Papillion City Council Tables Missing Middle Housing Proposal, Advances Animal Ordinance and Recreation Bonds
Papillion City Council's August 18 meeting included an emotional farewell to a longtime city employee, testimony from residents affected by dangerous dog attacks, debate over future housing development, recreation financing and an update on Papillion's selection as an official Hallmark Christmas Town.
The Papillion City Council covered a wide range of issues Tuesday night, but some of the meeting's most significant discussions centered on two subjects that directly affect the character and safety of the community: how Papillion should accommodate new types of housing and how the city responds when dogs pose a danger to residents and their pets.
Council members ultimately delayed action on a proposed new residential zoning district intended to accommodate "Missing Middle" housing, sending the proposal to committee for additional review. Residents also returned to City Hall to continue pushing for stronger protections following serious and, in some cases, fatal dog attacks.
The meeting also included final approval of recreation bonds, several Trumble Hills development items, updates on city recreation and events, and a lengthy tribute to retiring Parks and Facilities Director Tony Gowan.
Missing Middle housing proposal tabled for six weeks
One of the night's longest policy discussions involved a proposed new R-5 residential zoning district designed to provide standards for housing types that fall somewhere between traditional single-family neighborhoods and larger apartment developments.
The concept is commonly referred to as "Missing Middle" housing and can include duplexes, triplexes, townhomes, cottage-style developments and smaller clustered or "pocket" neighborhoods.
During council discussion, Councilman Steve Sunde asked Planning Director Travis Gibbons to explain the proposal in simpler terms, noting that he had not had enough time to fully study it.
The discussion quickly moved beyond the technical details of the zoning district and into a larger question about what future residential development should look like in Papillion.
City officials explained that creating an R-5 district would establish standards developers would be required to meet rather than requiring the city to negotiate individual development agreements each time one of these projects is proposed.
Importantly, creation of the district would not automatically allow Missing Middle development throughout Papillion. A developer seeking R-5 zoning would still have to go through city staff review, the Planning Commission, a public hearing and ultimately City Council approval.
Sunde expressed concern that individual developments should still be evaluated based on how they affect the surrounding community.
"The people of this community have a say," Sunde said during the discussion.
Mayor David Black responded that the proposed process would retain those opportunities because individual zoning changes would still come before the Planning Commission and City Council.
Councilman Jason Gaines raised stronger objections.
Gaines said he was generally opposed to the proposal based on many of the same concerns Sunde had raised and questioned why it had not first been reviewed by an appropriate council committee.
He described the proposal as a "further deterioration of standards that have always made Papillion Papillion."
Gaines pointed specifically to single-family homes as one of the characteristics that has traditionally differentiated Papillion from surrounding communities. He noted that during his 14 years on the council, Papillion had approved numerous apartment complexes and was now considering additional housing forms such as duplexes, triplexes and pocket communities.
Rather than voting on the ordinance that night, Gaines moved to table it for six weeks and refer it to the city's Affordable Housing Ad Hoc Committee for further discussion and council input.
Sunde seconded the motion.
The council voted 7-1 to table the proposal, with Councilman Glover voting against the delay.
The issue is therefore not dead. It will receive additional committee review before returning to the council.
Dangerous dog ordinance brings residents back to City Hall
The council also held a public hearing on Ordinance 2095, which would amend Chapter 85 of the Papillion Municipal Code governing the care and keeping of animals.
The issue has been developing for months following testimony from residents whose pets or family members have been attacked by dogs.
One of the significant proposed changes would give animal control authority to immediately impound a dog for up to 72 hours when there is reasonable cause to believe the animal may pose a hazard to public safety.
The hearing brought several residents back before the council to recount why they believe changes are necessary.
Jody Sutton spoke about her dog Duke, who survived an attack by three dogs approximately 10 years ago.
According to Sutton, Duke suffered 87 wounds and lacerations from head to tail. Two of the attacking dogs were ultimately shot at the scene after pepper spray and Tasers failed to stop the attack.
