Planning staff recommends approval of Zone Change 1078 and adoption of the findings of the ten review criteria. 

The Billings area has experienced significant growth over the past decade, with housing demand exceeding the available supply. Development at the city’s edge presents challenges in transitioning between existing county properties and new urban neighborhoods. The proposed PND-MU zoning will address these challenges by incorporating buffering, connectivity, and coordinated right-of-way planning.

The proposal aligns with the 2016 Billings Growth Policy and the 2001 West Billings Neighborhood Plan, both of which encourage compatible land uses, a range of housing options, varied development densities, and more walkable neighborhoods connected to services and alternative transportation.

The plan proposes commercial development along Central Avenue with medium-density residential areas extending north into the property, supporting neighborhood services and expanding housing opportunities. The property is within the City’s Limits of Annexation (Zone 1), with annexation occurring concurrently with the zone change. Future subdivision and Master Site Plan reviews will address infrastructure, traffic, utilities, and site design to ensure coordinated and well-planned development as City services continue expanding in the area.

This is a zone change request from county zoning of Agriculture (A) to Corridor Mixed-Use 1 (CMU1), Mixed Residential 1 (NX1), Mid-Century Residential (N2), Suburban Neighborhood Residential (N3), and Parks and Open Space 1 (P1) on 58.1 acres. The property is generally located north of Central Avenue and west of 44th Street W. The proposed Mixed-Use PND will include 5.2 acres of CMU1 on the Central Avenue frontage, 2.4 acres of NX1, 23.7 acres of N2, 23.6 acres of N3, and 3.2 acres of P1.  

This area of Billings has experienced a great deal of growth and development over the past decade. Housing demand has reached a high level while supply of all types of housing choices has not kept up with the demand.  Development on the edge of the City of Billings (City) presents challenges, including ensuring appropriate transitions between adjacent county properties and new urban neighborhoods. While these transitions do not require homogeneity, the development plan will include buffering, connectivity that supports the planned network in the neighborhood and existing and needed right of way (ROW) dedications.

The 2016 Billings Growth Policy and the 2001 West Billings Neighborhood Plan both support the intent of the proposed Mixed Use PND zoning.  The West Billings Neighborhood Plan goals and objectives emphasizes locating compatible land uses and providing a range of housing choices and development densities, goals supported by the proposed zone change. Similarly, the 2016 Billings Growth Policy supports a broad range of housing choices, encourages more walkable neighborhoods with connectivity to other transportation options and neighborhood services, and building the community fabric through urban designed public spaces, objectives also supported by the proposed zoning. Providing commercial zoning along Central Avenue, with medium density residential development north into the interior of the property fits well with providing urban services and housing choices.

The subject property is located within the City’s Limits of Annexation (Zone 1), with the annexation petition proceeding concurrently with the proposed zone change. Following annexation and zoning, the property will undergo subdivision review to evaluate traffic impacts, connectivity, public utilities, and other applicable design requirements. Development of multiple structures on individual lots will require Master Site Plan approval, which will address overall site layout, including roadway design, building placement, landscaping, and utility infrastructure.

Although located at the edge of the City, the area has seen recent extension of City services beginning in 2024 with the annexation of approximately 48 acres across Central Avenue. The property is therefore well-positioned for coordinated urban development, consistent with the City’s long-range plans for infrastructure expansion, additional annexation along 48th Street West, and the extension of roadway and utility networks in the surrounding area.

APPLICATION DATA:
APPLICANT:  Diane Brown, Donna Barber-Schneider, Karin Barber
AGENT:    Taylor Kasperick, Performance Engineering
LEGAL DESCRIPTION:    Parcel 1A of COS 2007; underwent county subdivision as Lot 3 of Barber Farms Subdivision located in S03, T01 S, R25 E
ADDRESS:    N/A
CURRENT ZONING:    Agricultural (Ag)
PROPOSED ZONING:    CMU1, NX1, N2, N3 and P1
EXISTING LAND USE:    Agriculture/Vacant
PROPOSED LAND USE:    Mixed Use
SIZE OF PARCEL(S):   58.1 acres (approximately)
 
SURROUNDING LAND USE & ZONING:
NORTH Zoning:    Rural Residential 1 (RR1, County)
NORTH Land Use:    Residential
SOUTH Zoning:    Corridor Mixed-Use 1 (CMU1), Mixed Residential 2 (NX2), and Large Lot Suburban Neighborhood Residential (N4, County)
SOUTH Land Use:   Vacant land directly across Central Avenue with existing residential development further south.
EAST Zoning:    Rural Residential 3 (RR3, County) and RR1
EAST Land Use:    Residential
WEST Zoning:    N4
WEST Land Use:     Residential

