Planning staff is recommending approval of Zone Change 1082 and adoption of the findings of the 10 review criteria. A zone change request from Mid-Century Neighborhood (N2) to Public Civic and Institutional (P2), on Lots 7-12, Block 4, Glock Subd., S36, T01 N, R25 E, a parcel of land approximately 43,000 square feet. A pre-application neighborhood meeting was held on March 24, 2026, at 5:00 pm, at the subject property. 

This application is a request to rezone the subject property from Mid-Century Neighborhood (N2) to Public Civic and Institutional (P2) in order for a church to operate under the allowances of the P2 zoning district. The P2 district is intended to accommodate small-scale civic and community service uses, including religious assembly, public safety facilities, and educational institutions, within neighborhood or commercial contexts. The flexibility of the P2 district enables the expansion of operational activities that may be limited under the N2 district, particularly those that are more characteristic of commercial-type allowances.

Grace United Methodist Church has operated at this location for over a decade, serving the surrounding community. The proposed zone change is not intended to alter the existing use of the property, but rather to bring the zoning designation into alignment with the established use. At this time, the only proposed modification is the addition of a static EMD (not allowed in the N2 zone) as part of an upgrade to the existing monument sign.

Planning staff finds the request to be compatible with surrounding zoning and land uses and recommends approval based on the applicable review criteria.

The applicant is requesting a zone change for the subject property from Mid-Century Neighborhood (N2) to Public Civic and Institutional (P2). The purpose of the request is to allow the existing church use to operate under the allowances and development standards of the P2 zoning district. The P2 district is intended to accommodate small-scale civic and community service uses, such as religious assembly, public safety facilities, and educational institutions, within neighborhood or commercial settings. Compared to the N2 district, the P2 designation provides greater flexibility for operational activities that may be limited in a residential zoning district, including certain functions that are more consistent with quasi-commercial or institutional uses.

Grace United Methodist Church has occupied the subject property for over a decade and continues to serve the surrounding community. The requested zone change does not propose any modification to the established use of the site; rather, it seeks to align the zoning designation with the long-standing institutional use and to provide appropriate regulatory flexibility to support its continued operation.  As part of the request, the applicant proposes removal of an outdated reader board and installation of a new monument sign incorporating a static electronic message display (EMD). A static EMD is a digital sign designed to display messages, images, or information without movement, animation, scrolling, flashing, or color transitions. This type of signage functions as a hybrid between traditional fixed signage and full-motion digital displays, allowing for remotely updated content while minimizing potential distractions to motorists.

The City’s zoning framework for public and institutional uses was updated in 2021. Prior to this update, a single “Public” zoning district applied broadly to a range of uses, including parks, schools, churches, airports, and landfills. In order to provide greater clarity and predictability for both property owners and surrounding neighborhoods, the City established three distinct public zoning districts. Public 1 (P1) is intended for parks and open space areas and allows for structures that support those primary uses. Public 2 (P2) is designed for smaller-scale civic and institutional uses, such as churches and schools, and may also include recreational uses similar to those permitted in P1. Public 3 (P3) applies to larger institutional campuses, including educational, medical, and civic complexes such as Montana State University Billings and major hospital areas. Publicly zoned land may be either publicly or privately owned, depending on the nature of the use.

Planning staff has reviewed the application in accordance with the applicable zoning criteria and has prepared findings addressing the ten required review standards for zone changes. The request is supported by the goals and policies of the Growth Policy, which emphasize strategic and well-planned development, preservation of community character and heritage, and the strengthening of neighborhoods. Specifically, the Growth Policy encourages walkable neighborhoods with access to community services, gathering spaces, and institutional uses that promote social interaction and community well-being. Additionally, supporting the continued operation of established community-serving institutions contributes to local economic stability and overall community prosperity.

The proposed P2 zoning designation is consistent with the existing use of the property and is compatible with surrounding zoning districts and land use patterns. Based on these considerations, Planning staff recommends approval of the zone change request.

