STAFF REPORT
Meeting Date:
January 27, 2026
BUSINESS
15.5 SUBJECT: DISCUSSION OF AN ORDINANCE AMENDING TITLE 18 (BEACH AND PARKS)
TO ESTABLISH A SPECIAL EVENT PERMIT PROCESS AND MODIFYING
REGULATIONS ON SURFING AT ALISO BEACH AND USE OF SHADE
COVERINGS AT BEACHES AND PARKS AND A CORRESPONDING
RESOLUTION ESTABLISHING LOCATIONS WHERE SPECIAL EVENTS MAY
OCCUR AND RULES AND REGULATIONS FOR SPECIAL EVENTS
RECOMMENDATION: It is recommended that the City Council receive a staff report, take public comments, discuss and provide further direction to staff regarding:
1. A Draft Ordinance titled, “AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF LAGUNA BEACH, AMENDING TITLE 18 OF THE LAGUNA BEACH MUNICIPAL CODE;
AND FINDING SUCH ACTION EXEMPT FROM THE CALIFORNIA ENVIRONMENTAL QUALITY ACT UNDER CEQA GUIDELINES SECTION 15304”; and
2. A Draft Resolution titled, “A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
LAGUNA BEACH, CALIFORNIA, ESTABLISHING LOCATIONS WHERE SPECIAL
EVENTS ARE ALLOWED AND RULES AND REGULATIONS GOVERNING SPECIAL EVENTS; AND FINDING THE ACTION CATEGORICALLY EXEMPT FROM THE
CALIFORNIA ENVIRONMENTAL QUALITY ACT PURSUANT TO STATE CEQA GUIDELINES SECTION 15304”.
SUMMARY OF THE MATTER
The City of Laguna Beach hosts a wide variety of special events each year, including parades, community events, art shows, athletic competitions, and other community activities. Currently, the City relies on a combination of municipal code provisions, departmental procedures, and informal practices to manage these events. The lack of a consistent policy has led to challenges in enforcement, inconsistent requirements for event organizers, and a more complex approval process. The increase in event requests in recent years highlights the need for a standardized, transparent permitting framework. In response, staff developed an ordinance amending Title 18 (Beach and Parks) and a corresponding proposed resolution establishing locations where special events are allowed and the rules and regulations governing special events through a Special Event Permit Policy to streamline the review and approval of events held at City parks, beaches, and facilities. Developed by the Transit and Community Services Department in collaboration with multiple departments, the Special Event Permit Policy establishes consistent criteria, timelines, and responsibilities.
Additionally, in light of beach attendance increasing annually, Marine Safety staff have faced challenges when monitoring the ocean from the lifeguard tower due to shade coverings and facilitating mixed uses at Aliso Beach. In response, staff addressed modifications to the municipal code through the same ordinance amending Title 18 to further address shade coverings and to designate surfing and skimboarding locations at Aliso Beach.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
The purpose of this agenda item is not to consider adoption tonight but to gain feedback from the public and City Council for further development of the ordinance and resolution.
Actions on the ordinance amending Title 18 and resolution establishing locations where special events are allowed and rules and regulations governing special events through the Special Event Permit Policy will be exempt from the requirements of the California Environment Quality Act pursuant to State CEQA Guidelines Section 15304 (Minor Alterations to Land, Class 4).
DISCUSSION
On May 16, 2023, the City Council directed staff to develop a special event permit process to authorize private events at Aliso Beach and other South Laguna Beaches as needed. Since that time, City staff has identified community interest in using additional City parks, beaches, and facilities for special events.
Accordingly, City staff has prepared a draft ordinance that amends Title 18 (Beach and Parks) to better organize the rules (Attachment 1), an index of the changes to Title 18 (Beach and Parks) (Attachment 2), and a draft resolution establishing locations where special events are allowed and rules and regulations governing special event through the Special Event Permit Policy (Attachment 3). The draft ordinance changes and Special Event Permit Policy are discussed in more detail below.
A. Title 18 (Beaches and Parks)
As a summary, the ordinance repealing and replacing Title 18 (Parks and Beaches) makes the following changes: (1) reorganizes Title 18 to remove duplications and out-of-date provisions and regroup related provisions; (2) creates a comprehensive special event permit process; (3) modifies the regulations on tents on beaches and parks and surfing in South Laguna.