Another resident described losing her dog, Roxy, after a neighbor's dog broke through a fence and attacked Roxy while she was being walked on a public sidewalk in July 2025.
She told council members that the Nebraska Humane Society did not have the authority at the time to immediately remove the attacking dog and that obtaining removal authority through the court process could take months.
The owner eventually surrendered the dog, but the resident said previous incidents involving the same animal had not been documented in a way that allowed authorities to connect them.
"The fine for killing Roxy was $50," she told the council. "I will never accept that as reasonable."
She also presented figures she said she had obtained regarding Nebraska Humane Society calls in Papillion. According to her testimony, there had been 253 animal-related calls so far in 2026, with 71 calls that could potentially have resulted in citations and six citations actually issued.
Those figures were presented by the resident during the hearing and should not be interpreted as independently verified city statistics.
Other residents argued that the proposed changes still don't go far enough.
Mike Hurtman, who previously spoke to the council after he and his dog were attacked, told officials that residents had been raising these concerns for approximately 10 months.
Hurtman argued that the ordinance still does not adequately address three areas: prosecution and enforcement, classification of reckless owners, and the city's relationship with the Nebraska Humane Society ending with “I appreciate at least your attempt…but it failed dramatically. It just simply failed. It failed all of us.”
The testimony illustrated the difficult balance the city is attempting to strike: giving authorities the ability to act quickly when an animal may present a genuine danger while also establishing a clear and fair process for animal owners.
Questions raised during the hearing included who determines "reasonable cause," what notice an owner receives, what occurs during the 72-hour impoundment and what review or appeal options are available.
Mayor Black said those questions would be addressed when the ordinance reaches council discussion rather than during the public-hearing portion of the meeting.
Recreation bonds approved 8-0
The council also took final action on Ordinance 2097, involving up to $9.58 million in bonds for recreation projects.
There is an important distinction in the night's two votes on the ordinance.
City staff first requested that the council waive the usual second and third readings so the city could move forward more quickly in the bond market. Officials cited timing and a rising interest-rate environment.
That waiver required a supermajority and passed 7-1, with Sunde voting against waiving the additional readings.
The council then separately voted on Ordinance 2097 itself.
That vote was 8-0 in favor.
In other words, Sunde opposed accelerating the ordinance through the reading process but did not vote against the recreation bonds themselves.
A municipal bond essentially works like a loan to the city. Investors provide money upfront so projects can be completed now, and the city repays that money over time with interest.
In this case, Papillion is authorized to borrow up to $9.58 million for recreation projects, with repayment primarily coming from revenue generated by the city's half-cent recreational sales tax.
Trumble Hills moves forward
The council also approved several items related to the Trumble Hills development near 66th Street and Cedardale Road.
Council approved a zoning change involving R-2 single-family residential medium-density and R-4 multifamily residential property.
That measure passed 7-0 with Sunde abstaining.
Council subsequently approved the final plat and subdivision agreement.
The subdivision agreement passed 7-1. A related sewer and water connection agreement also passed, with Sunde abstaining from that vote.
Tony Gowan honored after 33 years with Papillion
Mayor David Black hugs, Tony Gowan, after an emotional retirement recognition and reading of a proclamation, dedicated to the outgoing Parks and Facilities Director. Photo courtesy of city of Papillion YouTube video.
Before the night's policy debates, the council spent considerable time recognizing the retirement of longtime Parks and Facilities Director Tony Gowan.
Gowan began working for Papillion on February 2, 1993.
Over the following 33 years, his role evolved alongside the city itself. He began his career in golf before moving into Public Works when parks became a dedicated division and continued serving as Parks and Facilities developed into its own department.
His work touched many of the places and traditions residents now closely associate with Papillion.
According to the city's proclamation, Gowan helped develop future city leaders through the Papillion Leadership Academy, served for years as an adviser to the Tree Board, helped establish Papillion's arboretum and advocated for the city's continued Tree City recognition, which has now extended for 37 years.
He also played a significant role in Veterans Park and Papillion's annual Winter Wonderland celebration.
