Peoria approves redistricting map 2.3 despite council dissent and public opposition concerns

Council Adopts Redistricting Map 2.3 Over Public Opposition, Approves Cannabis Dispensary and Development Projects

Peoria City Council voted 7-2 on February 22, 2022, to adopt redistricting map version 2.3, effective May 1, 2022, despite significant public and council opposition over the compressed timeline and map design. The decision capped a three-month process that drew criticism for canceling three advertised public hearings and moving to a final vote before receiving community input on the new boundaries. The council also advanced a social equity cannabis dispensary and denied two liquor license applications based on police suitability concerns in high-crime areas.

Redistricting Map 2.3: The Core Controversy

The redistricting map dominated the meeting's final hour and generated the most sustained debate. The 2020 Census showed dramatic population shifts northward across Peoria, requiring substantial boundary adjustments: District 1 needed to grow by 3,900 residents, District 2 by 1,500, District 3 by 1,100, while District 4 shrank by 1,300 and District 5 by 5,500. These shifts meant that under map 2.3, as many as 10 of 11 council members could reside north of War Memorial Drive—leaving only one from the southern, older neighborhoods.

Councilmember Jensen opened discussion with a direct critique: "I won't be supporting this map as I indicated at our last meeting. I think this is too significant of a decision... we only met twice in two policy sessions and are adopting a map that was given to us two and a half hours before the second policy session." He continued: "A majority of this council didn't agree to have at least one more policy session after he received that input during the public hearing. I think that's terrible form. It's not good government."

Jensen highlighted that Corporation Counsel's own memo indicated no legal deadline until August 1, 2022—six months away. He argued the map itself was flawed: "I don't think it's compact enough we haven't received enough input or we haven't considered it... it hurts the older parts of the city... 10 of the 11 council members can be living north of war memorial drive that means we could have only one council member that lives on the southern part south of war memorial drive on this council to me that is not good representation we need diverse representation racially and geographically."

Denise Jackson, who also voted no, echoed concerns about process: "we did unanimously approve it in record time and um you know we've heard from a lot of people and people have asked us to wait uh to listen to them uh these are the folks who put us in office and i think you know we at least owe it to them to hear what they their recommendations are or at least what they would like to see before we rush this is a process we only do once every 10 years."

Support for Map 2.3

Timothy Riggenbach defended the map on substantive grounds: "looking at this map this will be the third map that i've run under as or served under... as the third district councilman and i have to tell you that this map is probably the cleanest most easily defined map that i've seen... this map really hits every single one of those... you can argue obviously there's plenty of room to argue but for me as a district council member i can point out clearly how the lines are drawn and that you go up 74 to knoxville to war memorial to university boom that that's clear and concise."

Zachary Oyler argued pragmatism over delay: "there's probably 10 things i can think of off the top of my head that i would like to change about this map and i'm sure that everyone around this horseshoe can do the same thing and if we all try to push for those 10 things we're never actually going to create a map... it was a very quick and easy majority and actually to the point that even came out unanimous out of uh our committee... to me i think we did the right thing this makes sense."

John Kelly raised a procedural alternative—ratifying the map but pushing the effective date to allow the city attorney to seek guidance from the state Attorney General. Corporation Counsel Kapuska responded that the AG would likely decline to intervene and that candidates needed time to establish residency in effective district boundaries before a future election. The council rejected this approach and voted on the map as presented.

Public Opposition: League of Women Voters

The League of Women Voters of Greater Peoria submitted a formal letter read into the record by the City Clerk, expressing alarm at both process and substance. The league noted cancellation of three advertised public hearings scheduled for March 1, March 15, and March 29. On substantive grounds, the league's criteria—listed in order of importance—were (1) equal population, (2) compactness, (3) protection of minority population areas, (4) use of major thoroughfares as boundaries, and (5) minimal precinct changes. The league stated: "while it is clear that map version 2.3 is consistent with districts of generally equal population we are less confident that map version 2.3 is compact does not provide minority population areas and uses majority thorough affairs as boundary lines."

The letter urged the council to adopt a revised approval schedule allowing more robust public input and a map more responsive to league criteria. No public speakers appeared in person, though the clerk noted the league's submission.

The Vote

The motion to adopt map 2.3 with an effective date of May 1, 2022, passed 7-2. Denise Jackson and Jensen voted no. All others voted yes.

Cannabis Dispensary Social Equity Designation

Councilmember Dr. Andre W. Allen flagged the cannabis item (22-059) as the city's first social equity applicant and requested Corporation Counsel Kapuska explain the state law framework. Kapuska outlined that Illinois' social equity program targets individuals living in disproportionately impacted areas (nearly all of Peoria qualifies) who have ownership control and whose parent, spouse, or child has been arrested or convicted of a cannabis-related offense. Social equity applicants receive reduced licensing fees and—critically—are exempt from the state's 1,500-foot minimum distance requirement that applies to non-social-equity dispensaries.

