Executive Summary:
In 2016, the State of California enacted Government Code Section 53087.7, which required jurisdictions to approve proposed installations of drought tolerant landscaping, including synthetic grass/artificial turf, on residential property. The law came about as an emergency measure in a time of drought and was intended to encourage use of drought-resistant landscaping alternatives. However, in light of potential harms to public health and the environment, Senate Bill (SB) 676 amended Government Code Section 53087.7 to restore the power of local agencies to limit, further regulate, or prohibit the installation of artificial turf/synthetic grass. In response to SB 676, City staff has prepared an Artificial Turf Policy (Attachment 1) prohibiting the installation of artificial turf citywide. The Artificial Turf Policy replaces the City’s existing Permitting Standards for Synthetic Grass/Artificial Turf (Attachment 2). The Forest and Beach Commission and the Planning Commission considered the Policy on January 16, 2025 and February 11, 2025, respectively, and both bodies have recommended Council adoption. A draft resolution (Attachment 3) adopting the Artificial Turf Policy has been prepared for the Council’s consideration.
Background/Summary:
BACKGROUND
Artificial turf is a man-made product of synthetic materials intended to simulate the appearance of natural turf, grass, sod, or lawn. In 2016, the State of California required jurisdictions to approve applications for artificial turf, pursuant to Government Code Section 53087.7:
(a) A city, including a charter city, county, or city and county, shall not enact any ordinance or regulation, or enforce any existing ordinance or regulation, that prohibits the installation of drought tolerant landscaping, synthetic grass, or artificial turf on residential property.
(b) A city, including a charter city, county, or city and county, may impose reasonable restrictions on the type of drought tolerant landscaping, synthetic grass, or artificial turf that may be installed on residential property provided that those restrictions do not do any of the following:
(1) Substantially increase the cost of installing drought tolerant landscaping, synthetic grass, or artificial turf.
(2) Effectively prohibit the installation of drought tolerant landscaping, synthetic grass, or artificial turf.
(3) Significantly impede the installation of drought tolerant landscaping, including, but not limited to, a requirement that a residential yard must be completely covered with living plant material.
(c) A city, including a charter city, county, or city and county, may impose reasonable restrictions on the installation or design of synthetic grass or artificial turf within the dripline of a tree protected by local ordinance.
In December 2017, the City Planning Division developed Permitting Standards for Synthetic Grass/Artificial Turf (Attachment 2) to comply with State law. City records indicate approximately 40 applications for artificial turf have been approved since 2017. The City standards allowed for the installation of synthetic grass/artificial turf if certain application requirements and design standards were met, as follows:
Application requirements:
1. No-fee Track-One Design Study application.
2. All proposals for synthetic grass require submittal of a Track-One Design Study application to the Community Planning and Building Department.
3. The application shall include a site plan of the subject property depicting the proposed location and configuration of the synthetic grass. The site plan shall depict all trees on the property and any other trees near the proposed installation in order for staff to evaluate the proximity of the synthetic grass to the trees. The plan shall include a data table identifying the approximate square-footage of the synthetic grass. A drainage plan may be required depending on sloped lots.
4. The applicant shall submit a sample of the proposed synthetic grass in order for staff to evaluate the material.
Design standards:
1. The synthetic grass and associated base-rock materials shall be located a minimum of six feet from the base of any tree in order to adequately protect tree roots.
2. The applicant shall submit a sample of the proposed synthetic grass for staff evaluation. The City’s Residential Design Guidelines encourage maintaining the forested character of the community through the use of natural landscaping. The synthetic grass shall present the appearance of natural grass as recommended by guidelines.
3. The applicant shall demonstrate that the synthetic grass and associated base material is permeable with the ability to percolate water into the soil.
On October 8, 2023, Governor Newsom signed Senate Bill 676 (SB 676), restoring the authority of local agencies to regulate or prohibit synthetic grass and artificial turf installations. Amended Government Code 53087.7 (effective January 1, 2024) reads:
(a) A city, including a charter city, county, or city and county, shall not enact any ordinance or regulation, or enforce any existing ordinance or regulation, that prohibits the installation of drought-tolerant landscaping using living plant material on residential property.
(b) For the purposes of this section, “drought-tolerant landscaping” shall not include the installation of synthetic grass or artificial turf.
In response to the amended State law, City staff has prepared an updated Artificial Turf Policy prohibiting the installation of artificial turf in Carmel-by-the-Sea in all zoning districts. Because artificial turf is a plastic petroleum product that may cause adverse effects on public health, stormwater management, pollutant discharge, soil health, and neighborhood character, City staff finds artificial turf/synthetic grass uses in all zoning districts inappropriate.
Public Health
While additional scientific study is warranted and is underway, studies illuminate potential health impacts from exposure to carcinogens, neurotoxicants, mutagens, and endocrine disruptors in artificial turf. Phthalates, bisphenol A (BPA), per- and polyfluoroalkyl substances (PFAS), polycyclic aromatic hydrocarbons (PAHs) have been identified as particularly problematic substances. Carmel residents – especially children who play on artificial turf – may be vulnerable to potential exposure risks.
Stormwater Management
Since 2017, City staff has collected and assessed artificial turf samples prior to application approvals, checking for the presence of “drainage holes” punched in the backing material to ensure some level of water percolation through the product. However, despite the presence of drainage holes, the absorption rates of turf products are not comparable to natural plant material. The City’s small lot sizes amplify the importance of onsite water percolation to limit run-off impacts to neighboring properties and City storm drain systems.
Pollutant Discharge
Micro and nanoplastics, nylon, and “crumb rubber” materials in artificial turf deteriorate over time and leach into the air, water, and soil. Carmel Bay is a protected watershed and a designated Area of Special Biological Significance (ASBS). The City storm drains flow directly into the ocean without treatment. The City therefore has significant stormwater management responsibilities and has a strong interest in controlling both the volume and the composition of stormwater discharges.
Landfill Material
Artificial turf products must be periodically removed and replaced as they weather and wear. The average longevity of artificial turf is ten years. Because artificial turf is comprised of layers of various petroleum and plastic products, the aged turf is typically landfilled or incinerated rather than recycled.
Soil Health
Applying a plastic top layer on dirt limits the supply of air, water and organic matter (leaves, etc.) to the soil beneath. This impacts the living organisms like worms and various microorganisms in the soil. Trees, shrubs, and plant material depend on healthy soil.
Neighborhood Character
The City municipal code (CMC 17.34.060.B.1) states: Plant material located in areas visible from the street or other public places shall be arranged in a relaxed, informal pattern consistent with the character of the Carmel forest. Formal, unnatural arrangements shall be avoided except for focal points. The Residential Design Guidelines encourage natural settings, natural forest character, and natural materials. While there is a range of turf product quality available on the market, even the most naturalistic-looking products appear synthetic.
The following guidelines apply to both artificial and natural turf, but are provided here for context. Per the “Introduction to Landscape Design” section of the design guidelines: Overall, the landscape should have an informal character and Front yards should be informal gardens, rather than the traditional grass lawns seen in many other communities.
Final Design Guideline 10.2 states: Landscape plans that use native plants and other varieties
accustomed to growing along the Central Coast are encouraged.
Final Design Guideline 10.3 states: Planting in areas visible from the street or other public places should continue the forest character. Locate plants in relaxed, informal arrangements that are consistent with the urban forest character. Avoid formal, unnatural arrangements of plants and paving except in areas out of public view… Lawns visible from the street are inappropriate to the forest setting and should be avoided.
Due to its synthetic nature and existing language in the municipal code and design guidelines regarding natural, informal landscaping, the use of artificial turf conflicts with the City’s forest character.