar to prior actions taken near Bixby Bridge [Referral No. 2026.08 (Daniels)]. Staff’s understanding is that this request is prompted by immediate threats to life and public safety, as both a tree and vehicles parked on the narrow shoulder are forcing pedestrians to walk directly on the edgeline of Highway 1 to pass through the area on their way to Point Lobos State Park. Additionally, it seeks to explore opportunities for coordination with Caltrans and California State Parks to repair the pedestrian bridge located north of the entrance. The current condition of the bridge forces pedestrians off the designated pathway and back onto Highway 1, again requiring travel along the edgeline and creating unsafe conditions.
Policy Analysis for parking restrictions
Coastal Development Permit - New No Parking Ordinance and signage on Highway 1:
The Board could direct staff to return with an ordinance amending Title 12 of the Monterey County Code to add the area south of the Reserve as a “No Parking” zone. The ordinance would require two readings before the Board. Adoption of an ordinance restricting parking on Highway 1 near Point Lobos for one year will be considered “development” as defined in the Coastal Act and the LCP, due to the change to access and the physical improvements for signs. This will trigger the need for the County to act on a Coastal Development Permit (CDP) prior to installing and enforcing no parking restrictions on Highway 1. There are two processes that may be considered when processing a CDP.
First, the County could approve an Emergency Coastal Development Permit (ECDP). The ECDP would be for a limited term; up to one year, would include a requirement for a follow-up permit using the regular CDP process, and it would need to contain findings that an emergency exists that needs immediate action to mitigate the emergency and that the proposed work is the minimum necessary to address the emergency. If the County processes an ECDP, the follow-up permit would involve exploration of options for parking and access long-term. If the County approved a ECDP that is limited in term to no more than 1 year and requires a follow-up CDP in the regular process, the County’s decision on the ECDP would not be appealable to the Coastal Commission.
The second option would be to process a CDP (non-emergency) using the regular permitting process. The CDP would be reviewed by the Planning Commission. The Planning Commission decision would be appealable to the Board of Supervisors, and the County’s final action would be appealable by/to the California Coastal Commission (CCC). It is County staff opinion, based on conversations with CCC staff, that short-term solutions like increased enforcement or temporary parking restrictions may pass CCC scrutiny as long as it is a component of a long-term strategy to accommodate visitors to the Reserve.
The Housing, Community and Development Department (HCD) staff have reviewed the applicable policies and regulations regarding public access, road capacities, and safety improvements including the California Coastal Act (Coastal Act), the Carmel Land Use Plan (CLUP) and Coastal Implementation Plan (CIP) for Carmel. The Coastal Act is a state law that prioritizes the protection and enhancement of public access to the coast as a top priority. Section 30210 of Article 2 of Chapter 3 of the Coastal Act states: “In carrying out the requirement of Section 4 of Article X of the California Constitution, maximum access, which shall be conspicuously posted, and recreational opportunities shall be provided for all the people consistent with public safety needs and the need to protect public rights, rights of private property owners, and natural resource areas from overuse.”
Coastal Act:
The Coastal Act also requires that local governments prepare a Local Coastal Program (LCP) for those portions of its jurisdiction that lie within the coastal zone boundaries (Chapter 6 of the Coastal Act). Certification of a Local Coastal Program by the California Coastal Commission is a determination that the LCP policies regulating land use and development are consistent with the Coastal Act. The County of Monterey has an adopted LCP pursuant to the Coastal Act. As it relates to this report, the CLUP and its implementing regulations (CIP) regulate development and changes in use within the Carmel coastal areas. HCD staff has reviewed the CLUP and CIP to determine if the extension of the parking prohibition is consistent with the LCP.
Carmel Land Use Plan (CLUP) and Coastal Implementation Plan (CIP): The CLUP describes the conditions (circa 1980) of recreational access for Point Lobos Reserve as exceeding capacity during peak use periods. In 1978, an estimated 19,000 visitors were turned away at the entrance to the Reserve (Section 4.13 of the CLUP). Within the Reserve, there is a capacity to park 150 cars. Once that limit is reached, visitors are turned away at the entrance. Most proceed to park on the Highway 1 road shoulder and walk into the Reserve. The environmental impact report (EIR) for the Carmel Areas State Parks General Plan prepared in 2021 estimates that approximately 400,000 visitors walk into the park annually. Recent anecdotal observations suggest this number is increasing year over year.