SUMMARY
Before making a recommendation to the City Council, the Zoning Commission shall consider the following findings of the ten review criteria:
1)    Is the new zoning designed in accordance with the Growth Policy?
The proposed PND-MU zoning is consistent with the 2016 Billings Growth Policy. The development supports the City's goals for housing diversity, walkable and safe neighborhoods, efficient use of infrastructure, and long-term economic vitality. The following sections summarize key Growth Policy goals.
Strong Neighborhoods:

• Zoning regulations that allow a mixture of housing types provide housing options for all age groups and income levels in neighborhood areas.
• Walkable neighborhoods that permit convenient destinations such as neighborhood services, open space, parks, schools and public gathering spaces foster health, goodwill and social interaction.
• Safe and livable neighborhoods can be achieved through subdivision design that focuses on complete streets, connectivity, pedestrian-scale streetlights, street trees and walkable access to public spaces.
• Neighborhoods that are safe and attractive and provide essential services are much desired.

Home Base:

•  A mix of housing types that meet the needs of a diverse population is important.
• Common to all types of housing choices is the desire to live in surroundings that are affordable, healthy and safe. 
• Planning and construction of interconnected sidewalks and trails are important to the economy and livability of Billings.
• Homes that are safe and sound support a healthy community.

Essential Investments

• Infill development and development near existing City infrastructure may be the most cost-effective.  
• Neighborhoods that are safe and attractive and provide essential services are much desired.
• Infrastructure and service investments that stabilize or improve property values, secure future utility costs, consider maintenance costs, and improve environmental quality far into the future (i.e., energy efficient) are desirable.

The proposed zoning supports these objectives by providing a mix of residential types (single-family, duplex, and multi- family units) to meet diverse population needs. The inclusion of CMU1 commercial uses creates convenient neighborhood destinations, fostering walkability and social interaction. Subdivision design standards will incorporate complete streets and pedestrian-scale lighting, ensuring safe streetscapes. By locating development near existing city infrastructure, the project uses public services efficiently and promotes orderly growth. Commercial and residential integration also contributes to long-term economic activity.

The 2016 Growth Policy identifies three growth scenarios: High Density, Low Density, and Public Preferred. The High Density scenario envisions up to 16 dwelling units per acre, while the Low Density scenario identifies approximately 5 dwelling units per acre. The Public Preferred scenario targets roughly 9 dwelling units per acre. The proposed development includes a proposal for approximately 360 dwelling units on 58.1(gross) acres, resulting in approximately 6 dwelling units/acre, which is closer to the Low Density scenario, reflecting a balanced approach to neighborhood scale and intensity. 

The West Billings Neighborhood Plan goals and objectives stated the need to locate compatible uses and offer a range of housing choices and development densities. The West Billings Plan adopted a number of Goals, Policies, and Implementation Strategies. The proposed PND-MU for the property is consistent with the following adopted Policies of Planned Growth.
Goal 1: Establish Development Patterns that Use Land More Efficiently

•   Policy E Commercial nodes should contain business development sites of various sizes to accommodate a variety of businesses.
•   Policy M Development in the West Billings planning area shall provide for a variety of residential types and densities.
•   Policy R Encourage innovative land-use planning techniques to be used in building higher density and mixed-use developments as well as infill developments.

The proposed zoning is consistent with applicable policies by establishing a smaller-scale commercial node, consisting of approximately 2 acres of CMU1 located across Central Avenue and an additional 3.4 acres of CMU1 within the project site. This configuration accommodates a range of commercial uses while maintaining compatibility with surrounding development patterns.

The residential zoning districts of N2, N3, NX1, and CMU1 allow for densities ranging from 1 to 9 or more dwelling units per structure, supporting a variety of housing types in alignment with Policy M. Surrounding county residential subdivisions, including Cloverleaf and Sundance, exhibit densities ranging from just under 1 to slightly over 2 dwelling units per acre. In comparison, nearby City developments such as 44 West and Clearwater exceed 9 dwelling units per acre, while Twin Pines Condominiums are developed at approximately 6 dwelling units per acre.

At an overall density of approximately 6 dwelling units per acre, the proposed PND-MU provides an appropriate transition between lower-density county development and higher-density urban neighborhoods, while advancing the Comprehensive Plan’s objective of providing a diverse mix of housing types and densities.

