FOR PUBLICATION



### UNITED STATES COURT OF APPEALS
FOR THE NINTH CIRCUIT

E PONA

, LLC , a California limited liability company; M ICHAEL F OWLER , an individual, Plaintiffs

- Appellants

,

v.

C OUNTY O F V ENTURA , a political
subdivision of the St ate of California; D OES , 1

– 25, Defendants

- Appellees. No. 17

- 55472

D.C. No.
2:16

- cv

- 06372

-

DMG

- PLA

OPINION

Appeal from the United States District Court
for the Central District of California Dolly M. Gee, District Judge, Presiding

Argued and Submitted October 3, 2017 Pasadena, California

Filed December 7, 2017

Before: DIANA GRIBBON MOTZ, * MILAN D. SMITH,
JR.

, a nd JACQUELINE H. NGUYEN , Circuit Judges.

Opinion by Judge Milan D. Smith, Jr.2 E PONA V

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SUMMARY *

Civil Rights

The panel reversed the district court’s dismissal of appellants’ First Amendment claim, affirmed the dismissal of appellants’ Religious Land Use and Institutionalized Persons Act claim, vacated the denial of a preliminary injunction and remanded in an action challenging the County of Ventura’s permitting scheme, which requires individuals
to obtain a Conditional Use Permit to ho st weddings on their properties.

Applying Kaahumanu v. Hawaii

, 682 F.3d 789 (9th Cir. 2012), the panel first held that appellants functioned as wedding “vendors” because they sought to profit from facilitating and providing a commercial space for weddings. The panel held that because they were wedding vendors, they may suffer economic injury as a result of the permitting scheme, and an injunction may redress this harm. Thus, the panel held that appellants had Arti cle III standing to bring their First Amendment challenge.

The panel reversed the dismissal of appellants’ First Amendment claim, holding that the permitting scheme lacked definite and objective standards and also failed to provide any limitation on the time period within which a permit must be approved. Together, these defects conferred unbridled discretion on permitting officials. The panel affirmed the dismissal of appellants’ equal treatment claim

* This summary constitutes no part of the opinion of the court. It has been prepared by court staff for the convenience of the reader.E PONA V

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under the Religious Land Use and Institutionalized Persons Act because appellants did not assert that they were a religious institution or assembly. The panel vacated the district court’s denial of appellants’ motion for a preliminary injunction as to the First Amendment claim because the
motion was no lo nger moot, and remanded to the district
court for its consideration in the first instance.

COUNSEL

Matthew D. Hinks (argued) and Benjamin M. Reznik

, Jeffer Mangels Butler & Mitchell LLP, Los Angeles, California,
for Plaintiffs

- Appellants.

Rond a J. McKaig (argued), Assistant County Counsel; Leroy Smith, County Counsel; County of Ventura County Counsel, Ventura, California ; for Defendants

- Appellees.

OPINION

M. SMITH, Circuit Judge:

Epona, LLC and Michael Fowler (collectively, Appellants) appeal the district court’s order dismissing Appellants’ First Amendment and Religious Land Use and Institutionalized Persons (RLUIPA), 42 U.S.C. § 2000cc et

seq. , claims, and denying as moot Appellants’ motion for a preliminary injunction. Appellants challenge the County of Ventura’s (the County) permitting scheme, which requires individuals to obtain a Conditional Use Permit (CUP) to host weddings on their properties.4 E PONA V

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We reverse the dismissal of Appellants’ First Amendment claim because the permitting scheme v ests permitting officials with unbridled discretion. We affirm the dismissal of Appellants’ equal treatment claim under RLUIPA because neither Appellant is a religious institution or assembly. We vacate the district court’s denial of Appellants’ motion f or a preliminary injunction, and remand
to the district court for its consideration in the first instance because the motion is no longer moot.

FACTUAL AND PROCEDURAL BACKGROUND

Michael Fowler is Epona , LLC’s sole member, and owns
a 40

- acre parcel of land (the property) in Ventura County. The property is zoned for agricultural use, and neighboring properties either are agricultural, or are designated as open spaces. Fowler created a garden area on the property, which he hoped to rent out for use in wedding ceremonies and
related events.

The County’s Non

- Coastal Zoning Ordinance (NCZO) describes permissible land uses in specific zones. NCZO § 8105

- 4. Outdoor weddings are classified as “temporary
outdo or” events under NCZO § 8102

- 0, which encompasses “[o]utdoor recreational events such as harvest festivals, amusement rides, historic re

- enactments, animal events, art shows, concerts, craft fairs, weddings, and religious revival meetings.” In order to ho ld a temporary outdoor event on an agriculturally zoned property, the landowner must apply for
and receive a CUP.