The proclamation credited Gowan's "magical touch" as instrumental in Papillion being recognized this year as an official Hallmark Christmas Town.
What followed was considerably more personal than a standard retirement proclamation.
Council members and city staff spent roughly 20 minutes sharing memories of Gowan and describing the effect his work has had on Papillion.
Photos courtesy of City of Papillion Youtube video and Let's Really Talk Nebraska.
One council member suggested the Parks Department's leadership may have had a greater effect on residents' day-to-day quality of life than the council itself.
City Administrator Amber Powers described the parks, facilities and community spaces Gowan helped shape as his lasting fingerprints and legacy throughout Papillion.
Mayor Black became emotional while remembering his earliest years as mayor and described Gowan as one of the department heads he quickly learned he could trust.
For residents who have spent years enjoying Papillion's parks, trees, trails, Veterans Park or Winter Wonderland, much of Gowan's work spanning over three decades has been hiding in plain sight, but will be enjoyed for many more to come.
Papillion is officially a Hallmark Christmas Town
Gowen’s recognition carried over into council comments later in the meeting.
Papillion has been selected as one of 25 communities nationwide designated an official Hallmark Christmas Town.
The public can vote once per day in Hallmark's contest, with the winning community receiving the "Merriest" Christmas Town designation.
City officials said the grand prize also includes an opportunity for a Hallmark movie to be filmed in the winning community.
Papillion's submission included a Winter Wonderland promotional video created last year the city's communications staff in the style of a Hallmark movie.
That video is now featured by Hallmark as part of the city's contest submission.
Recently, city employee Trenton Albers featured a witty social media video attempting to persuade celebrity Leonardo DiCaprio into voting for Papillion. Check it out here.
VOTE HERE!
City updates: Landing pool, Farmers Market and Twilight Criterium
Powers also provided several community updates.
During the temporary closure of the Papillion Landing pool, Papillion residents can use the Sarpy Community YMCA pool, but residents must first obtain a voucher from the city's recreation offices.
Powers noted that Papillion had extended the same courtesy to YMCA users when its pool had recently been closed for maintenance.
The Papillion Farmers Market continues Wednesdays from 5 to 8 p.m. through September 16 at City Park.
Powers described this year's market as a "huge hit" and said the recently completed City Park improvements have enhanced the experience for both vendors and shoppers.
She also recognized the organizations and city departments involved in the Papillion Twilight Criterium, held August 9 in downtown Papillion, including the Omaha Sports Commission, Sarpy County Tourism and staff from Parks and Recreation, Police, Fire and Public Works.
New public art coming to City Park
Mayor Black also announced an informal unveiling of a new public-art sculpture installed at City Park.
Residents were invited to attend the unveiling Wednesday morning at 9:30 a.m.
A larger formal dedication of the renovated park is expected in late September or early October.
City meeting with legislative candidates
Near the end of the meeting, Black also briefly discussed the city's work ahead of the next legislative session.
He said city officials are attempting to meet with candidates to educate them about Papillion's city issues, budget and legislative priorities, including measures the city has previously tried to move through the Nebraska Legislature.
While it was a relatively brief comment, it offered some insight into the work happening outside formal council meetings as Papillion prepares for another legislative session and continues navigating rapid growth.
A meeting about what Papillion becomes next
Although Tuesday night's agenda included everything from bonds to zoning to dogs and Christmas movies, much of the discussion came back to the same underlying issue: how a growing Papillion changes without losing the qualities residents value about the community.
That question was explicit during the Missing Middle debate.
It was present in residents' demands for stronger animal protections.
It could be seen in millions of dollars being invested in recreation facilities, new subdivisions moving through the approval process and a city employee retiring after spending more than three decades helping build the parks and traditions residents now consider part of Papillion's identity.
The Missing Middle discussion isn't finished. Neither is the community conversation surrounding dangerous dogs.
Both issues will return to City Hall.
And those future meetings will give Papillion residents another opportunity to weigh in on what those policies should ultimately look like.
By Kelly Bohlman | Let’s Really Talk Nebraska
