Proponent acquires land.
Proponent undertakes rezoning process (protracted and unconventional though the process may be).
City does not support the proposal.
Proponent appeals to the Board.
Board rules in favour of the proponent.
City and proponent negotiate an outcome that merges the City's original vision/desires with that of the proponent.
Proponent sells rezoned project to a developer with ability and capacity to execute.
Purchaser markets and builds.
Or something like that! Which is to say, there are certainly non-nefarious versions of this process that could ultimately net the City a bunch of new housing and a beautiful new public park, and the proponent a successfully delivered project.