OPENPUBLICA · PUBLIC MEETING RECORD
Record of Proceedings

Billings City Council Meeting - October 13, 2025: Annexation, Zoning, Affordable Housing, and Traffic Impact Study Reforms

City Council — Monday, October 13, 2025
BodyBillings, Montana
SessionCity Council
DateMonday, October 13, 2025
StatusFILED
Video Record
0:00 / 3:04:52

Transcript — Verbatim
0:00

If you would please stand with me for the Pledge of Allegiance, and our invocation tonight will be by Councilmember Aspen Later.

0:07

Pleasure to the planet.

0:43

Amen.

0:50

Tony, uh, if you would, please call the roll.

0:54

Councilmember Shaw.

0:55

Here.

0:56

Guewick.

0:58

President.

0:58

Owen.

0:59

Here.

0:59

Rogers.

1:01

Kennedy.

1:02

Here.

1:02

Aspen Ider.

1:04

Tidswell.

1:06

Boyette.

1:07

Repsis.

1:09

Mayor Cole.

1:10

Here.

1:11

Our first order of business are minutes.

1:13

Uh Council.

1:14

Uh, the minutes from September 22nd.

1:16

Councilmember uh Neys had some uh questions about that, which he posed to Denise, who's not available today.

1:22

So we'll put those off until our next business meeting.

1:25

And uh, but we still have the minutes from September 8th.

1:28

Uh, are there any comments uh or a motion relating to the minutes from September 8, 2025?

1:36

Uh Councilmember Boyette.

1:40

Thank you, Mayor.

1:40

I move that we approve the minutes from September 8th, 2025 as read.

1:45

Very second by councilmember Rogers.

1:49

Any discussion.

1:51

Seeing none, if in favor of the motion for approval of the minutes from December 8, 2025 is drafted, please say aye.

1:58

Aye.

1:58

If opposed, please say nay.

2:00

Motion passes unanimously.

2:02

Uh Council Courteses this evening, uh, do we have any?

2:07

No council courtesies.

2:09

Very good.

2:09

We'll move on to proclamations.

2:11

We do have a proclamation on your agenda, but it's in recognition of Indigenous People's Day.

2:16

And the proclamation reads as follows.

2:18

Whereas the state of Montana recognizes through its highest law, the state constitution and Article 10, the distinct and unique cultural heritage of American Indians and is committed to its educational goals and to the preservation of native culture and integrity.

2:33

And whereas the city of Billings as a self-governing municipal government operating uh pursuant to its charter and the laws of the state of Montana embraces the its responsibility to promote equality and the historical integrity of indigenous people, especially the 13 tribes that together constitute approximately 7% of the population of the state of Montana.

2:54

And whereas the state recognizes that indigenous people are the original stewards from time immemorial of the land underlying the city of Billings, and that over the ages has been the homeland and traditional use area of the Crow, Northern Cheyenne, Sioux, Blackfeet, and other native people in this region.

3:11

And whereas the city recognizes the important contributions of indigenous peoples, the region's rich indigenous history and the contemporary cultural, political, and economic influences that contribute to our diverse community.

3:24

And whereas the city opposes any and all forms of oppression, including those directed toward indigenous peoples who through history have been harmed by policies aimed at forced assimilation and cultural suppression.

3:36

And whereas on this day, October 13, 2025, the City of Billings recognizes, commemorates, and celebrates the contributions and resilience of all Native peoples.

3:46

Now therefore, I, William Cole, mayor of Billings, to hereby proclaim that the City of Billings supports the contributions of American Indians and our community, economy, and rich Western culture by observing and celebrating indigenous people the second Monday of October.

4:03

With that, uh on to council reports.

4:05

Are there any council reports uh uh from uh organizations, groups that you serve on on behalf of the city council members?

4:13

Seeing no council reports, um city administrator report.

4:17

Uh Chris, do you have anything for us this evening?

4:19

Yeah, just one item, uh Mayor and Council.

4:22

So brief update relative to the animal control builder and yeah, animal control building.

4:28

So uh still working towards the certificate of fitness from the Department of Environmental Quality.

4:34

The uh cleaning firm uh arrived this afternoon, began their work.

4:38

Once they finish their work later this week, we'll finish testing and hope to get that certificate from DEQ by the end of the month.

4:46

So we continue to make slow but steady progress uh working with our partners at DEQ to get the facility back safe and operational.

4:55

So thank you.

5:00

Then I'm sorry, last thing I have there was no ex parte communication that came in uh late this afternoon.

