The Planning staff is recommending approval of Zone Change 1077 and adoption of the findings of the 10 review criteria. The proposed N3 zoning is consistent with the Growth Policy, which promotes strong neighborhoods, efficient land use, and infill development supported by existing infrastructure. The subject property is adjacent to predominantly N3-zoned residential areas, and the requested zoning would allow development that is compatible with surrounding single-family neighborhoods while supporting long-term community growth and community investment.

The proposed Zone Change requests reclassification of approximately 6 acres within a 38.12-acre parcel from Public 1 – Parks and Open Space (P1) to Suburban Neighborhood Residential (N3). The subject property is privately owned by Yellowstone Country Club, and the zone change is intended to facilitate a future residential subdivision and development. A concurrent annexation request is proposed to bring the subject property into the city limits.

The P1 zoning designation is intended to preserve land for parks and open space uses and allows only limited structures that support those primary purposes. Following the City’s 2021 zoning code update, public and institutional lands were divided into three distinct zoning districts to better align permitted uses with community expectations. The subject property is currently zoned P1, which no longer reflects the intended residential development or the surrounding land use pattern. Further, there is open space and parkland in the area that will remain even after these areas are zoned to N3. 

Planning staff has reviewed the application and prepared findings addressing the 10 required review criteria for a zone change. Staff recommends approval based on these findings. The proposed N3 zoning is consistent with the Growth Policy, which promotes strong neighborhoods, efficient land use, and infill development supported by existing infrastructure. The subject property is adjacent to predominantly N3-zoned residential areas, and the requested zoning will allow development that is compatible with surrounding single-family neighborhoods while supporting long-term community growth and investment.

Zone Change 1077 is from Public 1 - Parks and Open Space (P1) to Suburban Neighborhood Residential (N3) for approximately 6 acres of land currently part of a 38.12 acre parcel of land. The subject property is owned by Yellowstone Country Club and the proposed zone change is being done for the purpose of a future subdivision and development of residential land. There is a concurrent annexation request to bring the same land into City of Billings (City) limits.

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 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. Public 1 (P1) zoning is specifically for parks and open space areas. P1 zoning can have buildings and structures that are focused on the primary use of the park or open space area. This area of the Yellowstone Country Club has been held as open land for many years with the expectation it might be developed as more golf course area or further residential development, or remain open space.

The Planning staff has reviewed the application and prepared findings for the 10 review criteria for the zone change. The staff is recommending approval based on the draft findings. The request for a Suburban Neighborhood (N3) zone is supported by the goals of the Growth Policy, which emphasizes strong neighborhoods, essential investments, and aims to promote infill development utilizing existing infrastructure. By developing the parcel and tying into existing water and sewer infrastructure, this project supports efficient land use. The zone change to Suburban Neighborhood (N3) ensures the property can develop in a manner consistent with adjacent properties, which are primarily N3 zoned property with single-family homes. 


APPLICATION DATA
OWNER: Yellowstone Country Club
AGENT: Performance Engineering
LEGAL DESCRIPTION: Portions of Tract 11-A-2, Amended Tract 11-A of the remainder of Tract 11, Certificate of Survey 836, S30, T01 N, R25 E, approximately 6 acres of land
ADDRESS: Near Tommy Armour Circle & Ben Hogan Lane
CURRENT ZONING: P1 (Parks and Open Space)
EXISTING LAND USE: Vacant
PROPOSED USE: Residential
SIZE OF PARCEL: 6 Acres

CONCURRENT APPLICATIONS:
Petition for Annexation 26-01

SURROUNDING ZONING AND LAND USE:
NORTH: Zoning: P1 - Parks and Open Space
Land Use: Vacant land adjacent to the Rims
SOUTH: Zoning: N3 - Suburban Neighborhood Residential
Land Use: Yellowstone Club Estates Subdivision
EAST: Zoning: N3 - Suburban Neighborhood Residential
Land Use: Yellowstone Club Estates Subdivision
WEST: Zoning: N3 - Suburban Neighborhood Residential
Land Use: Yellowstone Club Estates Subdivision

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:

• Strong Neighborhoods (livable, safe, sociable and resilient neighborhoods): Neighborhoods that are safe and attractive and provide essential services are much desired. 
• Home Base (healthy, safe and diverse housing options): Planning and construction of interconnected sidewalks and trails are important to the economy and livability of Billings. 
• Essential Investments (relating public and private expenditures to public values): Planning and construction of safe and affordable interconnected sidewalks and trails are important to the economy and livability of Billings. 
• Essential Investments (relating public and private expenditures to public values): Infill development and development near existing City Infrastructure may be the most cost effective. 

