The Zoning Commission recommends approval of Zone Change 1062 and adoption of the findings of the 10 review criteria. The City Council approved the zone change on first reading on March 24, 2025. A second reading of the ordinance is required to approve the zone change.
 

This is a zone change request from Public 2 (Public, Civic, and Institutional) to Public 3 (Medical Campus) for an 11.868-acre parcel of land, legally described as Lots 1C, 1D, and 1E of Block 3, High Sierra Subdivision 2nd Filing. The property is generally located at the southwest corner of Sierra Granda Blvd and High Sierra Blvd. In 2006, the entirety of Lot 1 of Block 3 underwent a special review process to permit the development of a church and senior retirement campus. The special review was approved, and the property was subsequently developed into the existing church and senior living campus.

The proposed zoning change aims to unify the parcels into a cohesive campus for Missions United. Currently, Lot 1C houses the St. Johns United Wyndstone Senior Living Campus. The existing Public 2 (P2) zoning limits the number of principal structures to two. The proposed zoning of the Public 3 (P3) campus allows any number of principal structures. This zoning change will facilitate the expansion of the Wyndstone Senior Living Campus.

Before the code update in 2021, the city only had one zoning district for parks, schools, churches, airports, landfills or public and institutional uses. This zone - Public - was expanded into three separate public zone districts to make the potential uses more predictable for surrounding property owners. For example, now most churches and schools are in the Public 2 (P2) zoning district and campuses such as MSUB, and the hospital area are in Public 3 (P3 - Campus - Education, Medical, or Civic).

Public zoned land can either be publicly owned or privately owned. The proposed P3 zoning for the 11.868 acres is adjacent to an existing P2 zoned parcel (Lots 1A and 1B), where Atonement Lutheran Church is located. This existing church area will stay in the P2 zone district.

Traffic volume on High Sierra Boulevard just north of Wicks Lane is approximately 2,320 vehicle trips per day, while Wicks Lane at Fantan Street experiences about 5,480 vehicle trips per day. These traffic counts are based on a three-year rolling average, taken during off-school times, and do not account for peak hours or special events. The proposed development of a senior living campus typically generates significantly less traffic than other types of residential developments. Unlike traditional single-family or multifamily homes, senior living facilities generally produce fewer vehicle trips, primarily due to residents' lower reliance on personal vehicles. Additionally, senior living residents typically have lower vehicle ownership rates and make fewer trips, especially during peak traffic hours. The majority of traffic associated with these developments consists of visitors, staff, and service vehicles, rather than daily community or school-related trips, resulting in a less intense traffic pattern. This parcel is located near well-established trails and bicycle networks. On Wicks Lane, extending from Lake Elmo Drive to Gleneagles Boulevard, features both bike lanes and sidewalks. At the intersection of Wicks Lane and Gleaneagles Boulevard, a multi-use trail to the west begins, offering an easy connection all the way to Skyline Drive trail. Additionally, in the immediate area, bike lanes and sidewalks are available along Fantan Street, extending from Wicks Lane to Siesta Avenue, which in turn connects to the bike lanes and sidewalks on High Sierra Boulevard.

The proposed Wyndstone senior living campus expansion seeks to provide additional residential units and amenities, ensuring a higher quality of life for its senior residents. This project will include the construction of multi-unit residential buildings, a clubhouse, and supporting infrastructure. As the demand for senior facilities grows in the city, this development is designed to accommodate an increasing number of residents while maintaining accessibility. The development proposes a mix of four-unit residential buildings and a twelve-unit residential building, providing a variety of living options to meet the diverse needs of the senior residents. Additionally, improvements such as a ten-foot asphalt trail will enhance walkability and outdoor recreation opportunities. The proposed zone change will allow for higher-density senior housing while ensuring compatibility with the surrounding area.