Recreational Goals and Objectives of the CLUP are to “provide and encourage public recreational use and enjoyment of the California Coast, while, at the same time, ensuring that such use does not damage or degrade the very resources which renter the coast so valuable for human enjoyment.” (Section 4.3 of the CLUP). There is a recognition that large increases in the number of visitors can lead to damage of sensitive natural resources and excessive parking causing visual blight and hazardous conditions (Section 5.2.6 of the CLUP). Public Access Goals are to provide maximum access and recreational opportunities consistent with the need to protect public safety, public rights, private property owners, and natural resources (Section 5.1 of the CLUP).
Policies and recommended actions within the CLUP, that implement the recreational and public access goals include:
- Recreation Policies“ The State Department of Parks and Recreation shall provide improved parking according to the standards and criteria set forth in the Public Access Element of this plan. [...] This parking shall be of highest priority, and the County is prepared to offer technical planning assistance to expedite this project. Immediately upon completion of adequate new off-street parking, as provided in this plan, parking along the highway should shall be prohibited. The parking prohibition shall be rigorously enforced, and appropriate structural barriers are permitted if necessary to deter illegal parking. If State Parks and CalTrans cannot make the necessary improvements, the County will seek appropriate legislative mandate to resolve the issue.” (3.1.3.5)
- “A program should be initiated by Monterey Peninsula Transit or other public carriers, in cooperation with appropriate recreational agencies, the County, and community representatives, to provide bus stops at appropriate access points and to expand bus service to recreation areas and visitor-serving facilities.” (3.1.4.1)
Public Access policies
- “Substantial increases in visitation over the past ten years has resulted in serious impacts upon the natural environment, particularly, damage to vegetation and soil compaction. The General Plan proposes to limit the number of visitors to 1,350 persons per day primarily by restricting the amount of parking available at any one time to 150 spaces. Visitor control and distribution would also be improved through development of a visitor orientation area at the park entrance, a shuttle bus system, and public trail to the Hudson House addition north of the main reserve. Private motor vehicle use within the reserve would be restricted. An ecological monitoring program would be implemented to assess environmental damage and, if necessary, further limit visitor numbers and/or access to certain areas.” (5.2.6)
- “Existing major access areas shall be permanently protected for long-term public use. They shall be improved where necessary and managed properly by designated public agencies.” (5.3.2.1)
- “Public access to and within Point Lobos Reserve and Carmel River State Beach should be improved and managed according to the management policies set forth in the Point Lobos Carmel River State Beach General Plan and in this plan” (5.3.2.7)
- “A site is potentially suitable for parking if all of the following criteria are met: [...]
o The proposed parking site is of adequate size to accommodate those use levels deemed compatible with the carrying capacity of the shoreline destination or access area. [...]
o Adequate and safe pedestrian access should be possible from the proposed parking areas to the destination point. [...]
o Parking useable by shoreline visitors along county roads shall remain available to the public.” (5.3.2.8)
Given all of above, the CLUP provides a fairly clear emphasis on the implementation of the State Parks General Plan requirements related to parking visitor access. The County and CalTrans are listed as partners in this effort.
State Parks
In 2021, State Parks prepared an Environmental Impact Report (EIR) and updated General Plan for the Carmel area parks. This update replaced the document referred to specifically in the CLUP. Within the Camel Area Parks Plan, circulation, parking and access for Point Lobos, and other state parks in the area, are addressed. Section 4.3.3 of the Parks Plan describes the potential for a reservation system and a multi-modal access management plan to address the parking and access concerns. Additional information in the plan describes the potential for additional parking areas and trail connections.
A Coastal Development Permit for the project known as “ParkIT” is in process with the Housing & Community Development Department. The project includes a new reservation system for Point Lobos that is connected to parking with shuttle service at Marathon flats, Palo Corona Park, and the Crossroads Shopping Center. This project is anticipated to be considered by the County’s Planning Commission in October of this year and could have an impact on parking demands and patterns along Highway 1 in the vicinity of Point Lobos.
