Revised stem
Emmaus City's land-use code provides that a person who wants to operate a community residence must obtain a conditional-use permit from the city's land-use commission. The code defines a community residence as a dwelling in which six or more unrelated adults live together. Daniel applied for a permit to run Barnabas House, an ordinary fee-based residence for adults moving from prison sentences into parole supervision. Barnabas House satisfied every listed condition for the permit. The commission nonetheless denied the application because of the proposed use. Daniel sued the commission for declaratory and injunctive relief under the Constitution. Which statement best describes the burden of persuasion?