APPLICATION DATA
OWNER: Missons United Inc.
AGENT: Performance Engineering, Taylor Kasperick 
LEGAL DESCRIPTION: HIGH SIERRA SUBD 2ND FILING, S17, T01 N, R26 E, BLOCK 3, Lot 1C, 1D and 1E
ADDRESS: SW corner of Sierra Granda Blvd and High Sierra Blvd
CURRENT ZONING: Public 2 - Public, civic, and institutions (P2)
PROPOSED ZONING: Public 3 - Medical Campus (P3)
EXISTING LAND USE: Retirement Home and Vacant Land
PROPOSED LAND USE: Retirement Home Campus 
SIZE OF PARCEL(S): 11.868 acres

SURROUNDING LAND USE & ZONING
NORTH: Suburban Neighborhood (N3) - Single family residential dwellings in High Sierra Subdivision
SOUTH: Public 2 (P2) and Suburban Neighborhood (N3) - Vacant land and single family residential dwellings in High Sierra Subdivision
EAST: Public 2 (P2) - Atonement Lutheran Church 
WEST: Suburban Neighborhood (N3) - Single family residential dwellings in High Sierra Subdivision

The Planning staff reviewed the application and drafted findings for the 10 review criteria for the zone change. The staff recommended approval based on the draft findings. The Zoning Commission concurred with Planning staff's recommendation. The request for a Public 3 zone is supported by the goals of the 2016 Growth Policy, which emphasizes strategic growth and a diverse housing supply. One of the key goals of the Growth Policy, essential investments, aims to promote infill development and development utilizing existing City infrastructure.

By developing an underutilized parcel and tying into existing water and sewer infrastructure, this project supports efficient land use and helps to reduce urban sprawl.  Additionally, the development is consistent with the strong neighborhood goal, which promotes a diverse mix of housing types to serve residents of all ages and income levels. By integrating senior housing within an established neighborhood, it allows older residents to downsize while remaining in their community, fostering a sense of stability and belonging. Furthermore, this development advances the home base goal of the Growth Policy, by ensuring a diverse mix of housing options that accommodate the city's changing demographics. Providing much needed senior housing within a familiar, accessible environment enhances livability and inclusivity. The expansion of the Wyndstone Senior Living will strengthen the High Sierra Subdivision by introducing a thoughtfully designed, low-impact residential campus that complements the surrounding area. The zone change to Public 3 (P3) ensures that the property can support a campus-style senior living community while preserving the residential character of the neighborhood and promoting a housing solution for Billings' aging population.
 

The applicant’s agent conducted a pre-application neighborhood meeting on January 27th, 2025, at the Lake Hills Golf Course’s upstairs meeting area. Five surrounding owners attended the meeting. Attendees raised several concerns about the proposed development, starting with the potential impact on property values of adjacent parcels. The agent indicated that the zone change of the subject properties should not impact property taxes of adjacent parcels. The agent stated that property taxes are based on the appraised value of a property’s land and improvements, so unless the property value of the adjacent parcels were to increase, property taxes should not be affected. There were also questions regarding the type of commercial uses allowed under the proposed zoning. The agent clarified that no commercial use would be permitted unless it is specifically tied to the underlying mission or organization.

Another concern brought up by the attendees was regarding where the site would be accessed from. The agent stated how the proposed development will be accessed via a new internal access drive from Wyndstone’s existing approaches off Siesta Avenue and Sierra Granda Avenue, as well as four new driveway approaches. Siesta and Sierra Granda will each get two new driveway approaches. Attendees were concerned about parking and parking lots. The agent stated that the parking is anticipated to be provided on-site in compliance with the Zoning Code requirements for off-street parking. Neighbors expressed concern regarding the prairie dogs that currently live in the area. The agent discussed outside termination, as there is not a lot of control anyone can provide as to where and when prairie dogs move. The agent responded to concerns regarding where power would come from and what it would look like for this development. The agent stated that at this time, it is undetermined where power will be placed to serve the development. The agent stated that it will likely consist of transformer pads and power boxes that are seen on other commercial and residential developments.

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" webpage 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. 

