"However, if you plan a photo shoot in the City of Laguna Beach, whether commercial or non-commercial, be ready to file for a permit. Otherwise, you’ll need to pay a fine."
I think the issue here is defining what a photo shoot is. But the city I'm sure has no issue with writing the ticket and having you figure that out in front of a judge.
I'm sure this came about because the locals (rich) were sick and tired of the hoi poloi driving in from, gasp, inland areas with the sole intent to use 'their' (public) beach as a back drop.
In a way I don't blame them, places like this have become swarmed with photogs taking family/engagement/wedding/divorce/my kid graduated kindergarden shoots.