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Regular 2.

City Council Regular Business Meeting

Meeting Date:: 05/11/2026
TITLE: Billings 2045 Operational Plan, Zoning Amendments, Subdivision Amendments Public Hearings and Actions
PRESENTED BY:: Wyeth Friday
Department:: Planning & Community Services

Presentation:

Yes

Legal Review:

Yes

Project Number:

RECOMMENDATION

The Interim Planning Commission recommends the City Council conduct public hearings and:

Adopt the Billings2045 Land Use Plan and the Future Land Use Map with one amendment to the Land Use Plan.
Adopt an ordinance to amend and clarify the City Zoning Regulations to conform to the Montana Land Use Planning Act with 5 proposed amendments.
Adopt an ordinance to amend and clarify the City Subdivision Regulations to conform to the Montana Land Use Planning Act.

EXECUTIVE SUMMARY

In 2023, the Montana State Legislature passed Senate Bill 382, the Montana Land Use Planning Act (MLUPA), codified in Title 76, Chapter 25 of the Montana Code Annotated. The intent of the Act is to provide a comprehensive land use planning system that promotes the health, safety, and welfare of the people of Montana. The Act outlines that a municipality with a population at or exceeding 5,000 located within a county with a population at or exceeding 70,000 in the most recent decennial census shall comply with the provisions. The Montana Land Use Planning Act mandates that municipalities develop and implement a Land Use Plan and Future Land Use Map (Billings 2045) to guide future development, as well as amend local zoning and subdivision regulations to meet the new processes required in MLUPA. Billings 2045 serves as a comprehensive plan that addresses land use, economic development, housing, public services, and natural resources.

The Interim Planning Commission per MLUPA is the body that facilitates the local development process for Billings2045 and makes recommendations to the City Council on adoption of the Billings2045 components: Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations.

The IPC met on April 29, 2026, reviewed the Billings2045 documents, heard public comment, but voted to delay making a recommendation to the City Council. The IPC met again on May 7 and made recommendations to the City Council on the Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations. The IPC had several proposed amendments to the resolution regarding the Land Use Plan and to the Ordinance amending the Zoning Regulations as outlined in the Background section of this memo.

BACKGROUND (Consistency with Adopted Plans and Policies, if applicable)

In 2023, the Montana State Legislature passed Senate Bill 382, the Montana Land Use Planning Act (MLUPA), codified in Title 76, Chapter 25 of the Montana Code Annotated. The intent of the Act is to provide a comprehensive land use planning system that promotes the health, safety, and welfare of the people of Montana. The Act outlines that a municipality with a population at or exceeding 5,000 located within a county with a population at or exceeding 70,000 in the most recent decennial census shall comply with the provisions. The Montana Land Use Planning Act mandates that municipalities develop and implement a Land Use Plan and Future Land Use Map (Billings 2045) to guide future development. Billings 2045 will serve as a comprehensive plan that addresses land use, economic development, housing, public services, and natural resources.

The Interim Planning Commission per MLUPA is the body that facilitates the local development process for Billings2045 and makes recommendations to the City Council on adoption of the Billings2045 components: Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations. The IPC has met 13 times since May 2025 in its roll as community sounding board and subject matter experts as the Billings2045 process has advanced to the point of final draft documents for adoption.

In addition to the IPC meetings and discussions, the City in coordination with the consultant team lead by Orion Planning and Design for this effort, hosted two "Community Planning Weeks", one in November 2025 and one in April 2026 to provide direct outreach and engagement with community members and stakeholders. Further outreach efforts have included public notices, radio and television ads and stories, billboards, distribution of Billings2045 information to nearly 200 businesses across Billings, direct speaking engagements with service organizations, an interactive web presence at Billings2045.com, including a community survey that garnered more than 1,100 responses. City Planning Division staff also scheduled special work sessions, presented at multiple City Council Business meetings, including a joint IPC and City Council meeting, and held small group Council discussions, to provide forums for discussion, education, and to seek direction from the IPC and City Council during the process.

Staff expects the Billings2045 Land Use Plan will need amendments in the short term in specific areas to fine tune the planning documents and map, but the Montana Legislature has required adoption of the MLUPA components by May 17, 2026, and so the components before the City Council are set up to result in a planned first reading of the plan documents prior to May 17.