Dr. Andre W. Allen noted: "now that we have our first social equity designation uh regarding adult use cannabis dispensary um if you look at our ordinance we don't have anything in our ordinance about social equity designation and i think that we need to follow suit what other municipalities are doing in the state and added some verbiage to our ordinance just to ensure that those who get the designation um operate within the spirit of the designation."

Councilmember Jensen, however, voiced strong opposition: "i was always concerned about us having too many dispensaries in one area of the city... we relied their hats upon the state law that said at least we have that protection that no dispensaries would be within 1500 feet of one another and the majority of the council thought that was significant... well unbeknownst to you know those of us who voted that way i didn't vote that way but the law has been changed... so we no longer have that 1500 foot protection that this council was relying upon... i can't support this at this time."

Kapuska clarified that tonight's vote was on a special use permit (zoning), separate from the city's licensing process. The latter is where the city can impose additional restrictions. Timothy Riggenbach acknowledged the complexity: "clearly there's many layers to the onion as they say um when you deal with this... i think um corporation council hit the nail on the head here that we really do owe it to ourselves to review the licensing aspect of it so... i think this needs a little closer look here as the industry evolves but i will be supporting this tonight."

The motion to approve passed 7-2. Jensen and Graham voted no. Dr. Andre W. Allen and Kapuska promised to bring ordinance language within two weeks to protect the spirit of social equity at the city level, addressing concerns about concentration and license transfers.

Liquor License Denials: Southwest Side Locations

The council denied two liquor license applications (22-071 and 22-072) for In and Out Market at 304 Southwest Avenue and TNT Outlet at 2203 Southwest Jefferson Avenue, respectively. Both denials were recommended by the police department on site suitability grounds, not applicant quality.

Officer Slavins presented the police rationale: "site application is about the suitability of site for said location it is about the location the location and nowhere in the letter will you hear us reference anything about the applicant." He noted that police district 8—where both locations sat—"is one of our busiest districts and it borders our very busiest district to the west." Districts 2, 3, 4, and 8 together generated one-third of all police calls and 41 percent of violent crime incidents despite covering less of the city's geography. Both sites were within 4-5 blocks of existing liquor retailers (Walgreens, Western Liquors).

Slavins testified: "the police department had a difficult time appreciating any economic benefit to this business in the neighborhood regarding this application."

Denise Jackson supported the denials, emphasizing neighborhood redevelopment strategy: "we are trying to look at how we can return western avenue to some sort of business district that we once enjoyed and i honestly believe that with the existing standalone or and some larger scale establishments that sell alcohol this is not going to bring anything new but in fact as we look to redevelop western avenue further up... it will not look as attractive to future investors if we have a slew of standalone alcohol establishments on western avenue."

Dr. Andre W. Allen dissented on both votes, defending entrepreneurship: "i do think sometimes we've got to plant that seed um in order for entrepreneurship to blossom... i do think that the simmons couple could possibly in five years open up a full-fledged grocery store if this seed is planted in nourish and water."

Vote Breakdown

• In and Out Market (22-071): Denied 7-2 (Councilmembers Alan and Denise Jackson—correction: Alan supported, Denise Jackson opposed; final vote shows 7-2 with Denise Jackson and John Kelly opposed per the brief, but transcript shows Denise Jackson speaking in favor of denial). The motion to deny passed with one nay from Alan.
• TNT Outlet (22-072): Denied 7-2 (Alan was the sole dissenting vote per the brief, though the transcript shows his earlier support for entrepreneurship applied here as well).

Notably, the denials were based on neighborhood vulnerability and the city's broader redevelopment goals on Western Avenue, not on the applicants' character or operational capability. Father Free Hill from St. Anne's Church also submitted a letter opposing the TNT Outlet location.

Natural Fiber Welding Expansion—Special Use Amendment (22-070)

The council unanimously approved a special use amendment allowing textile manufacturing in the former Shopko building at Pioneer Parkway (2323, 2311, 2327 West Pioneer Parkway, and 2401 West Pioneer Parkway). The application was fast-tracked after the building's new owners secured Natural Fiber Welding as a tenant.

Director Doolin explained: "this building eight or nine months ago had an incredible bad mold problem and they took some enforcement action and the property was sold cleaned up uh the new owner was looking for a tenant and a fantastic partner with natural fiber welding came forward... natural fiber welding can start the process."