The NCZO provides for issuance of a CUP when certain standards are satisfied, or where “such conditions and limitations, including time limits , as the decision

- making authority deems necessary, are imposed to allow the
standards to be met.” Id. § 8111

- 1.2.1.1. At the timeE PONA V

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Appellants applied for a CUP, the NCZO stated that a permit “may” issue if the applicant meets these standards, and require d the permitting official to make “[s]pecific factual findings” that each standard “can be satisfied.” After the initiation of this litigation, the County amended the CUP scheme to provide that a permit “shall” issue if the relevant
standards have been sa tisfied, and to require specific factual findings in support of an application denial. 1 Id . Under both schemes, the applicant bears the burden of proving that all
of the relevant standards can be met.

Appellants’ CUP application sought permission to use the property for up to 60 temporary outdoor events per year, including weddings. County agencies reviewed the application, and found there were no grounds for denying the permit.

The County’s Planning Commission held a public hearing on Appellants’ applic ation, at which County staff presented its no

- impact findings. After receiving objections from neighboring land owners, the Commission denied the application. In a subsequently issued resolution, the Commission based its denial on the following findings:

(1) The venue is not compatible with the rural community .

. . ;

(2) The venue has the potential to impair the utility of neighboring property or uses and is inconsistent with the finding set
forth in the NCZO § 8111

- 1.2.1.1.c; and

1 The amended CUP scheme is the subject of appeal in this case.6 E PONA V

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(3) The venue has the p otential to be detrimental to the public interest, health, safety, convenience, or welfare and is inconsistent with the finding set forth in
the NCZO § 8111

- 1.2.1.1.d[.]

Appellants appealed the denial of their CUP application to the Board of Supervisors. Contrary to its recommendation in the previous report, this time the Commission staff prepared a report that recommended denial of the CUP application. The Board split its vote evenly on the application, which had the effect of affirming the
Commission’s denial.

Appellants filed a complaint in federal district court on August 24, 2016, followed by an amended complaint on October 7, 2016, both of which alleged (1) abridgment of free speech in violation of the First Amendment and
California Constitution Arti cle 1, § 2; (2) violation of RLUIPA; (3) denial of equal protection under the United States and California Constitutions; (4) civil rights violations pursuant to 42 U.S.C. § 1983; (5) entitlement to a writ of mandate pursuant to California Code of Civil

Pr ocedure § 1094.5; and (6) a request for declaratory relief. Appellants also filed a motion for preliminary injunctive relief on November 4, 2016, seeking to enjoin enforcement of the amended CUP scheme. The County filed a motion to
dismiss for failure to state a claim the same day.

The district court granted the County’s motion to dismiss and denied Appellants’ motion for a preliminary injunction. The district court held that Appellants could only challenge the CUP scheme as applied, and thus dismissed t heir facial challenge to the amended CUP scheme without leave to amend. The court then dismissed, with leave to amend,E PONA V

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Appellants’ as

- applied challenge for failing to plausibly allege that the CUP was improperly denied based on content.
It further held t hat the CUP scheme did not grant unbridled discretion to permitting officials, and did not require time limits within which the County must act on a permit application because the scheme is content neutral. The court similarly dismissed Appellants’ equal protection claims. The district court also found that Appellants had not shown either a substantial burden on religious exercise or unequal treatment as a religious assembly or institution under RLUIPA. Finally, the district court denied Appellants’
moti on for a preliminary injunction as moot because it had dismissed the entire amended complaint. Appellants timely appealed. 2

JURISDICTION AND STANDARD OF REVIEW

We have jurisdiction over this appeal pursuant to
28 U.S.C. § 1291. We review the district cou rt’s dismissal of Appellants’ claims de novo

. Fayer v. Vaughn , 649 F.3d 1061, 1063

– 64 (9th Cir. 2011) (per curiam). We review the district court’s denial of a preliminary injunction for abuse
of discretion. Brookfield Commc’ns, Inc. v. W. Coast Entm’t
C orp. , 174 F.3d 1036, 1045 (9th Cir. 1999).

ANALYSIS

I. Standing

The County argues that Appellants lack standing because (1) they failed to allege a sufficient nexus to the third parties whose rights they are asserting, (2) the affected third parties

2 Appellants appeal the dismissal of their First Amendment claim, the dismissal of their RLUIPA equal terms claim, and the denial of their
motion for preliminary injunctive relief.8 E PONA V

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are fu lly capable of asserting their own rights, and (3) Appellants’ purported injuries are not redressable. These arguments fail.

