PLANNING COMMISSION STAFF REPORT
September 16, 2026
Agenda Item No. 5.3
Case No: Concept Review 2026-1761
Request: Concept review of the proposed Main Beach Boardwalk Improvement Project, consisting of replacement of approximately 2,045 existing wood decking boards along the Main Beach Boardwalk, estimated at approximately 1,200 linear feet, and at the associated boardwalk access stairs, within the existing boardwalk footprint, alignment, and structural configuration, including consideration of replacement decking material alternatives. No project approval or other discretionary action is requested at this time.
Project Location: Main Beach Park – Marine Safety Headquarters to Laguna Avenue (307 South Coast Highway)
APNs: 496-021-05, -06, -07, -08, -09, -11, -12, & -13 and 644-017-07 & -08
Applicant: City of Laguna Beach, Public Works and Utilities Department Property Owner: City of Laguna Beach
Prepared By: Public Works and Utilities Department
Yun-Yun Lee, Project Manager
(949) 497-0328 | [email protected]
Reviewed By: Community Development Department
Shehriyar Khan, Associate Planner
(949) 715-0672 | [email protected]
CEQA:
Pursuant to CEQA Guidelines Section 15262, the concept review is exempt from the California Environmental Quality Act under the statutory exemption for feasibility and planning studies.
Attachment 1
PC Staff Report
September 16, 2026
Coastal Development Permit:
The project site is located within an appealable area of the Coastal Zone, and coastal development permit requirements have not yet been determined and are not before the Planning Commission as part of this concept review.
Recommendation:
Staff recommends that the Planning Commission conduct a public hearing, receive the staff presentation, review the conceptual exhibits and decking material alternatives for the proposed Main Beach Boardwalk Improvement Project, consider public testimony, and provide feedback to inform material selection and the preparation of construction documents. Staff further recommends that the Planning Commission determine that the project is statutorily exempt from CEQA pursuant to Section 15262.
Planning Commissioners
within a 500’ Radius: None
EXECUTIVE SUMMARY
The Applicant, City of Laguna Beach Public Works and Utilities Department, is requesting a concept review by the Planning Commission for the proposed Main Beach Boardwalk Improvement Project.
The existing boardwalk consists of approximately 2,045 wood decking boards, generally measuring a 3-inch by 8-inch and measuring approximately 10-12 feet long. The boards are individually tapered as necessary to conform to the curved geometry of the existing boardwalk and are secured to the underlying framing with countersunk fasteners.
The proposed project would replace the aging wood decking while maintaining the existing boardwalk alignment, dimensions, structural configuration, and pedestrian function. Staff is currently evaluating several decking materials, including Douglas Fir, Ipe, tropical hardwoods, and other durable wood or modified-wood alternatives, based on durability, appearance, constructability, maintenance requirements, coastal performance, cost, and long-term lifecycle cost.
The purpose of the project is to extend the useful life of the Main Beach Boardwalk, maintain a safe and attractive pedestrian facility, reduce long-term maintenance requirements where feasible, and preserve the existing character of this prominent coastal public amenity. This request is for concept review only. No formal project approval or construction authorization is requested at this stage.