APPLICATION DATA
OWNER: Grace United Methodist Church
AGENT:  John Kennedy
LEGAL DESCRIPTION: Lots 7-12, Block 4, Glock Subd., S36, T01 N, R25 E,
ADDRESS: 1935 Avenue B
CURRENT ZONING:    Mid-Century Neighborhood (N2)
PROPOSED ZONING: Public 2 (P2-Public, civic and institutions)     
EXISTING LAND USE:  Church
PROPOSED LAND USE: Church
SIZE OF PARCEL(S): a parcel of land approximately 43,000 square feet.
 
SURROUNDING LAND USE & ZONING:
NORTH: Zoning: Mid-Century Neighborhood (N2)
Land Use: Single Family Residential
SOUTH: Zoning: Mid-Century Neighborhood (N2)
Land use: Single Family Residential and a vacant parcel
EAST: Zoning: Mid-Century Neighborhood (N2)
Land use: Single Family Residential
WEST: Zoning: Mid-Century Neighborhood (N2)
Land Use: Single Family Residential

SUMMARY
Prior to any recommendation to the City Council, the Zoning Commission shall consider the following:

1. Is the new zoning designed in accordance with the Growth Policy and neighborhood plans?
The proposed zone change is consistent with the following guidelines of the 2016 Growth Policy:

• Essential Investments; 
  • The history and heritage of Billings are cornerstones of our community.
  • Neighborhoods that are safe and attractive and provide essential services are much desired.
• Strong Neighborhoods;  
  • Walkable neighborhoods that permit convenient destinations such as neighborhood services, open space, parks, schools and public gathering spaces foster health, goodwill and social interaction.
• Prosperity;
  • Retaining and supporting existing businesses helps sustain a healthy economy.

Under Essential Investments, the policy emphasizes preserving the history and heritage of Billings as foundational to the community. The Grace United Church building, originally constructed around 1912, represents a tangible link to the city’s past. Its long-standing role as a community gathering space—both before and after its conversion to a church—demonstrates continuity of use that reinforces local identity. While the structure has undergone additions and upgrades to accommodate growth, these changes have supported ongoing community use rather than altering its fundamental purpose. This continuity supports the policy’s goal of maintaining historically meaningful places while ensuring they remain functional and relevant.

The proposal also supports the vision of Strong Neighborhoods. The policy highlights the importance of safe, attractive neighborhoods that provide essential services and foster social interaction. The continued use of the site as a gathering place contributes to neighborhood cohesion by offering a familiar and accessible location for community engagement. Its presence supports walkability and proximity to shared spaces, which are central to encouraging interaction, promoting well-being, and strengthening community ties. Maintaining and adapting such spaces helps ensure neighborhoods remain vibrant and service-oriented.

Finally, the proposal advances the Prosperity goals of the Growth Policy. By retaining and supporting an established community-serving use, the project contributes to economic stability and sustainability. Existing institutions like Grace United Church play a role in supporting local networks, events, and activities that benefit surrounding businesses and residents. Rather than introducing disruptive change, the zone adjustment allows for continued and potentially enhanced use of a long-standing asset, reinforcing the local economy and preserving community value. Overall, the proposed zone change is consistent with the Growth Policy’s intent to honor Billings’ heritage, foster strong and connected neighborhoods, and support sustained economic vitality through the continued use of established community resources.

2. Is the new zoning designed to secure from fire and other dangers?
The proposed zoning supports the continued use of the property as a church while ensuring safety from fire and other hazards. The zoning district requires appropriate setbacks, open space, and building separation, which help reduce risk and allow for safe occupancy during regular services and larger community gatherings. Any improvements or expansions to the church facility must comply with applicable building and fire codes, including life-safety standards for assembly uses. These requirements ensure that the church can safely accommodate congregants and community members while maintaining compliance with modern safety standards.

3. Whether the new zoning will promote public health, public safety and general welfare?
The proposed zoning promotes public health, safety, and general welfare by allowing the continued operation of a church as a community-serving institution. Churches provide not only spiritual services but also social support, counseling, outreach programs, and gathering space that contribute to overall community well-being. Compliance with building, fire, and zoning codes ensures a safe environment for occupants. The church’s role as a neighborhood gathering place aligns with Growth Policy goals by fostering social interaction, supporting mental and emotional health, and enhancing quality of life within the surrounding area.