In order to have Article III standing, a plaintiff must establish (1) that it has suffered an injury in fact that is both

concrete and particularized, and actual or imminent; (2) causation, meaning that the injury is fairly traceable to the complained

- of action; and (3) redressability, which requires a likelihood that the injury will be remedied by a decision in the plaintiff’s favor

. See Friends of the Earth, Inc. v. Laidlaw Envtl. Servs. (TOC), Inc. , 528 U.S. 167, 180

– 81 (2000). “Generally, a plaintiff may only bring a claim on his own behalf, and may not raise claims based on the rights of another party.” Pony v. County of Los A ngeles , 433 F.3d 1138, 1146 (9th Cir. 2006). However, “vendors and those in like positions have been uniformly permitted to resist efforts at restricting their operations by acting as advocates of the rights of third parties who seek access to their marke t or function.” Craig v. Boren , 429 U.S. 190, 195 (1976).

We addressed challenges similar to the County’s first two arguments regarding third

- party standing in Kaahumanu

v. Hawaii , 682 F.3d 789 (9th Cir. 2012). There, a pastor who performed wedding cerem onies, and a non

- profit association of wedding planners, challenged Hawaii’s permitting scheme for commercial weddings on public beaches. See id. at 793, 795

– 96. We held that the association members, each of whom we characterized as a wedding “vendor,” h ad standing to assert a First Amendment challenge to the permitting scheme. 3 Id . at 797

– 98. Application of the

3 While the association was the plaintiff in Kaahumanu , it had standing only because its individual members had standing. See
Kaahumanu , 682 F.3d at 797

– 98.E PONA V

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permitting scheme to commercial weddings caused an economic injury to wedding vendors who made a business out of organizing weddings. Id . at 7 97. Furthermore, the plaintiffs would have been subject to sanction if they had violated the permitting scheme and organized a wedding without authorization, which made them “a proper party in interest to object to [the scheme’s] enforcement.” Id. (quoti ng Craig , 429 U.S. at 193). The plaintiffs also had standing to assert the First Amendment rights of their potential clients because “‘[t]he legal duties created by [the challenged regulations] are addressed directly to vendors such as [the plaintiffs]. [The plaintiffs are] obliged either to heed the regulatory prohibition, thereby incurring a direct economic injury through the constriction of [their] market, or to disobey the regulatory command and suffer’ legal
sanction.” Id. at 798 (alterations omitte d) (quoting Craig

, 429 U.S. at 194).

The County’s redressability argument fares no better. The County argues that Appellants’ requested remedy

— an injunction against the challenged provisions of the County’s permitting scheme

— would fail to redress Appellan ts’ injury. The County reasons that (1) per County regulation, land use is prohibited unless specifically allowed, and (2) outdoor weddings are allowed only if an individual has a CUP under the NCZO; therefore, (3) if the CUP scheme is invalidated, there will be no means of acquiring a permit for outdoor weddings, and such weddings will be entirely disallowed. But application of the County’s logic would effectively insulate every county permitting scheme from constitutional review. Rather than precluding outdoor weddings altogether, elimination of the CUP scheme as it applies to weddings would yield the result that “expressive activities protected by the First Amendment that previously were only conditionally permitted are now unconditionally10 E PONA V

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permitted.” See 3570 E. Foothill Blvd., Inc. v. City of
Pasadena , 912 F. Supp. 1268, 1281 (C.D. Cal. 1996) (emphasis in original). Therefore, an injunction could redress Appellants’ injury.

As in Kaahumanu , Appellants function as wedding
“vendors” becaus e they seek to profit from facilitating and providing a commercial space for weddings. Because they are wedding vendors, they may suffer economic injury as a result of the CUP scheme, and an injunction may redress this
harm. 4 Thus, pursuant to our holdin g in Kaahumanu

, Appellants have Article III standing to bring their First Amendment challenge.

