STAFF REPORT
Meeting Date:
November 18, 2025
BUSINESS
19 SUBJECT: OCEAN AVENUE AND BEACH STREET IMPROVEMENTS
RECOMMENDATION: It is recommended that the City Council:
1. Receive a presentation from staff on the results of the Lower Ocean Avenue One-Way 2025 Traffic Study results and a verbal report summarizing comments received during the Downtown Action Plan Improvements (Ocean Avenue) Town Hall;
2. Discuss the results of the Lower Ocean Avenue One-Way 2025 Traffic Study and provide direction as to possible improvements to Ocean Avenue and Beach Street; and
3. Find that the action consists of government activities, which does not result in a direct or indirect physical change in environment and therefore does not constitute a “project” within the meaning of the California Environmental Quality Act.
SUMMARY OF THE MATTER
On September 23, 2025, the City Council directed staff to report back with results from the traffic analysis regarding the conversion of Lower Ocean Avenue to one-way. SWA Group prepared conceptual exhibits (Attachment 1) for the Ocean Avenue streetscape in March 2025, which serves as the basis for further design development of the Ocean Avenue and Beach Street corridors. One component of the concept includes the possible conversion of Lower Ocean Avenue (Beach Street to South Coast Highway) to oneway traffic. Converting Lower Ocean Avenue to one-way will remove existing eastbound through lanes (removing the ability to turn onto Ocean Avenue from South Coast Highway), would provide opportunities for angled parking to create approximately 8 new parking spaces, convert the westbound approach at South Coast Highway to include a dedicated right-turn pocket, and implement bulb-outs at intersections and crosswalks.
Based on the results of the traffic analysis (Attachment 2), the conversion of Lower Ocean Avenue to one way is not anticipated to affect intersection operations along Coast Highway in the downtown area. However, the surrounding downtown roadways may experience increases in delays with the diverted trips, though the additive trips are unlikely to cause major deterioration in operations. Therefore, the report concluded that the reconfiguration of Lower Ocean Avenue to one-way is not expected to create or contribute to adverse traffic conditions in downtown Laguna Beach.
A Town Hall meeting to discuss the Ocean Avenue and Beach Street conceptual exhibits prepared by SWA Group was held on November 4, 2025, in Council Chambers. The public provided comments on the proposed improvements including curb bump-outs for landscape opportunities, traffic calming and enhanced pedestrian safety, a widened sidewalk along Beach Street, sidewalk improvements, and tree grates.
Staff will provide a verbal report summarizing public comments received at the Town Hall meeting and will seek additional direction from the Council. At this time, it is staff’s recommendation not to move forward with making lower Ocean Avenue a one-way street.
OCEAN AVENUE AND BEACH STREET IMPROVEMENTS
November 18, 2025
DISCUSSION
One-Way Ocean Avenue History
The concept of converting Ocean Avenue to one-way between Beach Street and South Coast Highway was identified as a recommendation of the 2006 Downtown and Laguna Canyon Road Traffic and Parking Analysis and the 2013 Downtown Specific Plan and Laguna Canyon Road Area Parking Management Plan.
In 2014, City Council approved implementation of the Parking Management Plan that included angled parking on Ocean Avenue as part of a phased implementation process for parking supply strategies. In 2018, City Council considered the concept of converting Ocean Avenue to a one-way street from Beach Street to South Coast Highway and directed staff to conduct extensive public outreach prior to moving forward with the design. Based on the public response, it was recommended that staff proceed with design and implementation of the one-way conversion as part of the Coast Highway Downtown Intersection Improvements project.
On April 2, 2019, the City Council approved implementing a trial program to convert Ocean Avenue to a one-way street as part of the Coast Highway Downtown Intersection Improvements project. The intersection improvement project has been constructed; however, the one-way conversion was not implemented. The conversion of Ocean Avenue to a one-way was the last stage of the project but with the implementation of the Promenade on Forest during the pandemic, the conversion of Lower Ocean Avenue to a one-way was removed from the project and was not implemented because previous studies did not consider impacts of a closure of Forest Ave.
