Laguna Beach council designates Lower Forest Avenue a slow street, denies appeals and clears way for promenade design review

The Laguna Beach City Council on June 10 adopted a resolution designating the lower portion of Forest Avenue as a slow street, denied multiple appeals of planning approvals for the Promenade on Forest project and found the project falls within the state pedestrian-facility exemption to the California Environmental Quality Act (CEQA).

City Manager Louis Lacassella and project staff told the council the Promenade is a multi-component project that would create a permanent pedestrian plaza on Lower Forest Avenue with widened walkways, new planting, trench drains, brick pavers and space for outdoor dining, public art and performances. Assistant planner Jane (last name not specified in record) reviewed the city’s legal analysis and said the project meets the statutory CEQA exemption for pedestrian and bicycle facilities under Public Resources Code §21080.25(b)(1). “The project qualifies for the statutory exemption as a pedestrian facility within the public right of way,” Jane told the council during the staff presentation.

The project requires several entitlements: adoption of a Slow Streets resolution (based on the California Vehicle Code), a coastal development permit for closure of Lower Forest Avenue, and design review and coastal development permits for the street and streetscape improvements. Planning Commission approval and a director’s coastal permit previously issued those entitlements; opponents filed appeals arguing process, outreach and design concerns.

Staff summarized outreach that included focus groups, public workshops, council/commission briefings and mailed notices. The city’s traffic and parking consultants reported in 2022 that parking utilization in a 1,000-foot study area met the city’s target 85 percent benchmark during survey periods; staff noted subsequent measures — after-hours library parking, microtransit — that reduced on-street demand further. The city-engineered hydrology report prepared by Somas found the proposed drainage pattern would not markedly change existing flow patterns, that trench drains on the promenade would connect to the existing 24-inch outfall to Laguna Channel, and that permeable surfaces would improve low-flow water quality treatment.

The public comment period drew more than 100 speakers and more than 800 petition signatures on opposing and supporting sides. Supporters — including Erin Slattery, CEO of the Laguna Beach Chamber of Commerce, and arts and school organizations — said the promenade has produced increased foot traffic, programming and family-friendly gathering space. Slattery told the council, “The Laguna Beach Chamber of Commerce supports the Promenade on Forest project… This outdoor space will provide additional chances for residents to visit local restaurants and enjoy outdoor meals.”

Opponents clustered around Village Laguna and business owners who said loss of about 48 on-street parking spaces and months of construction would harm retail merchants and the historic “Main Street” character. Merrill Anderson, president of Village Laguna, urged the council to postpone or reconsider the permanent closure and to explore hybrid options. “We urge you not to go forward with the project as proposed and listen to the hundreds of community members who do not want to lose their beloved Forest Avenue,” Anderson said.

After extended deliberation, the council adopted the Slow Streets resolution with one added timing modification: the resolution designates Lower Forest Avenue a slow street but authorizes closure to vehicular traffic upon award of a construction contract for the promenade improvements, giving council oversight on proceeding to permanent closure once bids and final costs are known. The council also denied the appeals and sustained the Planning Commission’s conditional approval of the design review and coastal development permits, and found the project actions fall within the statutory CEQA exemption noted above.

Councilmembers said they are sensitive to small-business impacts and directed staff to continue working on mitigation measures for merchants during construction, to refine the final design and landscape plans in public with the Planning Commission, and to return with final construction documents and budgeted project costs before awarding a construction contract.

The actions recorded in the minutes were: adoption of the Slow Streets resolution (with the timing clause tying closure to contract award), denial of appeals and sustainment of the planning commission’s approvals, and adoption of the CEQA exemption finding. The council vote on the planning-approval motion was recorded as 5-0. Staff said further steps will include final design, material and landscape confirmation with the Planning Commission working group and a public materials/color review before construction bidding.