2)    Is the new zoning designed to secure from fire and other dangers?
All zoning districts within the project, including CMU1, NX1, N2, N3 and P1, are subject to established setbacks/build-to, height restrictions, and building codes, which help maintain safe separation between structures and minimize fire and other hazards. Subdivision and Master Site Plan reviews ensure that streets and access points are designed to provide adequate emergency vehicle access throughout the development. Building design and materials will comply with the International Building Code and International Fire Code, which regulate safe egress and hydrant location.

3)    Whether the new zoning will promote public health, public safety and general welfare?
The integration of residential and commercial uses promotes a more walkable neighborhood environment, providing convenient access to parks, open space, and services. This design supports opportunities for physical activity and social interaction, contributing to overall public health and well-being.

As noted in Criteria 2, the proposed zoning incorporates standards such as setbacks/build-to zones, building separation requirements, and height limitations, which collectively help reduce fire risk and other potential hazards. In addition, the Master Site Plan and subdivision review processes will ensure that streets, sidewalks, and access points are designed to accommodate emergency vehicle access and provide safe, efficient circulation for all users within the neighborhood. Utility infrastructure will also be reviewed to confirm adequate capacity, including the provision of fire hydrants, in compliance with City standards to support reliable emergency response.

4)    Will the new zoning facilitate the adequate provision of transportation, water, sewerage, schools, parks and other public requirements?
Transportation: The applicant has prepared a Traffic Impact Study (TIS) in conjunction with the subdivision review process. The TIS evaluates nearby intersections to determine existing levels of service and assess the projected impacts of the proposed development. Where impacts are identified, the developer is required to provide a proportionate share contribution toward necessary improvements. These contributions are allocated to intersection and corridor upgrades in the surrounding area.  Based on preliminary analysis of this subdivision, along with other recent Traffic Impact Studies conducted in the vicinity, improvements are anticipated to be necessary along the Central Avenue corridor due to existing traffic conditions and projected background growth.
Water and Sewer: The subdivisions of 44 West and Clearwater Estates to the south will be extending a 16" water main along Central Avenue, as well as a 10" sanitary sewer main. As part of the annexation agreement, the City evaluates water and sewer sizing for the proposed development while anticipating future development. Adequate provision of water and sewer are addressed within that agreement.
Schools and Parks: The proposed zoning designation itself will not directly impact schools or parks; however, future residential development on the property may. The addition of new housing units has the potential to affect nearby schools and park facilities. School District #2 was contacted for comment, and no response had been received at the time this report was prepared. Any potential impacts on the capacity of schools will depend on the demographics and family composition of residents occupying the new dwelling units once development is complete.
Fire and Police: The subject property will be served by city public safety services. The Police and Fire Departments were both contacted for comments on the proposed zone change. As of writing this report, no comments have been received from the Police or fire department.

5)    Will the new zoning provide adequate light and air?
The proposed zoning is designed to maintain adequate light, air, and openness for all residents and adjacent properties. Each zoning district, CMU1, NX1, N2, N3 and P1, has established setbacks/build-to, height limits, and will regulate building placement and separation. These standards prevent overcrowding, ensure sunlight reaches streets and open spaces, and allow airflow throughout the development.

6)    Will the new zoning effect motorized and non-motorized transportation?
Central Avenue is a principal arterial street. Most of the development west of Shiloh Road with access to Central Avenue is rural residential neighborhoods that are still actively used for agricultural purposes and large lot single family residential parcels. The average daily traffic count just west of Shiloh Road is less than 6,500 trips per day. The 2016 West End Multi-Modal Traffic Study (City/County) indicated long-term projects for Central Avenue from Shiloh Road to 48th St. West would include completion of a three-lane section (one lane each direction with a center turn lane) and a traffic control option (signal or roundabout) at 48th St. W and Central Avenue. Sidewalks and a multi-use side path along Central Avenue also will be part of the future improvements. As of now, this project is not identified within the City's Capital Improvements Plan. Streets will be designed in accordance with City standards, ensuring safe access for cars, buses, pedestrians and emergency vehicles. Subdivision and Master Site Plan reviews will evaluate traffic circulation, intersections, and connections to the surrounding street network to minimize congestion and maintain smooth vehicular flow.