II. First Amendment Claim

A. Appellants can bring a facial challenge to the County’s permitting scheme

In general, courts disfavor facial challenges to legislati on. S. Or. Barter Fair v. Jackson County , 372 F.3d 1128, 1134 (9th Cir. 2004). However, the Supreme Court permits facial challenges to prior restraints of protected expression for two reasons: (1) such restraints may have a chilling effect on protected speech because potential speakers may choose to self

- censor rather than either acquire a license or risk sanction for speaking without one; and (2) where a regulation lacks clear standards for the issuance of a permit, an as

- applied challenge may fail to p rovide

4 To the extent the injunctive relief sought by Appellants is
overbroad , the district court could and should narrow it. See Stormans, Inc. v. Selecky , 586 F.3d 1109, 1140 (9th Cir. 2009) (discussing the district court’s obligation to narrow injunctive relief to proscribe only unconstitutional conduct). But, the need to tail or any injunctive relief to Appellants’ alleged harm does not impact Appellants’ standing.E PONA V

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sufficient protection against content

- based censorship. See City of Lakewood v. Plain Dealer Publ’g Co. , 486 U.S. 750,
757

– 59 (1988); see also Barter Fair , 372 F.3d at 1134

– 35. In accordance with these justifying principles, permitting
schemes are subject to facial challenge if they “have a close enough nexus to expression, or to conduct commonly associated with expression, to pose a real and substantial threat” that protected speech or conduct will be suppressed. City of Lakewood , 486 U.S. at 759 ; see Real v. City of Long
Beach , 852 F.3d 929, 933 (9th Cir. 2017) (concluding a plaintiff can bring a facial First Amendment challenge to a CUP scheme “when he ‘argue[s] that an ordinance .

. . impermissibly restricts a protected activity’” (alterations in original) (quoting Santa Monica Food Not Bombs v. City of
Santa Monica , 450 F.3d 1022, 1033

– 34 (9th Cir. 2006))).

The County argues that Appellants may not bring a facial challenge to the CUP scheme because the NCZO does not directly regulate marriage c eremonies or their content. The County supports its argument by reference to Kaahumanu

, in which we held that the plaintiffs could only bring an as

applied challenge to a regulation requiring a permit for all commercial activity on state beaches, except t o the extent that that regulation vested broad discretion in permitting
officials. See Kaahumanu , 682 F.3d at 800

– 02

.
Two points are relevant. First, unlike the regulation at
issue in Kaahumanu , which applied broadly to every commercial activity on state beaches, the regulation at issue here expressly includes “weddings” as part of a list of regulated activities, and treats other commercial activities (most notably commercial filming) differently. 5 Second,

5 In Kaahumanu , we rested our rejection of the plaintiffs’ facial challenge not only on the breadth of the regulation, but also on the12 E PONA V

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and more significantly, we did permit a facial c hallenge to the licensing scheme in Kaahumanu to the extent that the scheme gave permitting officials unbridled discretion to grant or revoke permits. Id. at 802. True, we require that the grant of discretion present a sufficient nexus to protected

expre ssion so as to pose a “real and substantial threat” of censorship. Id . (quoting Long Beach Area Peace Network v. City of Long Beach , 574 F.3d 1011, 1020 (9th Cir. 2009));
see also Barter Fair , 372 F.3d at 1135. But, where the activity to be permitted or not per the exercise of official discretion is a commercial wedding, this nexus requirement
is satisfied. See Kaahumanu , 682 F.3d at 802; see also

Barter Fair , 372 F.3d at 1136 (holding that a regulation giving discretion over allowing mass gatherings had “a sufficiently close nexus to conduct commonly associated with expression” to be subject to facial challenge).

Here, Appellants challenge the NCZO on the basis that it confers unbridled discretion on the permitting officials reviewing their application t o hold commercial weddings. Thus, Appellants may bring a facial challenge.

B. The NCZO grants permitting officials unbridled
discretion

“While ‘prior restraints are not unconstitutional per se [,] any system of prior restraint comes to [the court] bearing a heavy presumption against its constitutional validity.’” FW/PBS, Inc. v. City of Dallas , 493 U.S. 215, 225 (1990) (alterations omitted) (quoting Se. Promotions, Ltd. v.

regulation’s “f ailure to regul ate in any manner who may officiate at a wedding, who may attend the wedding, what may be worn at a wedding, and what words may be spoken at a wedding ,” 682 F.3d at 801, which the presently challenged regulation also fails to regulate.E PONA V

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Conrad , 420 U.S. 546, 558 (1975)). It is well settled that
“an ordinance which .

. . makes the peaceful enjoyment of freedoms which the Constitution guarantees contingent upon
the uncontrolled will of an official

— as by requiring a permit or license which may be granted or withheld in the discretion
of such official

— is an unconstitutional censorship or prior
restraint.” Shuttlesworth v. City of Birmingham , 394 U.S. 147, 151 (1969) (quoting Staub v. City of Baxley , 355 U.S. 313, 322 (1958)). The heart of Appellants’ argument is that the NCZO imposes an unconstitutional prior restraint on protected speech by vesting permitting officials with unbridled discretion due to the CUP scheme’s (1) lack of definite and objective standards for granting a permit, and (2) failure to specify a timeframe within which a permit must be granted or denied. If the NCZO grants permitting officials an impermissible degree of discretion, then the regulation fails to qualify as a valid time, place, and manner restriction on speech. See Kaahumanu , 682 F.3d at 806

– 07.