City Zoning Commission Public Hearing March 4, 2025
The Zoning Commission held its public hearing on March 4, 2025, and received the staff recommendation and testimony from the applicant's agent, Taylor Kasperick of Performance Engineering. No other testimony was received. The Commission had no other questions. The Chair closed the public hearing and asked for a motion on the application. Commission member Beau Mulvaney made a motion to recommend approval and adoption of the findings of the 10 review criteria. The motion was seconded by Commission member David Goss and was approved on a 3-0 vote. Commission members Megorden and McCall were absent from the meeting. 

City Council Public Hearing March 24, 2025
The City Council held a public hearing and received the Zoning Commission's recommendation of approval. The Planning staff provided a presentation on the recommendation and answered questions from City Council members. The applicant's agent, Taylor Kasperick, provided additional testimony in favor of the zone change. Council Member Boyett asked St. Johns United President and CEO Mr. Trost if he could tell the Council how the new project benefits St. Johns United and if the area needs another facility.  Mr. Trost responded and said currently Wyndstone in the Heights has a wait list of 70 individuals, where about 30 of those are desiring senior living amenities that are more residential than apartment-style living. Mr. Trost let them know that this project aims to serve that need. There was no other public testimony. Mayor Cole closed the public hearing. Council member Owen made a motion to approve the zone change and adopt the findings of the 10 review criteria as recommended by the Zoning Commission. The motion was seconded by Council member Neese and was approved on a voice vote of 10-0 with one member recused from voting. Council member Aspenlieder abstained from the hearing as his company, Performance Engineering, was representing the applicant.  

 

The City Council may take one of the following actions:

• Approve and adopt the findings of the ten review criteria for Zone Change 1062 as recommended by the Zoning Commission; or,
• Deny and adopt different findings of the ten review criteria for Zone Change 1062; or,
• Delay action on the zone change request for up to 30 days at the request of the applicant or on its own motion; or 
• Refer the application back to the Zoning Commission for an additional public hearing based on 1) new information submitted that the applicant and public have not had an opportunity to examine; or 2) new information has been presented that was never submitted or considered by the Zoning Commission or staff; or
• Allow the applicant to withdraw the zone change request.

The applicant has not requested a delay or withdrawal of the application. The City Council approved the zone change on first reading on March 24, 2025.

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

Prior to making a decision the City Council shall consider the following proposed findings as recommended by the City Zoning Commission:

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

This proposed senior living campus is located within the city limits and has access to existing water and sewer lines, meaning no additional infrastructure is needed. By utilizing underused parcels, the development minimizes cost for the city while addressing cost-of-service concerns. This proposed zone change supports efficient growth while ensuring that the city’s resources are used wisely. Housing for seniors is in short supply.

•  Strong Neighborhoods

By expanding the existing senior living campus in this established neighborhood, the development will provide diverse housing options for older residents looking to downsize, all while contributing to the area’s growth and the neighborhood’s identity. The proposed zone change for a new senior living campus aligns with the Billings Infill Policy, which encourages the development of underutilized or vacant properties within existing neighborhoods. This policy supports the use of existing infrastructure while ensuring that new development complements the surrounding area and enhances the community’s overall quality of life. The proposed campus will utilize existing water and sewer mains without requiring additional city infrastructure.

• Home Base

This property would allow for the development of a senior living campus in close proximity to an existing residential neighborhood, providing a housing option for an aging population in a familiar, established area. The proposed zone change will provide older residents with an opportunity to downsize while remaining in their familiar neighborhood, helping them maintain their community ties. This aligns with the Growth Policy goal of offering diverse housing options that support residents at various life stages, ensuring long-term accessibility and inclusivity within the neighborhood.

2. Is the new zoning designed to secure from fire and other dangers?
The new zoning requires setbacks, open and landscaped areas, and building separations. The Public 3 zoning considers the surrounding zoning for siting of buildings and building characteristics. The new zoning, as do all zoning districts, provides adequate building separations to provide security from fire and other dangers. Any new construction on the site will follow applicable building codes, engineering standards for storm water control, connection to city services and parking lot construction. All zoning requirements will be followed.