7)    Will the new zoning promote compatible urban growth?
The proposed zoning is designed to encourage compatible urban growth by providing a mix of residential and commercial uses that integrate with surrounding neighborhoods. The combination of N2, N3, NX1, and CMU1 zoning allows a range of housing types from single-family and duplex units to multifamily units in mixed-use buildings providing a variety of housing choices. The proposed density of approximately 6 dwelling units per acre serves as a middle ground between lower-density county subdivisions to the north, east, and west, and higher-density city developments to the south. The commercial nodes are strategically located along Central Avenue to concentrate activity and reduce impacts on adjacent residential areas. The project will utilize existing streets, utilities, and city services efficiently, ensuring that growth occurs in an orderly manner without overextending public resources.

8)    Does the new zoning consider the character of the district and the peculiar suitability of the property for particular uses?
The proposed zoning considers the character of the district and the suitability of the property for the proposed uses. This area is experiencing rapid urban growth, with increasing demand for a variety of housing types, including townhomes, apartments, single family and attached homes, as well as local neighborhood and commercial services. The proposed CMU1 zoning along Central Avenue provides an appropriate location for neighborhood serving commercial uses, concentrating activity along a major corridor while minimizing impacts on adjacent residential areas by its location on an arterial street. The mix of residential zones (NX1, N2 and N3) offers a range of housing choices and densities that transition smoothly from lower-density county subdivisions to the north and west to higher-density city developments to the south.

9)    Will the new zoning conserve the value of buildings?
The proposed zone, as do all zone districts, does not have a direct effect on the value of buildings or properties. The proposed zoning includes development standards designed to promote compatible development and protect the value of existing and future buildings in the surrounding area. Requirements such as setbacks, build-to zones, building orientation, and height limitations help ensure that new structures are appropriately scaled and positioned in relation to neighboring properties. These standards guide how buildings address streets and adjacent development, reducing potential impacts such as excessive building mass, loss of light, or privacy concerns that could negatively affect nearby properties.

In addition, the mixed-use zoning framework encourages a coordinated pattern of development that integrates residential and neighborhood-serving commercial uses. Locating commercial uses along Central Avenue while transitioning to medium-density residential development toward the interior of the property creates a logical land use pattern that supports both neighborhood services and housing opportunities. This type of planned development can enhance accessibility to services, improve walkability, and support economic activity, all of which contribute to maintaining and potentially enhancing property values over time.

The zoning district’s design standards and structured development pattern provide predictability for property owners and investors, helping to ensure that future development occurs in a manner consistent with the character and planning goals of the area. By promoting compatible land uses, thoughtful building placement, and quality site design, the proposed zoning is designed to support the long-term stability and value of buildings within the surrounding neighborhood.

10)    Will the new zoning encourage the most appropriate use of land throughout the City of Billings?
The proposed PND-MU with N2, N3, NX1, CMU1 and Public 1 zoning will encourage the most appropriate use of this land. The property is within the City's Limits of Annexation and is planned for urban development. Utilizing this land for a mix of residential and commercial uses leverages existing streets, utilities, and city services. As mentioned in prior criteria, the development provides a range of housing types and neighborhood-serving commercial spaces. This balance ensures the land supports multiple community needs while maintaining compatibility with surrounding properties.

Approval or denial of the proposed zone change will not have a financial impact on the Planning Division budget.

The applicant conducted a pre-application neighborhood meeting on February 23, 2026, at 6:00 p.m. at Emmanuel Baptist Church, 328 Shiloh Road. Thirty-four (34) individuals attended the meeting, not including the applicants. The required notification area for all new PND zone changes is one-quarter mile from the property boundary. In this case, more than 230 individual property owners and interested parties were notified of the pending zoning application.

During the meeting, the applicant’s agent reviewed the history of the proposed land use application for zoning and annexation, including the previous submission and related public hearings. The application was withdrawn from the review process in November 2025 to allow additional time to evaluate concerns raised about the project and to explore alternative design options and refinements. The applicant discussed the concerns that had been identified and the steps taken to address them. Additional details are provided in the attached neighborhood meeting minutes.

Planning staff posted the zoning request sign on the property and mailed the required notification list of the pending zone change. In addition, the application details were published on the Planning "current zoning applications" web page and a legal ad was published in the newspaper of record. Planning staff has received no written comments on the application as of the date of this report. 

The Zoning Commission may:

• Recommend approval and adoption of the findings of the ten review criteria for Zone Change 1078; or,  
• Recommend denial and adopt different findings of the ten review criteria for Zone Change 1078; or,
• Delay action on the zone change request for up to 30 days; or,  
• Allow the applicant to withdraw the zone change request.

As of the writing of this report the applicant has not requested a delay or withdrawal of the application.