Opinion ID: 3038212
Heading Depth: 4
Heading Rank: 1

Heading: Individualized Land Use Assessments

Text: Before we apply the terms of RLUIPA, of course, we first must determine if RLUIPA even applies, by examining whether the actions of the County are “individualized assessments of the proposed uses for the property involved.” Id. The County argues that its denial of Guru Nanak’s second CUP application falls outside the legislative scope of RLUIPA because its use permit process is a neutral law of general applicability. However, the plain meaning of § 2000cc(2)(C), quoted above, belies this contention. RLUIPA applies when the government may take into account the particular details of an applicant’s proposed use of land when deciding to permit or deny that use.8 The Sutter County Zoning Code does not permit churches as a matter of right in any of the six types of zoned areas available for church construction. Rather, an entity intending to build a church must first apply for a CUP and be approved by the County. The Zoning Code states, “The County realizes that certain uses . . . may have the potential to negatively impact adjoining properties and uses. Such uses therefore require a more comprehensive review and approval procedure in order to evaluate and mitigate any potentially detrimental impacts.” § 1500-8210. The Zoning Code also outlines how the Sutter County Planning Commission, which has original jurisdiction over such use applications, should determine whether to approve or reject an application: The Planning Commission may approve or condi- 8 The Sutter County Zoning Code undeniably is a “system of land use regulations” within the meaning of RLUIPA because it is a system of “zoning law[s] . . . that limits or restricts a claimant’s use or development of land . . . .” 42 U.S.C. § 2000cc-5. 8602 GURU NANAK SIKH v. COUNTY OF SUTTER tionally approve a use permit if it finds that the establishment, maintenance, or operation of the use or building applied for will or will not, under the circumstances of the particular case, be detrimental to the health, safety, and general welfare of persons residing or working in the neighborhood of such proposed use, or be detrimental or injurious to property and improvement in the neighborhood or to the gen- eral welfare of the County. Additionally, the Commission shall find that the use or activity approved by the use permit is consistent with the General Plan [of Sutter County]. §§ 1500-8216 (emphasis added). The County Board of Supervisors reviews the Planning Commission’s conditional use decisions “de novo and all applications, papers, maps, exhibits and staff recommendations made or presented to the Planning Commission may be considered.” Id. § 1500-312(f). The Sutter County Zoning Code directs the Planning Commission and the Board of Supervisors to “implement [its] system of land use regulations [by making] individualized assessments of the proposed uses of the land involved.” 42 U.S.C. § 2000cc. [2] By its own terms, it appears that RLUIPA does not apply directly to land use regulations, such as the Zoning Code here, which typically are written in general and neutral terms. However, when the Zoning Code is applied to grant or deny a certain use to a particular parcel of land, that application is an “implementation” under 42 U.S.C. § 2000cc(2)(C). See Kaahumanu v. County of Maui, 315 F.3d 1215, 1220-23 (9th Cir. 2003) (concluding in a RLUIPA case that a similar permit process resulted in an administrative, rather than legislative, action because it “was based on the circumstances of the particular case and did not effectuate policy”); Freedom Baptist Church of Delaware County v. Twp. of Middletown, 204 F. Supp. 2d 857, 868-69 (E.D. Pa. 2002) (“No one contests that zoning ordinances must by their nature impose indiGURU NANAK SIKH v. COUNTY OF SUTTER 8603 vidual assessment regimes. That is to say, land use regulations through zoning codes necessarily involve case-by-case evaluations of the propriety of proposed activity against extant land use regulations.”).9 RLUIPA therefore governs the actions of the County in this case.