Ocean Avenue & Beach Street Improvements Concept
The Downtown Action Plan was initiated by the City Council in 2019 to evaluate existing conditions and develop a plan to improve the downtown infrastructure. Although the plan was not adopted, it provided recommendations for hardscape and landscape designs, street lighting, public art, sidewalk improvements, and inspection of existing trees.
In March 2025, SWA Group prepared conceptual exhibits for the Ocean Avenue streetscape project, considering improvements identified in the draft Downtown Action Plan, which serves as the basis for further design development of the Ocean Avenue and Beach Street corridors. The proposed improvements include curb bump-outs for landscape opportunities, traffic calming and enhanced pedestrian safety, a widened sidewalk along Beach Street, sidewalk improvements, and tree grates. Another component of the concept includes the possible conversion of Lower Ocean Avenue to one-way, providing opportunities for angled parking that would create eight additional parking spaces.
To provide an opportunity for the public to review the proposed improvements, a town hall meeting to discuss the Ocean Avenue and Beach Street conceptual exhibits was held on November 4, 2025, in Council Chambers. Staff will provide a verbal report summarizing public comments received at the town hall meeting.
Since the initial 2018 traffic analysis was prepared, Forest Avenue between Glenneyre Street & Coast Highway has been deemed a “Slow Street” and permanently closed to vehicular traffic for the Promenade on Forest. Therefore, the City hired KOA to prepare an updated operational analysis to study the changes to vehicle circulation resulting from a one-way conversion of Lower Ocean Avenue.
OCEAN AVENUE AND BEACH STREET IMPROVEMENTS
November 18, 2025
To support the updated analysis, KOA collected new traffic counts in September 2025 (Attachment 2). The updated analysis, using the new traffic counts, concluded that the conversion of Lower Ocean Avenue to a one-way is not anticipated to affect intersection operations along South Coast Highway in the downtown area. All four study locations (Broadway Street, Ocean Avenue, Park Avenue, and Laguna Avenue) along South Coast Highway are expected to operate at an acceptable level of service whether or not Lower Ocean Avenue is converted to a one-way street. The updated analysis further concluded that the surrounding roadways such as Beach Street and Glenneyre may experience increases in delay with the diverted trips, but the additive trips are unlikely to cause major deterioration in operations and therefore, the conversion of Lower Ocean Avenue to a one-way is not expected to create or contribute to major adverse traffic conditions in downtown Laguna Beach.
The above facts noted, it may not make sense at this time to consider making Lower Ocean Avenue oneway, as a handful of related and important projects are pending – from the Surf Museum to the Promenade.
Council may wish to consider changes to Lower Ocean’s traffic flow once those are established further.
FINANCIAL ANALYSIS
There is no financial impact. Final design development is included in the existing KOA Corporation task order.
ENVIRONMENTAL ANALYSIS
The proposed actions are not subject to the California Environmental Quality Act (CEQA) pursuant to State CEQA Guidelines, as it is not a "project" and has no potential to result in a direct or reasonably foreseeable indirect physical change to the environment. (14 Cal. Code Regs. § 15378(a).) The proposed actions are administrative in nature, given that they merely provide direction on the design of the streetscape project but do not in and of themselves cause the construction of the improvements.
ATTACHMENTS
1. SWA Conceptual Plan – Ocean Avenue (Pg. 4)
2. Lower Ocean Avenue One Way 2025 Traffic Analysis (Pgs. 5-43) Submitted By: Mark McAvoy Approved: .David A Kiff
Mark McAvoy, Director of Public
Works & Utilities
Dave Kiff, City Manager
Report Prepared By: Coordinated With:
Alpha Santos-Guinto, Project Manager
Pierre Sawaya, Capital Program Manager
Thomas Perez, City Engineer
Patrick Donegan, Assistant City Attorney