This may have to go to city council for approval. 

Go to the local city council meetings and go out and vote for a change come election time. 

@Matt GeertsIt's not quite that easy ;-)You will need permits (building, electrical, plumbing, sewer/services, demolition, etc.) and you will need site plans and architectural plans and most probably council approval before you break ground.

As I mentioned in my introduction I am exploring the Omaha/Council Bluffs area for buy and hold purchases. 

Hi Brandon,Your friend may benefit for working with an experienced agent in that area, who may be able to direct him or her to appropriate legal council as well. 

That is why city council is having a tough time finding reliable data on if we are over/under built. 

Will do necessary with CPA /legal council.

I like to council folks that if your going for C's have a plan to buy 10 or more.. you need to do exactly as you mentioned spread the results ..

@Ben Pohle for this specific circumstance, my girlfriend's brother in law is involved with the city council.  

@Michael McCartneyI would suspect the developer had to go through an approval process with the City (a planning advisory council or similar with ratification by council).