3. Whether the new zoning will promote public health, public safety and general welfare?
Public health and public safety are promoted by the proposed zoning. New construction on the site will follow engineering code, building code, and zoning code requirements to ensure and promote public health, public safety and general welfare. Additionally, the project will offer an affordable senior living option within an established residential neighborhood. Its location connects easily to the nearby High Sierra Subdivision and Wicks Lane sidewalk network, encouraging walkability and non-vehicular mobility, further promoting the well-being of future residents and the community as a whole.

4. Will the new zoning facilitate the adequate provision of transportation, water, sewerage, schools, parks and other public requirements?
Transportation: The new development will include the completion of Siesta Avenue, enhancing the transportation network in the area and helping to alleviate congestion on surrounding roads.
Water and Sewer: This property is located in City Limits and is required to be served by city water and sewer. There are no known negative capacity impacts related to water and sewer that are identified through any adopted studies or staff input.
Schools and Parks: Schools will not be affected by this zone change. The proposed development is a senior living campus. There will not be additional students due to this zone change. Parks will likely not be affected by the proposed zone change. The closest public park is the High Sierra Park to the southwest.
Fire and Police: The subject property is served by city and county public safety services. Development of the property, regardless of the zoning, will be served by existing police and fire services. The Police and Fire Departments had no concerns with the zone change as requirements for access, water supply, and fire codes would apply to the site and any construction on the subject property.

5. Will the new zoning provide adequate light and air?
Similar to criteria 2 and 3, the proposed zone, like all zones, requires setbacks to allow for adequate separation between structures and adequate light and air. Since the parcel is currently vacant, any new construction will be required to comply with zoning standards outlined in Section 27-500 (Public zones), as well as engineering and building code requirements. These standards are designed to maintain appropriate spacing between buildings, ensuring that the development allows for ample light, air, and overall environmental quality.

6. Will the new zoning effect motorized and non-motorized transportation?
The new zoning itself will not directly impact motorized or non-motorized transportation. However, once developed, the project is expected to increase traffic volume for both motorized and non-motorized users. The proposed development includes the completion of Siesta Avenue, which will help alleviate congestion on nearby streets and improve overall traffic flow.

7. Will the new zoning promote compatible urban growth?
The proposed zoning is well-suited to the surrounding areas, aligning with adjacent and existing uses. This development will increase density within the campus, while remaining compatible with the Public 2 zoning to the west. By offering senior living options, it provides a valuable opportunity for older residents to downsize without leaving an established, walkable community. The project supports compatible urban growth by enhancing the area’s housing diversity and maintaining the character of the neighborhood.

8. Does the new zoning consider the character of the district and the peculiar suitability of the property for particular uses?
The proposed zoning carefully considers the character of the district and the property’s suitability for the intended use. By allowing for the development of a senior living community, the project supports infill development while preserving the residential character of the area. The proposed zoning is compatible with the surrounding zoning and existing uses, ensuring that the development blends with the neighborhood. This proposed zone change respects the area’s established character while meeting the growing needs for diverse housing options.

9. Will the new zoning conserve the value of buildings?
This property currently includes a senior living facility and vacant land, so the new zoning will not negatively impact the value of existing buildings on the parcel. The current use will continue to comply with the allowable uses of the Public 3 zoning district. Any new structures built as part of the development will be required to meet all relevant zoning, engineering, and building codes, ensuring that the integrity and the value of the property are maintained.

10. Will the new zoning encourage the most appropriate use of land throughout the City of Billings?
The proposed zone change will promote the most appropriate use of this land within Billings. By selecting the Public 3 zone, the development will accommodate a retirement village with multiple principal buildings, aligning with the city’s goals for diverse housing options. The property will be developed in full compliance with the zoning regulations, ensuring that it is used efficiently and in a way that supports the community’s needs while contributing to the city’s overall growth.