Matt Nelson, Director of Engineering for Natural Fiber Welding, stated: "in five years we've been able to create about 200 jobs here in peoria and uh you know with this zoning approval we will continue to have options to expand our claris development and operations... we're proud to have our roots here in peoria and you know we're grateful to be part of this resourceful and hardworking you know an innovative community proud that you chose peoria."

Councilmember Graham raised a concern about opening Pioneer Parkway to broader industrial development. Assistant Director Allison clarified: "this is a special use for with an existing shopping center that the opportunity to add an additional use for textile manufacturing it doesn't change the original composition of the shopping center... this isn't going to be a shotgun marriage with any factory that might want to come up here on pioneer parkway."

The motion to approve passed unanimously.

Peoria Keller Station Business Development District (22-057)

The council approved a business development district designation and development plan for the Keller Station area (bounded by Knoxville Avenue and the park district Rock Island Greenway Trail, approximately 7 acres and 9 buildings). Attorney Herb Klein with Jacob and Klein Law Firm explained that the district qualified for BDD status due to deterioration, vacancies, inadequate utilities, and obsolete planning standards.

The BDD imposes an extra 1 percent retail sales tax on the area (excluding groceries, prescriptions, medicines, and titled vehicles). Revenue funds public improvements (particularly at Knoxville and Prospect intersection) and renovation of historic buildings. A development agreement with the developer would offer reimbursements for BDD-eligible expenses.

James Reid from the Economic Development Group expressed support. The public hearing drew no opposition. The motion passed unanimously.

Combined Sewer Overflow Control Project Year One (22-061a and 22-061b)

The council approved two separate motions related to the CSO control project:

1. Approval of Illinois Civil Contractors Inc.'s low bid of $3,627,117.07 for Year One drainage-related infrastructure improvements.
2. Execution of a notice of intent to award the same amount, contingent on IEPA loan approval.

This represents the first phase of an 18-year, $109 million investment in drainage separation and combined sewer elimination. Councilmember Jensen requested clarification on what projects were included; Director Powers committed to providing a project list but characterized all work as drainage-related.

Both motions passed unanimously.

Jobs Training Program Expansion (22-069)

The council approved deployment of $300,000 in American Rescue Plan funds for workforce development. Kevin Evans from Economic Development explained that the program shifts funding from TIF districts to broader citywide distribution and establishes performance-based agreements with nonprofits.

John Kelly emphasized the importance of placement metrics: "could you uh i just have a question is placement part of your uh performance matrix... it seems to me that's ultimately our goal and to see if we're on track with training placement would be a very good metric... if we're not able to place these folks then you know we have to step back a little bit."

Evans acknowledged the suggestion and agreed to incorporate placement into performance metrics where feasible. The motion passed unanimously.

PEBSA Ordinance Amendment First Reading (22-058)

The council voted 5-1 to receive and file the first reading of an ordinance amending the Public Safety Benefits Act following an Illinois Supreme Court ruling that the city exceeded its home rule authority by defining terms outside the statute's scope.

Corporation Counsel noted that the fire union had provided redline comments on Saturday, suggesting the ordinance may require adjustments. Councilman Graham argued for deferral pending substantive discussions with bargaining units to avoid repeating the litigation that elevated the matter to the Illinois Supreme Court. Timothy Riggenbach countered that receiving and filing was procedurally appropriate as it allowed for further negotiations before final adoption.

Jensen dissented, preferring deferral: "when we do a first reading it comes back in two weeks and it just sounds to me from what i heard... it's going to take more than two weeks to work it out and to come to an agreement that satisfies everyone." The motion passed with Jensen voting no.

Non-Owner-Occupied Registration Report (22-067)

John Kelly removed this item from consent and declined to move approval, stating it did not address his specific request. He had asked for a report on the impact of the registration fee on substandard rental housing conditions—whether the program had actually improved housing stock since its inception.

Director Doolin provided a lengthy defense of the program, explaining that the registration fee is a tool for code inspectors (providing landlord contact information for rapid communication) rather than a standalone enforcement mechanism. He emphasized improved landlord relations, staff increases due to fee revenues, and anticipated progress with American Rescue Plan funding.

Councilmember Jensen added historical context: the program originally included robust rental inspections (1995–2008/2009) before budget cuts eliminated that component. He noted that baseline data from the period before the ordinance was adopted exists in federal court records from a 1990s lawsuit against the city.

Timothy Riggenbach moved to receive and file the report; the motion passed 7-2 with John Kelly and Euler voting no. Doolin and City Manager committed to work with John Kelly on a revised report addressing his specific data request.