(1) Reorganizes Title 18 to remove duplications and out-of-date provisions City staff reorganized and reformatted the provisions in Title 18, as reflected in the index of proposed changes to Title 18. (Attachment 2.) As reflected in the index, most changes reorganized provisions and left the content of the provisions the same. The new, revised, or repealed provisions are notated in the index. (2) Creates a comprehensive special event permit process While the current version of Title 18 references a beach and park use reservation permit system and various activities that require a reservation, such as certain activities at Main Beach Park cobblestone area and outdoor gatherings, concerts, festivals, art shows, and exhibits, and outdoor athletic contests, it also references other activities that require a permit from the City, such as commercial dog training, organized play, and informal weddings. In practice, City staff has been issuing permits for such activities but without a formal adopted policy.
To better guide City staff and the public, City staff is proposing to amend Title 18 to specifically define a “special event” and to more clearly regulate when a special event permit is required, the process for obtaining a special event permit, and the operable rules for activities authorized by special event permits.
More specifically, the ordinance proposes to define “special event” as follows:
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
a) Organized public or private gatherings or activities, whether for profit or not for profit, that exceed the capacity of designated areas specified by resolution of the city council. Private or public gatherings within the capacity of the designated areas set by resolution are not considered special events for purposes of this chapter.
b) The following organized public or private gatherings or activities, whether for profit or not for profit:
1. Informal weddings;
2. Outdoor gatherings, concerts, festivals, art shows, and exhibits;
3. Commercial stand-up paddling activity;
4. Commercial dog training;
5. Outdoor athletic contests;
6. Organized play;
7. Special organized recreational boating events; and
8. Other similar activities at the determination of the City Manager or designee.
The draft resolution (Attachment 3) establishes where special events are allowed and the capacity of persons at an event which trigger the need for a special event permit.
The draft ordinance largely maintains the existing provisions relating to the beach and park use reservation permit system and renames it throughout Title 18 as the special event permit process. It maintains that the City Council will set the application fees for special event permit applications. This is established in the resolution. (Attachment 3.) It further maintains that the City Manager or designee shall be responsible for the administration of the special event permit process and shall develop application forms and any further internal city rules, regulations, and requirements deemed necessary to administer the process.
The draft ordinance requires that a special event permit application be submitted in writing at least 30 calendar days before the date of the proposed activity and requires a decision on the application within 15 calendar days after it is received. The draft ordinance sets forth specific grounds upon which a special event permit can be denied and provides an appeal procedure to the City Council.
Certain conduct subject to a special event permit have special time, place, and manner rules. Below is an overview of those special rules, most of which already exist in the City’s municipal code, and how this draft ordinance modifies those special rules, if at all:
Conduct Special Rules in Draft
Ordinance
How It Would Change
Constitutionally protected
expressive activities with
use of structure at Main
Beach Park.
Hard surface cobblestone
area is available not more
than 5 days per month.
Change to identify the special event permit
process rather than unnamed permit
process.
Other Special Events
Involving the Use of
Hard surface cobblestone is
available not more than two
Change to authorize individuals and
organizations (including for-profit
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
Structures at Main Beach
Park
days per month and may
involve sales related to the
event provided the vendor
has a Laguna Beach business
license.
organizations) and authorize activities other
than art and craft shows and sales.
Change to identify the special event permit
process rather than unnamed permit
process.
Informal Weddings No additional tables or
chairs or other facilities may
be erected for such
ceremonies.
No alcoholic beverages shall
be served and no amplified
sound shall be permitted.
The maximum number of the
wedding party and guests
shall not exceed fifty people
in the Gazebo at Heisler Park
or at Crescent Bay Park.
Up to ninety-five people are
allowed per wedding in other
locations in Heisler Park.
No more than two weddings
per day shall be permitted at
Crescent Bay Park.
Change to identify the special event permit
process rather than unnamed permit
process.
Outdoor gatherings,
concerts, festivals, art
shows, and exhibitions;
Any outdoor gathering,
concert, festival, art show, or
exhibitions involving the use
of structures and not
otherwise provided for in
this chapter or elsewhere in
this code shall be held at
Irvine Bowl Park. The use of
the amphitheater and festival
grounds at Irvine Bowl shall
be on a first-come, firstserved basis by reservation
through the special event
permit process and is subject
to the requirements of any
existing or subsequently
approved lease of those
facilities. Nothing in this
section shall be construed to
supersede the provisions of
Change to identify the special event permit
process rather than unnamed permit
process.
New provision that allows for outdoor
gatherings, concerts, festivals, art shows,
and exhibits outside of the Irvine Bowl if
the Irvine Bowl is unavailable. City staff
added this provision in case a member of
the public wants to have a block party, for
example, so that the City has a mechanism
to recoup its fees and costs. Such event
must be approved or denied by the City
Manager.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
any such lease. Outdoor
gatherings to be attended by
more than two thousand five
hundred persons require a
license pursuant to
Chapter 5.68 of this code.