PC Staff Report
September 16, 2026
BACKGROUND
General Location: Main Beach Park Boardwalk –Marine Safety Headquarters to Laguna Avenue (307 South Coast Highway)
Assessor’s Parcel Number: 496-021-05, -06, -07, -08, -09, -11, -12, & -13 and 644-017-07 & -08
Related Cases: Design Review 24-0311 and Coastal Development Permit 24-0312 (Main Beach Park renovation project, approved June 5, 2024)
Existing General Plan Land
Use Designation:
Zoning Designation:
Use of Property:
PRP (Public Recreation and Parks)
CBD-P (CBD Public Parks) within the Downtown Specific
Plan (DSP) area
Public park with parking, paths, seating, and related
amenities
Surrounding General Plan Land Uses Designations, Zoning Districts, and Use of Properties:
Direction General Plan Land Use Zoning Use
North CBD: Central Business
District
CBD-1: Central
Business District – 1
CBD-V: Visitor
Commercial District
Restaurant, Retail
South PRP (Public Recreation
and Parks)
CBD-P (CBD Public
Parks)
Public beach and Pacific
Ocean
East CBD: Central Business
District
CBD-V: Visitor
Commercial District
Restaurant, Retail
West CTC: Commercial /
Tourist Corridor
CBD: Central Business
District
CBD-V: Visitor
Commercial District
Restaurant, Office, Hotel
PC Staff Report
September 16, 2026
Location Map
Existing Boardwalk Existing Boardwalk Existing Boardwalk Facing South Facing North Facing North
DISCUSSION/ANALYSIS
Proposed Project:
The Main Beach Boardwalk is a heavily used pedestrian facility located within Main Beach Park, extending approximately 1,200 linear feet between the Marine Safety Headquarters and Laguna Avenue. The boardwalk serves as a primary pedestrian route through the park and along the shoreline, accommodating both residents and visitors. It provides pedestrian circulation between the surrounding downtown commercial area, Main Beach Park, and the beach, and is one of the most visible and frequently used public facilities in the City.
The existing decking consists primarily of Douglas Fir and pressure-treated pine wood boards installed over the existing structural framing. The boards are generally nominal 3-inch by 8-inch members, approximately 10 to 12 feet in length, and are individually tapered to accommodate the curved configuration of the boardwalk. The boards are secured to the underlying framing with countersunk fasteners. Individual boards have been replaced over time as deterioration and wear have occurred, and the existing decking varies in age, material, and condition. Although individual PC Staff Report
September 16, 2026
boards have been replaced over time as part of routine maintenance, the proposed project would involve comprehensive replacement of the boardwalk decking rather than continued replacement of isolated deteriorated boards.
Exposure to the marine environment, including sunlight, salt air, moisture, and sand, combined with continuous pedestrian traffic, has contributed to deterioration of the decking. Sand accumulates within and beneath the decking, and individual boards periodically require refastening or replacement. The City is evaluating replacement of the existing decking to extend the useful life of the boardwalk, maintain a safe pedestrian surface, and reduce recurring maintenance while maintaining the existing appearance and function of the facility.
The proposed project consists of removing and replacing the existing wood decking along the boardwalk, consisting of approximately 2,045 boards, while retaining the existing boardwalk footprint, alignment, and underlying structural configuration. The replacement decking will match the existing nominal dimensions and would be custom fabricated or field-cut as necessary to accommodate the curved geometry of the boardwalk. No change to the boardwalk width, length, height, or foundation is proposed, and the project would not expand the facility or change its use.
Any modification to the underlying framing or fastening system that may prove necessary to accommodate the selected material is discussed under Existing Fastening and Constructability below.
The project will also include replacement of deteriorated wood decking at the existing boardwalk access stairs using materials consistent with the selected boardwalk decking material. The existing stair configuration, alignment, and structural supports will be retained unless localized repairs are identified during final design or construction.
The existing fastening configuration will also be evaluated during final design to develop an attachment detail that provides sufficient long-term fastening capacity while maintaining a level, slip-resistant walking surface.
A decking material has not yet been selected. Staff is presenting four alternatives for Planning Commission feedback, as described below. The selected material will determine the final board dimensions, the attachment detail, and the resulting appearance of the boardwalk surface.
Decking Material Alternatives:
As part of the conceptual design process, staff evaluated a range of materials for replacement of the existing Main Beach Boardwalk decking, including natural wood, modified wood, and manufactured decking products. Alternatives were evaluated against the criteria identified below.
Four alternatives have been carried forward for further evaluation and for Planning Commission feedback: Ipe, Pressure-Treated Douglas Fir, Balata (Bulletwood), and Accoya. Each provides a natural wood appearance consistent with the existing boardwalk and offers a different PC Staff Report
September 16, 2026
combination of durability, constructability, availability, maintenance requirements, initial cost, and anticipated service life. Materials have not yet been selected.