New State Legislation also may impact the future of parking in the vicinity. See discussion below regarding SB178.
California Coastal Commission (CCC) Comments:
CCC staff have provided updated input on potential options regarding parking near Point Lobos. The CCC staff generally find no issue with limited parking restrictions and enforcement that are necessary to protect public health and safety. Their main concerns are with retaining maximum reasonable access at low or no cost.
Increasing Fines for No Parking Within Existing Zones Along Highway 1 Adjacent to Point Lobos
Another avenue that the Board could consider pursuing is increasing the penalty/fines for existing No Parking in this zone. Currently, the fine for No Parking in this portion of Highway 1 is $28. Per California Vehicle Code Section 42001 and Monterey County Code Section 12.04.060, the County can charge:
(1) By a fine not exceeding one hundred dollars ($100).
(2) For a second infraction occurring within one year of a prior infraction that resulted in a conviction, a fine not exceeding two hundred dollars ($200).
(3) For a third or subsequent infraction occurring within one year of two or more prior infractions that resulted in convictions, a fine not exceeding two hundred fifty dollars ($250).
If the Board chooses this avenue, the County would also need to get an approval from CalTrans and discuss with the California Highway Patrol.
Rely on Trip Generator (Point Lobos Natural Preserve and State Parks) to Address the Situation Under SB 178
In the closing days of the 2026 Legislative Session, State Senator John Laird proposed a bill called SB 178. This bill performs the following:
SB 178 - Public Resources Trailer Bill (2025-2026 Session)
The bill directs California State Parks to prepare a comprehensive report addressing traffic congestion, public safety, and public access at Point Lobos State Natural Reserve. The report must analyze unsafe parking zones, propose traffic-calming strategies, and identify methods to disperse visitor day-use to improve safety and access.
Staff recommends allowing the bill to take effect and allow State Parks the opportunity to study and prepare the report, to address the situation, including the issues with the pedestrian bridge.
Estimated Project Cost:
Costs are not fully-determined at this time, but will consist primarily of staff time, and signage material costs, after the regulatory approvals are acquired. To create and bring for adoption the ordinance and enforce the signage, time impacts associated with this request may include staff time from PWFP, HCD, the Office of the County Counsel, Monterey County Sheriff’s Office (MCSO), and outside departments such as the California Highway Patrol (CHP), Caltrans, CCC, State Parks, and the United States Forestry Service (USFS). The range of costs for the options varies, depending on complexity of scope. For temporary signage, costs will depend on the option chosen for permitting, and will likely consist mostly of staff time. In many scenarios, enforcement is required by law enforcement partners, who have noted their limited resources. The CHP does have an enforcement agreement process for dedicated officer(s) for enforcement at a specific location.
Staffing Level Estimate:
Staffing level estimates are undetermined at this time. Time impacts associated with this request may include staff time from PWFP, HCD, the Office of the County Counsel, MCSO, CHP, Caltrans, CCC, and State Parks. Staff time is dependent on the complexity of the range of options. The review time by any applicable state, federal or local permitting/regulatory entities is at their discretion.
The CCC will also have appeal authority over any Coastal Development Permits approved by the County related to this effort.
Departmental Challenges:
Acquiring permits and approvals through State and Federal agencies will be a challenge. Ongoing enforcement may also be a challenge.
Proposed Response Date:
Staff proposes to return to the Board prior to July 1, 2027.
BOARD OF SUPERVISORS STRATEGIC PLAN GOALS:
The recommended action supports the Board of Supervisors’ Strategic Plan Goals for Well-Being and Quality of Life, and Safe and Resilient Communities.
X Well-Being and Quality of Life
___ Sustainable Infrastructure for the Present and Future
X Safe and Resilient Communities
___ Diverse and Thriving Economy
___ Administrative
Prepared by: Randell Ishii, MS, PE, TE, PTOE, Director of Public Works, Facilities and Parks
Craig Spencer, AICP, Director of Housing and Community Development
Approved by: Randell Ishii, MS, PE, TE, PTOE, Director of Public Works, Facilities and Parks
Attachments: Attachment A - Board Referral #2026.17
Attachment B - Public Comment Received September 8, 2026
Attachment C - Comment from the California Coastal Commission