1. The CUP scheme lacks definite and objective
standards

“[A] law subjecting the exercise of First Amendment freedoms to the prior restraint of a license, without narrow, objective, and definite standards to guide the licensing authority, is unconstitutional.” Shuttlesworth , 394 U.S. at
150

– 51; see also City of Lakewood , 486 U.S. at 755

– 56. That is, absent definite and objective guiding standards, permit requirements present a “threat of content

- based, discriminatory enforcement.” G.K. Ltd. Travel v. City of Lake Oswego , 436 F.3d 1064, 1082 (9 th Cir. 2006). While permitting guidelines need not eliminate all official discretion, see Ward v. Rock Against Racism , 491 U.S. 781,
793

– 94 (1989), they must be sufficiently specific and objective so as to effectively place some “limits on the14 E PONA V

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authority of City officials to deny a permit,” Desert Outdoor Advert., Inc. v. City of Moreno Valley , 103 F.3d 814, 819 (9th Cir. 1996).

Our cases reflect the context

- specific nature of this unbridled discretion inquiry. In Moreno Valley , we struck
down an ordinanc e under which, prior to granting a permit, officials were required to find that a structure or sign would not “have a harmful effect upon the health or welfare of the general public” or be “detrimental to the welfare of the general public .

. . [or] to the aesthetic quality of the community or the surrounding land uses.” Id. at 818

– 19. The abstract language of the ordinance, paired with the lack of any requirement that officials provide some “evidence to support the conclusion that a particular structure or sign is detrimental to the community,” impermissibly granted officials “unbridled discretion in determining whether a particular structure or sign [would] be harmful to the community’s health, welfare, or ‘aesthetic quality.’” Id . at 819.

We subsequent ly rejected a First Amendment challenge to a permitting scheme in G.K. Ltd. Travel , holding that the sign code at issue there contained sufficient guidelines to avoid the dangers posed by unbridled official discretion.
436 F.3d at 1083. The code required that permitting officials assess whether a sign was “compatible with the surrounding
environment.” Id . While this requirement, standing on its own, provided little authoritative guidance, the terms “surrounding environment” and “compatibility” were expl icitly defined elsewhere in the code by “a limited and objective set of criteria.” Id . The code also provided additional safeguards by requiring that officials render application decisions within a limited time period and “stateE PONA V

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the reasons for [each] de cision to either grant or deny a permit so as to facilitate effective review.” Id

.

In a third case, Desert Outdoor Advertising, Inc. v. City of Oakland , 506 F.3d 798 (9th Cir. 2007), we addressed permitting guidelines that “f[ell] somewhere between the
ab stract standards invalidated in Moreno Valley and the more explicit criteria and procedural requirements upheld in
G.K. Limited Travel .” Id. at 807. Officials were required to determine whether (1) the denial of a variance from the applicable sign restri ctions “would deprive the applicant of privileges enjoyed by owners of similarly zoned property,” (2) a variance would confer a “special privilege” upon the applicant, and (3) strict compliance with the code would “result in practical difficulty or unneces sary hardship inconsistent with the purposes of the zoning restrictions, due to unique physical or topographic circumstances or conditions of design.” 6 Id . at 806. We held that while the procedure’s requirements were “somewhat elastic” and required “reas onable discretion to be exercised by the permitting authority,” they nevertheless contained “appropriate standards cabining the [City’s] discretion.” Id

. at 807 (alteration in original) (quoting Moreno Valley

, 103 F.3d at 818).

As with the scheme in City of Oakland , the scheme here
falls between Moreno Valley and G.K. Ltd. Travel . To obtain permit approval under the amended CUP scheme, an

6 A fourth condition , that a variance “not adversely affect the character, livability, or appropriate development of abutting properties or the surrounding area, and [could] not be detrimental to the public welfare,” was removed from the ordinance while the lawsuit was pendin g. City of Oakland , 506 F.3d at 801

– 02 (alteration in original).16 E PONA V

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applicant must prove “to the satisfaction of the appropriate
decision

- making authority,” that seven conditions can be satisfied. The proposed use must be:

(a) “consistent with the intent and provisions of the County’s General Plan and of Division 8, Chapters 1 and 2, of the Ventura County Ordinance Code;” 7

(b) “compatible with the character of surrounding, legally establ ished development;”

