Lake Forest City Council adopts 45‑day moratorium on massage establishments

On Aug. 19, 2025, the Lake Forest City Council voted unanimously to adopt an interim urgency ordinance establishing a 45‑day moratorium on new massage-establishment permits and related building permits while staff reviews city code and enforcement options.

The moratorium, described by Community Development Director Gail Ackerman during the meeting, is intended to give staff time to "review pertinent codes, evaluate inspection protocols, consult with other agencies including Orange County Sheriff's Department, and consider ways to regulate personal care businesses." Ackerman told the council the city could extend the pause twice, to a maximum total of two years if needed.

City staff and the city attorney told the council the action is a common land-use tool. The city attorney said the government code "actually allows for interim urgency ordinances, which are known colloquially as moratoria," and framed the measure as a standard planning step to study an issue before making code changes.

In her presentation, Ackerman described the city’s existing regulatory framework and enforcement history. She said massage businesses in Lake Forest require a use permit, a background check and an annual license under Chapter 5 of the Lake Forest Municipal Code, and that the city has previously revoked licenses and denied renewals when law enforcement reported illicit activity. Ackerman presented a chart showing historical license counts (18 licenses in 2007; as many as 42 in 2019; and 18 licenses currently) and noted staff had identified about 27 personal care businesses that are not currently regulated under the massage-specific rules.

Council discussion focused on geographic scope and enforcement. Some members urged a citywide moratorium to avoid unequal treatment across neighborhoods; one councilmember recommended concentrating on the western commercial corridor because that area has the greatest number of massage and personal-care businesses. The council ultimately approved a citywide pause. The council and staff clarified that existing licensed massage establishments may continue to operate during the moratorium, while pending applications would be paused for the moratorium period.

Public commenters offered competing views. Resident Brian McMillan called the item unnecessary and said the action risked legal exposure; he criticized the council’s enforcement approach during public comment. Other speakers at the meeting recounted recent law-enforcement investigations and cited concerns about prostitution and human trafficking linked to some unregulated uses.

Council members instructed staff to work with the Orange County Sheriff's Department, code enforcement and the city attorney to study options, report back to the council within the 45‑day period, and, if warranted, present any ordinance or code amendments for further council action. The motion to adopt the interim urgency ordinance passed unanimously.

Staff will return to the City Council with findings and recommended regulatory changes within 45 days; the government code allows an initial 45‑day moratorium and provides for extensions if the council chooses to continue the pause while drafting permanent regulations.