The proposed N3 zoning is consistent with the Growth Policy, which promotes strong neighborhoods, efficient land use, and infill development supported by existing infrastructure. The subject property is adjacent to predominantly N3-zoned residential areas, and the requested zoning would allow development that is compatible with surrounding single-family neighborhoods while supporting long-term community growth and community investment.

2. Is the new zoning designed to secure from fire and other dangers?
The proposed zoning establishes requirements for setbacks, open and landscaped areas, and building separation. Suburban Neighborhood zoning considers surrounding zoning districts in the siting of buildings and the design of building characteristics. As with all zoning districts, adequate building separation is required to provide safety and protection from fire and other hazards. Any new construction on the site will be subject to applicable building codes, engineering standards for stormwater management, and connection to city services. All applicable zoning and development requirements will be met.

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. Public health and public safety will be promoted by the proposed zone change. 

4. Will the new zoning facilitate the adequate provision of transportation, water, sewerage, schools, parks and other public requirements?

• Transportation: The existing zoning and new development will increase traffic on the adjacent street network when the development is completed. City Engineering will review the development to determine required traffic management. The lots will be accessed from Tommy Armour Circle and Ben Hogan Lane.
• Water and Sewer: The City will provide water and sewer for the property.  
• Schools and Parks: Schools and parks are not expected to be negatively affected by the proposed zoning. The development will consist of single-family homes and duplexes. School District 2 was notified of the zone change and provided no comments. Any impact on schools or parks would be consistent with typical residential development and is not anticipated to be significant.
• Fire and Police: The subject property is served by city public safety services. The nearest fire station is Fire Station 7 near the intersection of Grand Avenue and 54th Street West. The station is approximately 1.9 road-miles away. The Police and Fire Departments were notified of the zone change and expressed no concerns about this particular application.

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. This parcel is presently vacant, therefore any new structure(s) will be required to meet the zoning standards required by Section 27-300 (Residential zones), engineering standards and building code requirements.

6. Will the new zoning effect motorized and non-motorized transportation?
The new zoning itself will not impact motorized and non-motorized transportation. Once developed, there will be increased volume to the transportation network, both motorized and non-motorized. The Billings Area Bikeways and Trail Master Plan does not directly serve the affected area of the zone change. The newly developed parcels will require sidewalks consistent with current design standards.

7. Will the new zoning promote compatible urban growth?
The proposed zoning is compatible with the adjacent zoning and existing uses in the vicinity. The proposed zoning will be N3, which allows for residential development comparable to the rest of Yellowstone Club Estates Subdivision, which is also N3 zoning. The likely development will be single-family homes or duplexes.

8. Does the new zoning consider the character of the district and the peculiar suitability of the property for particular uses?
The proposed zoning does consider the character of the district and the suitability of the property for the proposed use. The proposed zoning will allow for infill residential development. The proposed zoning and development is compatible with the adjacent zoning and existing development and uses in the vicinity.

9. Will the new zoning conserve the value of buildings?
The property is currently vacant, therefore the new zoning will not have an impact on the value of buildings on the parcel. Any new structures will need to be in compliance with zoning, engineering and building codes. New development tends to increase surrounding property values.

10. Will the new zoning encourage the most appropriate use of land throughout the City of Billings?
The N3 zone is the most appropriate zone and intends to develop the property in accordance with the requirements of the zoning. 

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 January 21, 2026, and 64 surrounding property owners attended. The meeting was held at Yellowstone Country Club. Some attendees asked about how the zone change would affect their access to the unofficial trail network beneath the Rims. The applicant responded by saying they would continue to let the residents use them and the development would not affect their ability to access them. Other residents questioned if the new lots would adhere to the Homeowners Association (HOA) rules. The applicant responded that the new lot would be subject to current HOA bylaws of Yellowstone Estates Subdivision.

Planning Staff has received 2 comments in opposition as of completing the staff report for the zone change. Those comments are attached to this memo.

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 1077; or,
• Recommend denial and adopt different findings of the ten review criteria for Zone Change 1077; or,
• Delay action on the zone change request to a certain date 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.