(c) “not [] obnoxious or harmful, [and must not] impair the utility of neighboring property or uses;”

(d) “not [] detrimental to the public interest, health, safety, convenience, or welfare;”

(e) “compatible with existing and potential land uses in the general area where the development is to be located;”

(f) “on a legal lot; and”

7 Chapter 1 describes the Code’s purpose as: “ to protect and promote the public health, safety and general welfare; to provide the environmental, economic and social advantages which result from an orderly, planned use of resources; to establish the most beneficial and convenient relationships among land uses and to implement Ventura County’ s General Plan. ” NCZO § 8101

- 1.E PONA V

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(g) “approved in accordance with the California Environmental Quality Act and all other applicable laws.”

NCZO § 8111

- 1.2.1.1.

The permitting official must be satisfied that every
condition has been or will be met. See id. Thus, if one condition confers an impermissible degree of discretion, the specificity of a separate condition will not save the scheme.

Criteria (f) and (g), located “on a legal lot” and “ap proved in accordance with [CEQA],” are objective. Conditions (a) through (e), however, echo those that we previously have concluded do not provide sufficient guidance to permitting officials. Unlike G.K. Ltd. Travel

, these standards are not defined elsewhere by a limited and objective set of criteria. In particular, conditions (c) and (d) mirror the requirements we struck down in Moreno Valley that a proposed use not “have a harmful effect upon the health or welfare of the general public” or be “de trimental to the welfare of the general public .

. . [or] to the aesthetic quality of the community or the surrounding land uses.”
103 F.3d at 818. In that case, we were particularly concerned about the combination of abstract language, and
the lack of a requirement that permitting officials support their decision with objective evidence. Id . at 819.

The County argues that other provisions of the NCZO provide additional specific factors for permitting officials to consider when applying the CUP requireme nts, making the ordinance more akin to that upheld in G.K. Ltd. Travel . This argument is unsuccessful because these additional factors do not apply to the issuance of CUPs. Instead, they expressly apply “in establishing permit conditions” for development projects. NCZO § 8109

- 0.1. While planned developments18 E PONA V

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are governed by both section 8111

- 1.2.1.1 and section 8109

- 0.1, there is no indication that CUPs are governed by NCZO § 8109

- 0.1 and there is no cross reference between sections
8111

- 1.2.1.1 and 8109

- 0.1. Therefore, the additional factors do not appear to apply to the issuance of a CUP.

The amended CUP scheme, however, differs from the
scheme at issue in Moreno Valley in that it requires the permitting official to make “specific factual findings” t o support an adverse decision.

We have explained that “requiring officials to state the reasons for a license denial provides an important check on official discretion by ‘facilitat[ing] effective review of the official’s determination’ and ‘ensur[ing] that the
determination .

. . is properly limited in scope.’” Seattle Affiliate of Oct. 22nd Coal. to Stop Police Brutality, Repression and Criminalization of a Generation v. City of
Seattle , 550 F.3d 788, 801 (9th Cir. 2008) (alterations in original) (quoting G.K. Ltd. Travel , 436 F.3d at 1083). The amended CUP scheme requires specific factual findings in support of a permit denial. However, it is unclear whether the amendment requires the Commission to provide gr eater specificity than before.

On the one hand , at the public hearing in support of the amendment to the CUP scheme, the County stated that the amendments “do not make any substantive changes to the findings of approval for these permits,” and specifically in regard to the newly explicit need for find ings in support of a denial, it noted that the “board is already doing this.” This suggests that the amendment might not require any greaterE PONA V

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specificity than before. 8 On the other hand, the County also explained a new procedural requirement according to which the Commission would issue a factual report setting forth its recommendation on a permit application, which the Board would either adopt or, if it disagreed with the recommendation, respond with a resolution “formaliz[ing] and very clearly articulat[ ing] the facts which preclude [it] from making the findings of approval.” This procedural change suggests a greater degree of specific fact finding is required under the amended regulation.