4. Will the new zoning facilitate the adequate provision of transportation, water, sewerage, schools, parks and other public requirements?
Transportation: The continued use of the property as a church will generate periodic traffic, primarily during services and events, which is consistent with historic patterns of use. The existing street network is adequate to accommodate these activity levels, and any site improvements will be reviewed to ensure safe access and circulation.
Water and Sewer: The church is served by existing municipal water and sewer infrastructure, which is sufficient to support its ongoing use. Any upgrades or expansions will be required to meet city standards.
Schools and Parks: The zoning does not introduce residential uses and therefore is not expected to directly impact school enrollment. The church complements nearby public spaces by providing an additional venue for community gatherings and events.
Fire and Police: The site is served by existing police and fire services. The church use is subject to all applicable safety, access, and emergency response requirements, ensuring continued protection of occupants and surrounding properties.
 
5. Will the new zoning provide adequate light and air?
The proposed zoning ensures adequate light and air through required setbacks, building height limitations, and site design standards. These provisions are particularly important for a church setting, where comfortable indoor environments and welcoming exterior spaces contribute to the overall experience of congregants and visitors. Any future modifications to the structure will be required to comply with zoning and building code standards that maintain appropriate spacing and environmental quality.

6. Will the new zoning effect motorized and non-motorized transportation?
The continued use of the site as a church may generate traffic during peak service times; however, these patterns are predictable and generally limited to specific days and hours. The zoning supports safe access for both vehicles and pedestrians, including congregants who may walk from nearby neighborhoods. The site’s role as a local gathering place aligns with walkability goals by providing a nearby destination for community members.

7. Will the new zoning promote compatible urban growth?
The proposed zoning promotes compatible urban growth by supporting the continued use of an established church within the neighborhood. Religious institutions are traditionally compatible with surrounding residential and community uses, serving as anchors for neighborhood identity and stability. Maintaining this use avoids disruption and supports orderly development patterns consistent with the Growth Policy’s emphasis on strong, connected neighborhoods.

8. Does the new zoning consider the character of the district and the peculiar suitability of the property for particular uses?
The zoning reflects the established character of the area and the property’s long-standing suitability as a church. The building has functioned as a community gathering space for over a century, and its continued use as a church is consistent with both its historical role and the surrounding neighborhood context. The zoning allows the property to remain a place of assembly and service, reinforcing its compatibility with adjacent land uses.

9. Will the new zoning conserve the value of buildings?
The proposed zoning helps conserve and enhance the value of the existing church building by allowing its continued use and maintenance. Preserving the structure as an active place of worship and community gathering space ensures ongoing investment in the property. This continued use not only maintains the building’s functional value but also contributes to neighborhood stability and reinforces the historic and cultural significance of the site.

10. Will the new zoning encourage the most appropriate use of land throughout the City of Billings?
The Public, Civic, and Institutional, small (P2) zoning district is the most appropriate designation for the subject property. The property’s long-standing use as a church and community gathering space is consistent with the types of civic and institutional uses permitted within the P2 district. The site has historically served as a place of assembly, and its continued use as a church aligns with the intent of the district to accommodate facilities that provide social, cultural, and spiritual services to the community.

The proposed zone change supports orderly growth by allowing for the continued use and potential improvement of an established religious institution. This use is compatible with surrounding land uses and reinforces neighborhood stability by maintaining a familiar and valued community resource. Given the property’s history, location, and function, the proposed zoning is appropriate and supports the broader goals of the Growth Policy related to community identity, neighborhood cohesion, and long-term sustainability.

Approval or denial of the proposed zone change will not have an effect on the Planning Division budget.

The applicant and agent conducted a pre-application neighborhood meeting on March 24, 2026, at 5:00 pm, at the subject property. There were no members of the public in attendance.

Planning staff posted the zoning request sign on the property and mailed the 1/4-mile 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 did not receive any comments prior to completing this staff report for the zone change.

The Zoning Commission may take one of the following actions:

• Recommend approval and adoption of the findings of the ten review criteria for Zone Change 1082 or,
• Recommend denial and adopt different findings of the ten review criteria for Zone Change 1082; or,
• Delay action on the zone change request to a date certain not more than 60 days in the future; or,
• Allow the applicant to withdraw the zone change request. The applicant has not requested a delay or a withdrawal of the application at this time.