If the Irvine Bowl Park is
unavailable for an outdoor
gathering, concert, festival,
art show, or exhibition
involving the use of
structures, the sponsor of a
special event can propose the
event at an alternative
location. The City Manager
shall either approve or deny
such special event permit
application.
Commercial stand-up
paddling activity;
All commercial stand-up
paddling activity business
must obtain a special event
permit and must meet basic
safety and operating rules,
including that instructors
must be trained in First Aid
and CPR and attend a yearly
safety orientation; each
instructor may supervise no
more than four students; no
more than ten people from
one business may be in the
water at one time; instructors
must be clearly identifiable,
such as by wearing matching
hats; business must maintain
certain liability insurance;
business must comply with
law. Marine Safety Chief
may add additional permit
requirements in the interest
of public health, safety, and
general welfare.
Change to identify the special event permit
process rather than unnamed permit
process.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
Commercial dog training Commercial dog training is
prohibited in city dog parks,
unless specifically permitted
by the city through the
special event permit process.
Change to identify the special event permit
process rather than unnamed permit
process.
Outdoor athletic contests Parks and beaches may be
reserved through the special
event permit process for
athletic contests, events, or
activities, including practice
or training sessions, in areas
designated for such use.
Special structures to be used
in conjunction with these
activities shall be subject to
the discretionary review and
approval by the city through
the special event permit
process and may require
other entitlements based on
the proposed structures.
Change to allow outdoor athletic contests
and parks and beaches and to identify the
special event permit process rather than
unnamed permit process.
Organized play Need a special event permit
to hold organized games or
practices on city parks,
fields, courts, pools, or other
recreational facilities. City
will consider whether the
location is a good fit for the
activity, impacts to
surrounding neighborhoods,
interference with other
public use, and whether
group is made of up city
residents (for preference).
City can set reasonable rules
to protect public welfare.
City may suspend or revoke
special event permit if
conditions of permit are
violated.
Change to identify the special event permit
process rather than unnamed permit
process.
Special organized
recreational boating events
While overnight storage on
public beaches of vessels is
usually prohibited, it can be
Change to identify the special event permit
process rather than unnamed permit
process.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
accommodated through a
special event permit in
connection with a special
organized recreational
boating event.
(3) modifies the regulations on shade coverings on beaches and parks and surfing in South Laguna.
i. Shade Coverings and Structures:
Recently, beach attendance has increased, creating challenges for Marine Safety staff when monitoring the ocean from the lifeguard tower. The lifeguard's view of the ocean and nearshore environment is paramount to public safety and Marine Safety operations. The most common obstruction is large shade coverings with multiple posts. In response, staff is requesting that the City Council consider modifying the current ordinance to prohibit multi-post shade coverings seaward (in front) of lifeguard towers. Shade coverings with multiple points of contact with the sand would be allowed behind lifeguard towers with a size restriction of six feet in height and width. The modification in the draft ordinance is written below:
§ 18.04.020. Shade Coverings1 and Structures2.
(a) No person shall install, erect, or maintain any shade covering or structure over six feet in height or wider than six feet on or in any public beach, park, street, alley, or passageway.
(b) Any shade covering or structure installed, erected, or maintained on or in any public beach, park, street, alley, or passageway shall:
1. Not have more than one side closed to public view; and
2. Not interfere with a lifeguard’s ability to see the water or adjacent lifeguard towers; and
3. Not have more than one contact point with the sand, when located seaward of lifeguard towers; and
4. Not be located within twenty feet of any emergency or public access; and
5. Not obstruct any emergency or public access; and
6. Not be located within five feet from another shade covering or structure. (c) Any shade covering or structure shall be relocated at the request of the Marine Safety Department staff, Police Department staff, or other authorized City personnel.
ii. Surfing and Skimboarding
1 Chapter 18.01 includes the following new definition: “Shade covering” means a canopy, awning, umbrella, tent, cabana, easyup, or cover. 2 Chapter 18.01 includes the following new definition: “Structure” means tables, signs, coolers, sports equipment, a volleyball court, or other temporary items.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
In March 2023, the City began providing lifeguard services in South Laguna. Aliso Beach has been identified as a high-impact area due to amenities such as a parking lot, a playground, bathrooms, firepits, and beachside dining. In addition, Aliso Beach is a very popular spot for skimboarding, surfing, and swimming. Due to Aliso Beach's popularity and frequent overlap of these activities, the staff is proposing a modification to the municipal code to reduce the possibility of accidents and injuries. The modification in the ordinance is written below:
§ 18.20.025. Surfing5—Time and place permitted.
a) Between June fifteenth and September fifteenth, both dates inclusive, of each calendar year, the following described areas of the Pacific Ocean are hereby designated as surfing areas, and surfing within said areas only during the daylight hours enumerated below shall be permitted:
. . .