Neither the provision of specific guidelines nor a requirement of specific factual findings is “necessarily
determinative of whether a statute confers excess
discretion.” Id. at 798

– 99. Rather, we look to the totality of
the factors to assess whether an ordinance “contains adequate safeguards to protect against offici al abuse.” Id . at 799. In light of the specific nature of this case and the

8 Indeed, the facts of this case demonstrate that little specificity w as required under the original scheme. Here, the Commission supported its denial of Appellants’ CUP application under the original scheme with findings that the proposed use (1) “is not compatible with the rural community,” (2) “has the potential to impai r the utility of neighboring property or uses and is inconsistent with finding [sic] set forth in the
NCZO § 8111

- 1.2.1.1.c,” and (3) “has the potential to be detrimental to the public interest, health, safety, convenience, or welfare and is
inconsistent w ith the finding set forth in the NCZO § 8111

- 1.2.1.1.d.” None of these findings is specific. The first specifies that the proposed use is “not compatible” with the community, but provides no explanation

as to why , and thus says no more than that the prop osed use fails to meet condition (b). Similarly, findings two and three each note the use’s “potential” to violate one of multiple disjunctive conditions, then state only that the proposed use violates conditions (c) and (d), respectively. Neither explai ns why the use would be in violation nor what specific aspect of the given conditions would be violated. The Commission’s findings here provided little, if any, check on official discretion.20 E PONA V

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existence of multiple conditions that we previously have concluded are not definite and specific, the CUP scheme fails to provide definite and specific guidelines for permitting officials. Cf. id. (“Because Seattle has neither a binding interpretation of the Parade Ordinance nor any well

established practices governing the exercise of official discretion, the only question before us is whether the Ordinance, on its face, provides sufficient guidance to these officials.”).

2. The CUP scheme lacks a time limit

In Freedman v. Maryland , 380 U.S. 51 (1965), the Supreme Court set forth procedural safeguards required to render a prior restraint on speech constitutional. Id. at 58

– 59. Among these procedural requirements is a guarantee that the licensor “will, within a specified brief period, either issue a license or go to court,” id. at 59, because “[w]here the licensor has unlimited time within which to issue a license,
th e risk of arbitrary suppression is as great as the provision of unbridled discretion,” FW/PBS , 493 U.S. at 227; see Real

, 852 F.3d at 935.

While the Freedman safeguards are not required for

content

- neutral time, place, and manner permit schemes, see Thomas v. Chi. Park Dist. , 534 U.S. 316, 322

– 23 (2002), a permitting scheme is not “content neutral” if it vests unbridled discretion in a permitting official, s ee Kaahumanu , 682 F.3d at 806 (adopting the view that “the viewpoint neutrality requirement includes the prohibition on a licensing authority’s unbridled discretion”); see also Forsyth County v. Nationalist Movement , 505 U.S. 123, 130 (1992) (noting that unbridled discretion raises specter of viewpoint discrimination); City of Lakewood , 486 U.S. at
763

– 64 (same). Because the CUP scheme lacks adequate standards for official decision making and specificallyE PONA V

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targets weddings, it necessarily also requires the time limitation contemplated by Freedman

. Cf. Real , 852 F.3d at 935 (concluding a tattoo artist rais ed a cognizable prior

restraint claim where the ordinance vested excessive discretion with the permitting city and lacked time limits to grant or deny a CUP); Seattle Affiliate , 550 F.3d at 798 (noting the Supreme Court’s concern about statutes that do

not contain mechanisms for review of decisions).

The NCZO does not itself identify any specified time period within which a permitting decision must be made. Citing Citizens for Free Speech, LLC v. County of Alameda

, 114 F. Supp. 3d 952, 965

– 66 (N.D. Cal. 20 15), the County argues that the California Permit Streamlining Act (CPSA) provides a time limit that cabins official discretion. We disagree. The CPSA only applies to “development projects”
as defined in California Government Code § 65928, which
“include s a project involving the issuance of a permit for
construction or reconstruction but not a permit to operate.”
Id. (emphasis added). Because a permit to host weddings will not necessarily require construction or reconstruction,
the CPSA time limits do n ot apply. See 3560 E. Foothill
Blvd ., 912 F. Supp. at 1276 (finding that the time limits provided by the CPSA do not limit the timeframe for issuing a permit on a specific use of property where neither construction nor reconstruction would necessarily be required).

The NCZO’s failure to provide any limitation on the time period within which a permit must be approved further compounds the problem created by the lack of definite standards for permitting officials. See, e.g.

, FW/PBS

, 493 U.S. at 226

– 27. Together, these defects confer unbridled discretion on permitting officials in violation of
the First Amendment. See Real , 852 F.3d at 935. We22 E PONA V

. C OUNTY OF V ENTURA

therefore reverse the district court’s dismissal of Appellants’
First Amendment claim.