Consent Agenda Items

The following items passed as part of the consent agenda or were approved unanimously:

• Approval of minutes from the February 8, 2022, joint meeting (unanimous).
• Open and close of public hearing 22-057 for Keller Station BDD (unanimous).
• Short-term rental special uses (22-062 and 22-063) for properties at 307 East Maywood Avenue and 3226 North California Avenue (unanimous).
• Manufactured modular building sales ordinance amendment (22-064, unanimous).
• Liquor licenses: Class K rental hall license for Staged Events at 3300 West Willard (22-065) and Class B1 restaurant license for Jack's on Adams at 107 Southwest Adams (22-066), both approved by liquor commission recommendation and passed unanimously.
• Declaration of Local State of Emergency (22-060, unanimous).
• Whistleblower Protections Policy (22-055, unanimous).

Proclamations and Civic Recognition

The council proclaimed February 2022 as Black History Month in Peoria, acknowledging the contributions of African Americans to the city since 1773 and the theme of "Black Health and Wellness."

The council also proclaimed February 27–March 5, 2022, as National Peace Corps Week. Ed Berry, Planning & Zoning Commissioner and architect, and Melody Green, newly appointed Chief Diversity and Inclusion Officer, accepted the proclamation and spoke to the value of Peace Corps and the city's Peoria Corps program in developing young leaders.

Infrastructure and Federal Funding

Councilman Graham highlighted upcoming Bipartisan Infrastructure Law funding and encouraged constituents to report potholes to 309-494-CARE. He asked the City Manager for guidance on federal funding rollout and flexibility for residential street repairs.

City Manager noted that the federal government has not yet released guidelines but that the city is preparing grant applications (including for the RAISE grant) to access available funds. The manager cautioned that federal dollars are typically directed to major thoroughfares through existing mechanisms (IDOT, tri-county planning) and that flexibility for residential streets remains uncertain.

Other Approved Items

• Nonprofit Capital Grants Program: John Kelly announced that applications are now available for nonprofits needing capital structural improvements; deadline March 18, 2022; $450,000 available from American Rescue Plan funds.

Vote Summary

Item	Case	Description	Vote	Outcome
Keller Station BDD	22-057	Open/close hearing, designation	Unanimous	Approved
PEBSA Ordinance	22-058	First reading, benefits act	5-1 (Jensen nay)	Approved for filing
Cannabis Dispensary (Social Equity)	22-059	Special use permit, 4600 N. Brandywine	7-2 (Jensen, Graham nay)	Approved
CSO Project Bid	22-061a	Illinois Civil Contractors, $3.6M	Unanimous	Approved
CSO Project IEPA Loan Intent	22-061b	Notice of intent to award	Unanimous	Approved
Non-Owner Registration Report	22-067	Receive and file	7-2 (John Kelly, Euler nay)	Approved
Jobs Training Program	22-069	$300K ARP deployment	Unanimous	Approved
Natural Fiber Welding	22-070	Textile manufacturing SUP	Unanimous	Approved
In and Out Market	22-071	Liquor license denial	7-2 (Alan nay)	Denied
TNT Outlet	22-072	Liquor license denial	7-2 (Alan nay)	Denied
Redistricting Map 2.3	22-073	New district boundaries, eff. 5/1/22	7-2 (Denise Jackson, Jensen nay)	Approved

Duration

The meeting lasted approximately 3 hours. The redistricting item alone consumed roughly 45 minutes.

Notable Tensions and Themes

Representation and Process: The redistricting debate exposed a fundamental tension between the council's desire to act decisively on a decade-long obligation and council members' and the public's concern that compressed timelines and canceled public hearings violated democratic process. Two council members dissented, and the League of Women Voters formally objected, citing lack of compactness and minority-population protections—rare public opposition on a zoning matter.

Social Equity and Unintended Consequences: The cannabis dispensary vote highlighted how state law changes (the social equity exemption to the 1,500-foot buffer zone) can undermine local planning assumptions made in good faith. Jensen explicitly raised this concern, and the council responded by commissioning ordinance amendments to protect the spirit of social equity at the city level—an attempt to reclaim local control within state preemption.

Neighborhood Vulnerability and Investment Priority: The liquor license denials reflected a strategic decision to avoid further alcohol retail concentration in neighborhoods already targeted for redevelopment. This rationale—prioritizing long-term neighborhood character over individual entrepreneurship—signals the city's commitment to equitable development, though Councilmember Alan's dissent underscored the tension between community development strategy and small-business opportunity.

Economic Development and Industrial Zoning: The Natural Fiber Welding approval was uncontroversial and celebrated as a success—job creation, vacant-building reuse, local employment. Councilman Graham's procedural question (whether approving a special use for textile manufacturing opens the door to other industrial uses on Pioneer Parkway) was answered by clarifying that each application is reviewed on its merits. This reflects the city's careful gatekeeping on industrial zoning in established commercial corridors.