In Perez v. City of San Antonio, (5th Cir., Aug. 13, 2025), the U.S. 5th Circuit Court of Appeals in a 2-1 decision affirmed a trial court's refusal to enjoin San Antonio's development plan for a city park. Plaintiffs are members of the Lipan-Apache Native American Church. Certain of their religious ceremonies can take place only at a particular river bend in the park and require the presence of cormorants in the trees there. The development plans involve removing and relocation of trees and modifying bird habitats to deter birds from nesting in highly urbanized areas of the park. Plaintiffs claim that removal of trees and the bird deterrence program violate their religious freedom protected by the 1st Amendment, the Texas Religious Freedom Restoration Act, and the Texas Constitution. In a prior opinion, the 5th Circuit certified to the Texas Supreme Court a question on the meaning of a 2021 amendment to the Texas Constitution that prohibits the government from interfering with religious services. In response, the Texas Supreme Court said that the constitutional provision does not extend to governmental actions for the preservation and management of public lands.
In this week's decision, the majority, refusing to grant an injunction pending further appeal, held that the project did not violate the Texas Religious Freedom Restoration Act, saying in part:
... [T]he City’s development plan only indirectly impacts Appellants’ religious conduct and expression. Appellants continue to have virtually unlimited access to the Park for religious and cultural purposes. The record shows that, regardless of the rookery management program, no cormorants, due to their migration patterns, inhabit the area for extended periods of time each year....
Appellants did not meet their burden to show that they are likely to succeed on their claim that the plan constitutes a substantial burden of their religious exercise. Even if they did, that would not change the outcome of this appeal because the City’s plan advances a compelling interest through the least restrictive means—and thus survives strict scrutiny.
The majority also held that the city's program did not violate the 1st Amendment, saying in part:
The parties’ dispute under the Free Exercise Clause centers on which standard of constitutional review applies to the instant case, rational basis or strict scrutiny. Appellants argue that the City’s plans for tree removal and rookery management measures are not neutral and generally applicable and, therefore, must be analyzed under the more exacting strict scrutiny standard. The City contends that its planned Park improvements are neutral and generally applicable and that the more deferential rational basis standard of review applies. Assuming strict scrutiny applies, we conclude that the challenged government action in this case withstands Appellants’ Free Exercise challenge, as illustrated infra in the TRFRA claim analysis.
Judge Higginson dissented in part, saying in part:
Despite my respect for the majority’s analysis, I continue to think that Appellants’ religious exercise is substantially burdened and that the City of San Antonio ... failed to accommodate Appellants’ religious beliefs in the least restrictive manner. I would therefore hold that the Texas Religious Freedom Restoration Act (“TRFRA”) requires the City to accommodate Appellants’ religious beliefs across two “items of relief” requested in the complaint: the City’s tree-removal (“Item 2”) and anti-nesting (“Item 3”) measures....
Appellants’ testimony shows that services at the riverbend would be “meaningless” without the trees or the cormorants, and that disruption to either will “unravel” the land’s spiritual ecology—a sine qua non for Church members’ religious exercise. Just as importantly, Appellants’ testimony confirms that these services cannot “be performed anywhere else.”...
To the extent the majority suggests that Appellants can obtain spiritual fulfilment by exercising their religious beliefs in a manner contrary to their testimony, such reasoning is forbidden.