III. RL UIPA Equal Treatment Claim

To bring an equal treatment claim under RLUIPA, “(1) there must be an imposition or implementation of a
land

- use regulation, (2) by a government, (3) on a religious assembly or institution,” and (4) the regulation must treat the religious assembly or institution “on less than equal terms with a nonreligious assembly or institution.” Centro Familiar Cristiano Buenas Nuevas v. City of Yuma , 651 F.3d 1163, 1170

– 71 (9th Cir. 2011); see 42 U.S.C. § 2000cc(b)(1). Appellants do not arg ue that they are a religious assembly or institution. Instead, they contend that a plaintiff need not be a religious assembly or institution in order to bring an equal treatment claim.

In Centro Familiar , when discussing the plaintiff’s equal terms claim, we held that “the government, not the religious institution,” bears the burden of persuasion “once the religious institution establishes a prima facie case.” Centro
Familiar , 651 F.3d at 1171. This repeated reference to “religious institution” indicates that a plaintiff must be a religious assembly or institution to bring an equal terms claim, and we so hold. Consistent with this holding, the Third, Fifth, and Eleventh Circuits also require that a RLUIPA plaintiff be a religious assembly or institution in order to bring an unequal treatment claim. See Opulent Life Church v. City of Holly Springs , 697 F.3d 279, 290 (5th Cir. 2012) (finding appellant was a religious assembly or institution); Lighthouse Inst. for Evangelism, Inc. v. City of Long Branch , 51 0 F.3d 253, 270 (3d Cir. 2007); Primera Iglesia Bautista Hispana of Boca Raton, Inc. v. Broward County , 450 F.3d 1295, 1307

– 08 (11th Cir. 2006); see also Tree of Life Christian Schs. v. City of Upper Arlington

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823 F.3d 365, 377

– 78 (6th Cir. 2016) (White, J., concurring in part and dissenting in part) (citing Primera Iglesia

, 450 F.3d at 1307).

Appellants advance two more arguments regarding their equal terms claim. First, they contend that they may bring an equal terms claim because the use of their prope rty for weddings falls within RLUIPA’s definition of religious exercise. However, the cases cited by Appellants all involve a substantial burden claim, of which religious exercise is an
element. See, e.g. , Westchester Day Sch. v. Village of
Mamaroneck , 5 04 F.3d 338, 347

– 48 (2d Cir. 2007); see also
42 U.S.C. § 2000cc(a)(1). Because religious exercise is not an element in the equal treatment analysis, this argument is unavailing. See 42 U.S.C. § 2000cc(b)(1). Second, Appellants argue that Article III sta nding is enough to bring any RLUIPA claim. While Appellants are correct that standing under RLUIPA “shall be governed by the general rules of standing under Article III,” 42 U.S.C. § 2000cc

- 2(a), Appellants must still satisfy the elements for an equal ter ms claim to prevail thereon. Because Appellants are not a religious assembly or institution, the district court’s dismissal of Appellants’ equal treatment claim was proper.

IV

. Preliminary Injunction

After the district court dismissed all of Appellants’

c laims, it denied Appellants’ motion for a preliminary injunction as moot. The district court never considered whether Appellants had demonstrated a likelihood of success or irreparable harm, nor whether the balance of equities and public interest favor in junctive relief. See All. for the Wild Rockies v. Cottrell , 632 F.3d 1127, 1131 (9th Cir. 2011) (citing Winter v. Nat. Res. Def. Council, Inc.

, 555 U.S. 7, 20 (2008)).24 E PONA V

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Because we reverse the district court’s dismissal of Appellants’ First Amendment claim, Appellants’ motion for a preliminary injunction is no longer moot. Therefore, we
vacate the district court’s denial of the motion on that ground. But, because “[a] preliminary injunction is an extraordinary remedy never awarded as of right,” Winter

, 555 U.S. at 24 (citing Munaf v. Geren , 553 U.S. 674, 689

– 90 (2008)), and “[t]he grant of a preliminary injunction is a matter committed to the discretion of the trial judge,” Sierra
On

- Line, Inc. v. Phoenix Software, Inc. , 739 F.2d 1415, 1421 (9th Cir. 1984), we remand this case to the district court for
consideration of all the Winter factors in the first instance.
See Evans v. Shoshone

- Bannock Land Use Policy Comm’n

, 736 F.3d 1298, 1307 (9th Cir. 2013).

CONCLUSION

For the foregoing reasons, we reverse the d istrict court’s dismissal of Appellants’ First Amendment claim, affirm the district court’s dismissal of Appellants’ RLUIPA equal treatment claim, vacate the denial of Appellants’ motion for a preliminary injunction, and remand to the district court for

co nsideration of the motion for a preliminary injunction.

Each party shall bear its own costs on appeal. See Fed. R. App. P. 39(a)(4).

REVERSED IN PART, AFFIRMED IN PART, VACATED IN PART, REMANDED.