Discussion Breakdown — Share of Meeting
Zoning And Land Use██████████████████████████████30%
Affordable Housing█████████████████17%
Public Safety█████████9%
Transportation Safety████████8%
Urban Renewal██████6%
Engineering And Infrastructure██████6%
Procedural█████5%
Parks and Recreation███3%
Immigration Enforcement███3%
Summary of Proceedings

Billings City Council Meeting - October 13, 2025

The Billings City Council met on October 13, 2025, to address a wide range of issues including approving funding for the LB Lofts affordable housing project, amending the sidewalk snow removal ordinance, considering an annexation and zoning change (with a controversial 20-foot buffer strip), creating a utility connection assistance program for the South Billings Urban Renewal District, and launching a discussion on reforming traffic impact studies and impact fees. The meeting also featured a proclamation for Indigenous Peoples' Day and public comments on ICE activities and infrastructure concerns.

Consent Calendar

  • Approved the minutes from September 8, 2025 (as read).
  • Approved the consent agenda (all items) without separation, with Councilmember Aspenlighter making the motion and Councilmember Kennedy seconding. Motion passed unanimously.

Public Comments & Testimony

  • Dan Brooks (Billings Chamber of Commerce) expressed support for agenda item #2 (LB Lofts), citing the growing need for affordable housing (over 8,000 on waiting list) and safety benefits from crime prevention design.
  • Brian Redfern (5523 Clear Sky Drive) spoke during the joint public hearing on annexation and zoning (items 4A/4B), voicing concerns about the CMU1 corridor zoning, potential for a gas station or storage units, traffic impacts on Grand Avenue, and a feeling that public input does not matter.
  • Paul Clark (South Side, Ward 1) commented on non-agenda items, urging for more park space in new developments, addressing stagnant water at the South Street underpass, contamination at the Western Sugar site, and concerns about the proposed animal shelter location.
  • Reverend Kenneth Crouch (1642 Wembley Place) spoke on non-agenda items regarding ICE operations in Billings, asking for a discussion on protocols (no masks, warrants, limits to violent offenders, etc.) and expressing support for Indigenous Peoples’ Day.

Discussion Items

  • Indigenous Peoples’ Day Proclamation: Mayor Cole read a proclamation recognizing the contributions and resilience of Native peoples, acknowledging the land as the homeland of the Crow, Northern Cheyenne, Sioux, Blackfeet, and others. The city opposes all forms of oppression.
  • City Administrator Report: Chris provided an update on the animal control building: a cleaning firm began work to obtain a DEQ certificate of fitness by end of month; no late ex parte communications.
  • Item 2: LB Lofts Affordable Housing Funding
    • Presented by Brenda Beckett and Jordan Langton (Jay). Project: 101 two-bedroom, two-bath affordable rental units in the Billings Heights (Sioux Lane & Twin Oaks Drive). 38% of units serve 31-50% AMI, 62% serve 51-80% AMI. Request: $1.4M HOME + $145K CDBG = $1.545M total (loan, repayable as cash flow reimbursement). Total project budget: ~$25M. Construction expected May 2026 – Dec 2027. Community Development Board recommends approval contingent on viability of stored building materials and commitment from other funding sources.
    • Heather McMylan (Homeward) noted volatile market conditions but expressed confidence in timeline; they have extra pods as contingency. Council discussed delays, storage units (pods), pest control, and the payment-in-lieu-of-taxes (PILOT) policy. Per unit cost: ~$248,000 (including pods and land). Motion by Councilmember Rogers, second by Councilmember Bernice. Vote: unanimous (Councilmember Gullick recused).
  • Item 3: Snow Removal Ordinance Amendment (BMCC 22-406)
    • Tina Hoger presented: no PowerPoint. The ordinance clarifies the process for snow/ice removal from sidewalks. Staff has never used the assessment option, but it remains as a future tool. Enforcement is via door hangers; most compliance. Councilmember Kennedy opposed due to concerns about snow pushed back onto sidewalks and potential fear of charges. Public hearing: no comment. Motion to approve by Councilmember Boyette, second by Councilmember Neese. Vote: 10-1 (Kennedy opposed).
  • Items 4A, 4B, 4C: Annexation, Zone Change, and Ward Boundary
    • 4A: Annexation Petition 25-04 (54 acres between Grand and Colton, currently agriculture within zone 1). Staff recommended approval with conditions. Developer representative John Halverson (Sandbell) and Rick Luthold presented. Key issue: a 20-foot P1 buffer strip required by code to separate CMU1 from agricultural land (to be developed later). Council criticized the strip as wasteful. Councilmember Aspenlighter suggested eliminating it; staff noted legal notice issues. Council later initiated a separate zone change to fix the strip (passed). Public hearing: Brian Redfern spoke. Discussion included traffic impacts, fire service (Station 7 is 0.37 miles away), school capacity, the 23-year-old Cottonwood Park development agreement (Councilmember Mayor Cole cited as reason for his 'no' vote). Motion to approve 4A by Councilmember Aspenlighter, second by Councilmember Tidswell. Vote: 10-1 (Mayor Cole opposed).
    • 4B: Zone Change 1070 (from Agriculture to a planned neighborhood development mixture: N1, NX1, CMU1, P1). Staff recommended approval. Motion by Councilmember Aspenlighter, second by Councilmember Tidswell. Vote: unanimous.
    • 4C: Ward Boundary Ordinance (to include annexed property in Ward 4). Public hearing: no comment. Motion by Councilmember Tidswell, second by Councilmember Rogers. Vote: unanimous.
    • Additional action: Council voted unanimously to initiate a council-initiated zone change to convert the 20-foot P1 strip to CMU1, with staff waiving fees.
  • Item 5: South Billings Urban Renewal District Water & Sewer Utility Connection Program
    • Presented by Dick (SABURA Board). Program: up to $5,000 per residential applicant (max 10/year, $50,000 total) from SABURA's $250K community enhancement budget. Property owner pays system development fee (~$2,442) and permit; SABURA pays contractor for hookup work. Board recommended approval. Council discussion: residential-only intent confirmed; cost share is ~34% (owner pays substantial portion). Motion by Councilmember Rogers, second by Councilmember Kennedy. Vote: unanimous.
  • Council Initiative: Traffic Impact Study and Impact Fee Reforms
    • Councilmember Aspenlighter proposed a work session to discuss two issues: (1) clarifying that a traffic impact study (TIS) is due at preliminary plat submittal (not at completeness/sufficiency review), and (2) implementing a traffic impact fee system to replace current one-off exactions (which often result in unused funds). Noted ~$2M in unprogrammed impact fees. Staff noted workload but acknowledged need for discussion. Motion by Councilmember Aspenlighter, second by Councilmember Kennedy. Vote: unanimous (to hold work session).