The following summary is based on research that includes pricing and availability information obtained from local and regional lumber suppliers, as well as manufacturer literature. Supplier information is on file with the Public Works and Utilities Department. Anticipated service life varies depending on installation, exposure, and maintenance, and the ranges provided reflect current industry guidance. Pricing is presented for relative comparison; detailed unit and total cost estimates will be developed during final design.
Table 1. Materials Selected for Further Evaluation
Material Advantages
Preliminary
Anticipated
Service Life
Considerations /
Disadvantages
Pricing
Estimate
Price Range
Ipe
Exceptional durability and
hardness; excellent
resistance to decay,
moisture, insects, sand
abrasion, and heavy traffic;
long service life; low
maintenance; natural wood
appearance
40–75+
years
High initial cost;
heavy; difficult to cut
and fabricate;
requires pre-drilling;
potential longer lead
times; responsible
sourcing should be
verified
High
PressureTreated
Douglas Fir
Lowest-cost option; readily
available in large
dimensions; easy to cut and
taper; compatible with
existing fastening system;
traditional appearance
consistent with existing
boardwalk
15–30 years Shorter service life;
softer and more
susceptible to
abrasion, dents,
checking, splintering,
and warping; greater
maintenance and
replacement needs
Low
Balata
(Bulletwood)
Very dense and durable
tropical hardwood; strong
resistance to decay,
moisture, insects, and
abrasion; suitable for heavy
pedestrian use; natural wood
appearance
30–50+
years
Availability in 3" x 8"
dimensions must be
confirmed; heavy and
difficult to fabricate;
pre-drilling required;
potential longer lead
times; sourcing and
cost considerations
Medium
Accoya
Excellent dimensional
stability; highly resistant to
moisture and decay; reduced
swelling and shrinking; easier
to machine than dense
tropical hardwoods; natural
wood appearance; lower
maintenance
50+ years Higher initial cost;
availability of large 3"
x 8" sections may be
limited; potentially
longer procurement
lead time; large
custom dimensions
may significantly
affect cost
Medium
PC Staff Report
September 16, 2026
Ipe: Ipe is an extremely dense tropical hardwood that provides exceptional hardness, strength, dimensional stability, and natural resistance to decay, insects, moisture, weathering, and abrasion. These characteristics make it well suited for a heavily used coastal boardwalk exposed to sand, salt air, moisture, sunlight, and continuous pedestrian traffic. Ipe can provide a longer service life than conventional softwoods with relatively low maintenance and can be custom fabricated to accommodate the boardwalk's existing tapered configuration. Its natural brown appearance may be maintained through periodic finishing or allowed to weather naturally to a silver-gray patina (Figure 1B). Considerations include the highest initial cost of the four alternatives, material weight, longer procurement lead times, increased difficulty in cutting and custom fabrication, and pre-drilling requirements. The species marketed as Ipe are subject to international trade controls, and documentation of legal and sustainable sourcing would be required as a condition of any future approval.
Figure 1A: Ipe Hardwood Decking
Figure 1B: Silver-gray patina (naturally weathered Ipe) PC Staff Report
September 16, 2026
Pressure-Treated Douglas Fir: Pressure-treated Douglas Fir is a structural softwood that provides a traditional natural wood appearance similar to the existing Main Beach Boardwalk decking. It is readily available in larger dimensions, relatively easy to cut and custom fabricate, compatible with the existing countersunk fastening system, and is generally the most economical of the alternatives. Pressure treatment improves resistance to decay and moisture compared with untreated Douglas Fir. However, it remains softer and less resistant to abrasion and wear than dense hardwood alternatives and may require more frequent maintenance and replacement over its service life. Potential long-term concerns include splintering, warping, surface wear, and deterioration associated with moisture, sunlight exposure, salt air, sand, and heavy pedestrian traffic. This alternative would most closely replicate the existing boardwalk and would result in the least change to its appearance.