5. Area No. 5: Surfing is allowed in Area No. 5. Exception: In Aliso Beach, specifically, a zone for surfing shall be set up from 12 pm to 6 pm daily through the posting of signs and flags by Marine Safety Department staff or for increased durations as conditions warrant at the determination by Marine Safety Department staff. If a zone for surfing is not set through the posting of signs and flags by Marine Safety Department staff, the surfing area is hereby established at the South end of Aliso Beach between June fifteenth and September fifteenth.
B. Special Event Permit Policy
City staff has prepared a Special Event Permit Policy (Attachment 3, Exhibit B) to guide applicants and members of the public on the process to obtain a special event permit. In short, it defines certain City parks and beaches that are available for special events and further identifies that an event, which will exceed 50 people, will require a Tier I special event permit, and an event, which will exceed 500 people, will require a Tier II special event permit. The Tier I special event permit requires lesser application fees and application requirements than the Tier II special event permit. The proposed event locations include:
• Aliso Beach and Aliso Beach Park
• Alta Laguna Park
• Bluebird Park
• Cobblestones at Main Beach
• Community and Recreation Center
• Heisler Park Picnic Area
• Irvine Bowl (subject to existing lease obligations)
• Lang Park
• Main Beach Park
5 Chapter 18.01 includes the following new definition: “Surfing” means the use in the Pacific Ocean adjacent to the shoreline within the boundaries of the city of any surfboard, paddleboard, skimboarding, or other similar object made entirely or partially of wood, metal, glass, hard plastic, or any other hard substance.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
• Moulton Meadows Park
• Parking Lot 10
• Picnic Beach
• Promenade on Forest Ave.
Key areas of the proposed policy include:
• Event Definition and Classification: Establishes two event categories based on size. • Application Requirements: Creates a checklist of the required documentation for each type of application.
• Permit Fees and Cost Recovery: Establishes a tiered fee structure and requires reimbursement for City services.
• Event Limitation: Establishes rules and regulations for special events. Prohibits special events during peak summer months from Memorial Day to Labor Day unless considered and approved by the City Manager.
FINANCIAL ANALYSIS
The fiscal impact would be recouping revenue that is currently absorbed by the general fund.
ENVIRONMENTAL ANALYSIS
The action on the ordinance amending Title 18 and resolution establishing locations where special events are allowed and rules and regulations governing special event through the Special Event Permit Policy is exempt from the requirements of the California Environment Quality Act pursuant to State CEQA Guidelines Section 15304 (Minor Alterations to Land, Class 4) which exempts minor public or private alterations in the condition of land, water, and/or vegetation which do not involve removal of healthy, mature, scenic trees except for forestry and agricultural purposes. Examples include but are not limited to minor temporary use of land having negligible or no permanent effects on the environment, including carnivals, sales of Christmas trees, etc. (14 CCR Section 15304(e).) Here, this action will allow people to use portions of the City’s parks and beaches for special events for a temporary period of time subject to rules and regulations of the City. This action does not authorize permanent infrastructure and merely creates an administrative system to allow persons to coordinate use of the beach, parks, and other City facilities. Therefore, this action falls within the minor alterations to land exemption.
None of the exceptions to the use of the categorical exemptions identified in State CEQA Guidelines section 15300.2 apply. The Project will not result in a cumulative impact from successive projects of the same type in the same place, over time. Moreover, there are no unusual circumstances surrounding the Project that would result in a reasonably possibility of a significant effect on the environment. Additionally, the Project will not damage scenic resources, including trees, historic buildings, rock outcroppings, or similar resources. The Project will not cause a substantial adverse change in the significance of a historical resource.
Finally, the Project does not include any hazardous waste sites. Thus, Class 4 exemption applies, and no further environmental review is required.
DISCUSSION OF TITLE 18 AMENDMENT AND SPECIAL EVENT PERMIT POLICY January 27, 2026
ATTACHMENTS
1. Draft Ordinance Amending Title 18 (Pgs. 11-38)
2. Index of proposed changes to Title 18 (Pgs. 39-45)
3. Draft City Council Resolution Establishing Locations for Special Events and Rules and Regulations (Pgs. 46-59)
Submitted By: Alexis Braun Approved: .David A Kiff
Alexis Braun, Acting Director of
Transit and Community Services
Dave Kiff, City Manager
Report Prepared By: Coordinated With:
Alexis Braun, Acting Director of Transit and
Community Services
Kai Bond, Marine Safety Chief
Andrea Tirnauer, Senior Services Coordinator
Jane Abzug, Assistant City Attorney