Key Outcomes

  • Approved funding for LB Lofts (1.545M) with unanimous support (recusal).
  • Approved first reading of snow removal ordinance amendment (10-1).
  • Approved annexation of 54 acres (10-1).
  • Approved zone change for planned neighborhood development (unanimous).
  • Approved ward boundary adjustment (unanimous).
  • Approved SABURA utility connection program (unanimous).
  • Directed staff to schedule a work session on TIS timing and impact fee system (unanimous).
  • Council initiated a separate zone change to address the 20-foot buffer strip (unanimous).

Meeting Transcript

If you would please stand with me for the Pledge of Allegiance, and our invocation tonight will be by Councilmember Aspen Later. Pleasure to the planet. Amen. Tony, uh, if you would, please call the roll. Councilmember Shaw. Here. Guewick. President. Owen. Here. Rogers. Kennedy. Here. Aspen Ider. Tidswell. Boyette. Repsis. Mayor Cole. Here. Our first order of business are minutes. Uh Council. Uh, the minutes from September 22nd. Councilmember uh Neys had some uh questions about that, which he posed to Denise, who's not available today. So we'll put those off until our next business meeting. And uh, but we still have the minutes from September 8th. Uh, are there any comments uh or a motion relating to the minutes from September 8, 2025? Uh Councilmember Boyette. Thank you, Mayor. I move that we approve the minutes from September 8th, 2025 as read. Very second by councilmember Rogers. Any discussion. Seeing none, if in favor of the motion for approval of the minutes from December 8, 2025 is drafted, please say aye. Aye. If opposed, please say nay. Motion passes unanimously. Uh Council Courteses this evening, uh, do we have any? No council courtesies. Very good. We'll move on to proclamations. We do have a proclamation on your agenda, but it's in recognition of Indigenous People's Day. And the proclamation reads as follows. Whereas the state of Montana recognizes through its highest law, the state constitution and Article 10, the distinct and unique cultural heritage of American Indians and is committed to its educational goals and to the preservation of native culture and integrity. And whereas the city of Billings as a self-governing municipal government operating uh pursuant to its charter and the laws of the state of Montana embraces the its responsibility to promote equality and the historical integrity of indigenous people, especially the 13 tribes that together constitute approximately 7% of the population of the state of Montana. And whereas the state recognizes that indigenous people are the original stewards from time immemorial of the land underlying the city of Billings, and that over the ages has been the homeland and traditional use area of the Crow, Northern Cheyenne, Sioux, Blackfeet, and other native people in this region. And whereas the city recognizes the important contributions of indigenous peoples, the region's rich indigenous history and the contemporary cultural, political, and economic influences that contribute to our diverse community. And whereas the city opposes any and all forms of oppression, including those directed toward indigenous peoples who through history have been harmed by policies aimed at forced assimilation and cultural suppression. And whereas on this day, October 13, 2025, the City of Billings recognizes, commemorates, and celebrates the contributions and resilience of all Native peoples. Now therefore, I, William Cole, mayor of Billings, to hereby proclaim that the City of Billings supports the contributions of American Indians and our community, economy, and rich Western culture by observing and celebrating indigenous people the second Monday of October. With that, uh on to council reports. Are there any council reports uh uh from uh organizations, groups that you serve on on behalf of the city council members?

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