Figure 2: Pressure-Treated Douglas Fir (Existing)
Balata (Bulletwood): Balata is a dense tropical hardwood with high strength, hardness, and natural resistance to decay, moisture, insects, and exterior weathering. Similar to Ipe, its density and resistance to abrasion make it well suited for high-traffic exterior applications and allow it to withstand substantial pedestrian wear, sand abrasion, and coastal exposure. Balata is generally less hard and less wear-resistant than Ipe but provides greater wear resistance and a longer anticipated service life than conventional softwood decking while maintaining a natural wood appearance. Considerations include availability in the required dimensions and quantities, procurement lead times, material weight, increased difficulty in cutting and custom tapering, predrilling and fastening requirements, and cost.
PC Staff Report
September 16, 2026
Figure 3: Balata Hardwood Decking
Accoya: Accoya is a modified natural wood product manufactured through a process that reduces the wood’s ability to absorb water, substantially improving its resistance to swelling, shrinking, warping, moisture, and biological decay. It retains the appearance and workability of natural wood and can be cut and custom fabricated using conventional woodworking methods. Its dimensional stability may be particularly beneficial for the boardwalk by reducing movement around fastening locations and improving long-term performance in changing coastal conditions. Considerations include higher initial cost and whether the required board dimensions and quantities can be procured and fabricated within an acceptable schedule and cost.
Figure 4: Accoya Decking
Other Materials Considered:
Staff also considered several other natural wood alternatives, including Cumaru, Teak, Redwood, and thermally modified wood. These materials offer varying levels of durability and resistance to coastal exposure but were considered less favorable due to factors such as cost, availability in the required dimensions and quantities, fabrication requirements, dimensional stability, and anticipated performance under heavy pedestrian traffic and abrasive beach conditions. The softer alternatives also provide lower resistance to wear and abrasion and may require more frequent maintenance or replacement.
Composite and plastic decking products were also considered due to their resistance to decay and reduced routine maintenance. However, these products may present compatibility challenges PC Staff Report
September 16, 2026
with the existing framing, fastening system, and custom tapered board configuration. In addition, their manufactured appearance would not retain the natural wood character of the existing Main Beach Boardwalk. For these reasons, composite and plastic products were not carried forward.
Material Evaluation:
The boardwalk experiences continuous pedestrian traffic and direct exposure to the marine environment. No single material performs best against every factor, and the selection involves trade-offs among initial cost, service life, constructability, and appearance. Staff’s continued evaluation will consider:
• Durability and expected service life;
• Resistance to moisture, decay, checking, splintering, and abrasion; • Performance under exposure to sand, salt air, and sunlight; • Ability to accommodate the existing tapered board geometry; • Compatibility with the existing structural framing and fastening system; • Slip resistance and pedestrian safety;
• Initial material and fabrication costs;
• Long-term maintenance requirements and lifecycle costs; • Availability in the required dimensions and quantities; • Sustainability and responsible material sourcing;
• Compatibility with the existing character of Main Beach; and • Accessibility and surface continuity, including joint spacing and surface tolerance.
The Planning Commission’s feedback on the relative weight of these factors, particularly appearance, longevity, and sourcing, will inform the material selection.
Existing Fastening and Constructability:
One of the primary design considerations is the connection of the replacement decking to the existing boardwalk framing. The existing nominal 3-inch-thick boards provide sufficient material depth to accommodate countersunk bolts or other mechanical fasteners while maintaining adequate material around the connection. Staff will evaluate the fastening requirements associated with each alternative material and determine whether the existing fastening approach can be retained or whether it must be modified.
Thinner decking products would not provide sufficient depth to replicate the existing countersunk fastening arrangement and would require modifications to the underlying framing or use of an alternative fastening system. For this reason, material thickness and attachment requirements will be considered together when evaluating potential alternatives. The denser hardwood alternatives would also require pre-drilling and may require a different fastener type or spacing than the existing configuration.
Because the boards are individually tapered to follow the curved alignment of the boardwalk, each replacement board would be custom fabricated or field-cut. The density and weight of the PC Staff Report
September 16, 2026
hardwood alternatives may increase fabrication time, drilling, and handling requirements relative to softwood or modified wood.