The Interim Planning Commission per MLUPA is the body that facilitates the local development process for Billings2045 and makes recommendations to the City Council on adoption of the Billings2045 components: Operational Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations. The IPC met on April 29 and reviewed the Billings2045 documents, heard public comment, but voted to delay making a recommendation to the City Council. The IPC met again on May 7 and made recommendations to the City Council on the Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations. The IPC had several proposed amendments to the resolution regarding the Land Use Plan and to the Ordinance amending the Zoning Regulations as outlined here:

IPC recommends the City Council Adopt the Billings2045 Land Use Plan and Future Land Use Map with the following proposed amendment to the Land Use Plan:

Add back in the Encouragement of development of housing strategy (a) “allow, as a permitted use, for at least a duplex where a single-unit dwelling is permitted”, which results in the following change on Page 62, Land Use Plan, Suburban Residential Land Use Category – Amend to add a third bullet under “Primary Uses & Building Types” that reads: “Two-unit attached residences”. (Also See Zoning Code Amendment 4 below).

IPC recommends the City Council adopt an ordinance to amend and clarify the City Zoning Regulations to conform to the Montana Land Use Planning Act with the following proposed amendments:

1. Page 77, Section 27-1614 A. 2 - Amend paragraph 2 to add the following language at the end: “See appeals process graphic located on the Planning Division webpage.”
2. Page 11, Section 27-402 E. – Amend the last sentence of the paragraph to read: “Significantly more intense uses located on blocks with less intense uses shall be located on block ends.”
3. Page 43, Table 27-1300.1 Off-Street Parking Standards. – Amend the Table to keep the “Accessory dwelling unit” use language under the use column, and add “No required minimum” under the Required Parking column.
4. Add back in the Encouragement of development of housing strategy (a) “allow, as a permitted use, for at least a duplex where a single-unit dwelling is permitted”, which results in the following change on Page 19, Table 27-1000.1 Billings Primary Use Table – Amend the Table in the N3 Column to add a “P” under the “2 dus” row. (Also See Land Use Plan Amendment above).
5. NOTE: This proposed amendment is not in the Ordinance to amend the Zoning Regulations as this section was not changed in the current zoning code. If Council chooses to amend this section of the current zoning code, staff will bring this amendment back in the Ordinance at 2nd reading. Section 27-305 in Table 27-300.4 Site and Structure Regulations and Section 27-306 in Table 27-300.5 Site and Structure Regulations, amend column 2, Row 9 to allow up to 60% Maximum building coverage on lots in the N2 and N3 zoning districts.

IPC recommends the City Council adopt an ordinance to amend and clarify the City Subdivision Regulations to conform to the Montana Land Use Planning Act.

Staff will provide an overall presentation on this agenda item, note these proposed amendments, and be available for discussion and questions.

FISCAL EFFECTS

There are no specific fiscal impacts associated with this item at this time. The Billings2045 effort has been funded by local funds and minimal grants over the past 3 fiscal years. There is some expectation of future savings in some efficiency with the administrative processes that MLUPA requires of local government for land development processes. However, that will be evaluated after the Billings2045 is in place per MLUPA and time has passed to experience the processes.

STAKEHOLDERS

Billings residents, business owners, builders, developers and organizations are all stakeholders in this monumental effort to develop a new comprehensive plan for the future of Billings. The Operational Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations are all part of this effort to encourage housing choices by ensuring there is capacity and flexibility in residential development, accommodating commercial and industrial development, ensuring the transportation system is maintained and expanded to meet community needs, protecting parks and open space, addressing natural hazards in the community.

There was no public comment at the IPC meetings on April 29 or May 7.

ALTERNATIVES

The City Council may:

Adopt the Billings2045 components: Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulation; or
Adopt with amendments the Billings2045 components: Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulation; or
Not adopt the Billings2045 components: Operational Land Use Plan, Future Land Use Map, proposed amendments to the City Zoning regulations and proposed amendments to the City Subdivision regulations; or
Delay action on making a recommendation.

Not adopting the Billings2045 components, or delaying action, will result in the City not meeting the May 17 deadline imposed by the Montana Legislature to enact MLUPA and will place the City out of compliance with State Law.

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