Construction would occur within the existing boardwalk footprint. Staging, access, phasing, and any temporary pedestrian detours or segment closures would be addressed during final design and through the construction documents, with the objective of maintaining public pedestrian access through Main Beach Park during construction to the maximum extent feasible. The final construction documents will include attachment details identifying board dimensions, fastener type, spacing, countersinking requirements, and connections to the existing framing.
ENTITLEMENT REVIEW PROCESS
The entitlement path for the project depends on the decking material selected and on whether the replacement results in a change to the exterior appearance of the boardwalk. If the work is limited to the replacement of deteriorated improvements for repair and maintenance, the project may qualify as a de minimis capital improvement project exempt from design review pursuant to LBMC Section 25.05.040(B)(2)(bb). If the selected material results in an exterior design change, the project may be eligible for administrative design review as a minor capital improvement project pursuant to LBMC Section 25.05.040(B)(3)(a)(xvii), which applies to alterations to existing facilities resulting in exterior design changes. Under either path, the project may not return to the Planning Commission for design review consideration. If administrative design review is required, the approval would generally be considered by the Zoning Administrator and would be subject to conditions of approval. Staff will confirm the applicable design review path once a material has been selected and the scope of work is defined in the construction documents.
Coastal Development Permit
The applicability of coastal development permit requirements depends on the scope of work ultimately proposed. Replacement of the existing decking in kind, using the same material and without alteration of the existing alignment, dimensions, framing, or foundations, may qualify for an exemption from coastal development permit requirements as repair and maintenance pursuant to LBMC Section 25.07.008(A)(3)(d). If the project instead replaces the existing decking with a material of a different kind, including alteration of the access stairs, framing, fastening system, or foundations, or involves the presence of mechanized construction equipment or construction materials on the sand, an exemption would not apply and a coastal development permit would be required before construction. Because the decking material has not been selected and the construction methods have not been established, no exemption determination is made at this time. Any determination will be made in writing prior to construction and will address the limits on the repair and maintenance exclusion set forth in Public Resources Code Section 30610(d) and Title 14, California Code of Regulations, Section 13252.
No coastal development permit application has been submitted, and coastal development permit requirements are not before the Planning Commission as part of this concept review. The project site is located within an appealable area of the Coastal Zone. Staff will coordinate with the California Coastal Commission to confirm the permit jurisdiction applicable to the boardwalk, PC Staff Report
September 16, 2026
including whether any portion of the work lies within the Coastal Commission's retained permit jurisdiction. If the work is located entirely within the City’s permit jurisdiction, any required coastal development permit would be issued by the City under the certified Local Coastal Program and would be appealable to the Coastal Commission. If any portion of the work is located within the Commission’s retained jurisdiction, that portion would require a permit issued by the Commission, or the two permits could be consolidated pursuant to Public Resources Code Section 30601.3.
ENVIRONMENTAL IMPACT
Pursuant to CEQA Guidelines Section 15262, the concept review is exempt from the California Environmental Quality Act under the statutory exemption for feasibility and planning studies. The project remains in the conceptual stage, no construction is authorized, and any feedback provided by the Planning Commission at this stage is non-binding and does not commit the City to a future action. The appropriate CEQA determination for construction of the project will be made prior to any City approval authorizing construction.
RECOMMENDATION
Staff recommends that the Planning Commission conduct a public hearing, receive the staff presentation, review the conceptual exhibits and decking material alternatives for the proposed Main Beach Boardwalk Improvement Project, consider public testimony, and provide feedback to inform the material selection and the preparation of construction documents.
NOTIFICATION
Pursuant to Title 25 (Zoning) Public Notice, a public hearing notice was mailed on August 25, 2026, in accordance with LBMC Section 25.05.065(D). In addition, a public hearing notice has been posted on the project site on August 25, 2026 at least 10 days before the September 16, 2026 hearing date, in accordance with LBMC Section 25.05.065(E). The notice was mailed to property owners within 300 feet and to tenants within 100 feet of the project site and was posted at three public places in accordance with Government Code Sections 65090 and 65091.
ATTACHMENTS
Attachment 1 – Existing Conditions Photographs
Attachment 2 – Project Location Aerial Exhibit