CLAYTON -- The St. Louis County Council on Tuesday evening approved zoning changes that would allow the development of a controversial new casino and entertainment complex in north St. Louis County, but the project is still far from a sure bet.

The proposed casino has drawn opposition from environmentalists concerned about the site near Columbia Bottoms Conservation Area, area residents who say the development is too much for the site and community groups that just don’t want a new casino. Dozens of opponents spoke out Tuesday night, but the council voted 4-2 to approve the rezoning request.

North County Development LLC wants to put a casino, convention center, theater, hotel, sports bar, buffet, store space, 18-hole golf course and more than 8,000 parking spaces on the site. The 377-acre property is a mile north of Interstate 270.

Several council members who approved the rezoning said they based their vote strictly on zoning rules, and said the vote was not about gambling, casinos or the environment at this point.

Backers of the project have said it will create construction and service jobs and supply needed tax revenue.

"The construction of this project will put thousands of people back to work," said Mayor Robert Lowery of Florissant. "There are a lot of people in need of this project."

Others who spoke said a casino isn’t the best way to promote the area as a destination spot.

"Building a giant facility on the confluence of North America’s two largest rivers ... is not the way to promote economic prosperity in this county," said Michael Berg, who opposes construction of the complex.

But the high-stakes plan still faces a trio of obstacles. The casino would need to jump environmental regulation hurdles, overcome concerns about floodplain development and, most importantly, secure a gaming license from the state.

Mitch Leachman, of the St. Louis Audubon Society, said his group opposes the effect of the project on migratory birds and there’s no need to rush any decisions.

"You can make this decision later. Take the time to do it right," he told the County Council.

Last year, state voters froze the number of gaming licenses at 13. There are already 12 casinos in the state, and the 13th license belongs to one under construction in Lemay. For a new casino to be built, one of the current licenses must be put up for bid.

"This North County group knows that there is no license available," said Gene McNary, executive director of the Missouri Gaming Commission. "They’re preparing themselves with proper zoning and I don’t know what else, probably market studies, in case a license becomes available."

That appeared likely in August, when the Gaming Commission denied Pinnacle Entertainment’s request to replace or relocate the aging President Casino on the Admiral riverboat in St. Louis.

However, Pinnacle appealed that decision, leaving the issue in limbo. Pinnacle also suggested last week that if it can’t move the casino or replace the Admiral with a different, newer boat, it will repair the Admiral’s hull before its certification expires in July.

Pinnacle had in the past said that wouldn’t be practical. But the company, which also owns the Lumière Place casino on Laclede’s Landing, now seems willing to go that route to avoid risking the loss of the license.

It’s unclear how the commission will respond to Pinnacle’s change of heart.

"Pinnacle on their own said they can’t repair it," McNary said. "They’re now kind of changing their mind. How the commission will treat that, I don’t know."

Even if President’s license is put up for grabs, the North County developers wouldn’t be home free. McNary pointed out that Cape Girardeau and Sugar Creek developers also would likely vie for the license.

"In my opinion, if a license becomes available, it would be opened up for proposals statewide," McNary said.

The possibility of another casino in the St. Louis area isn’t appealing to Robyn Hamlin, who spoke at Tuesday’s meeting and said another casino and the problems it brings aren’t necessary.

"You’re going to bring in a bunch of things we don’t need," she said. "We already have six casinos (in the St. Louis area)."

Staff writer Leah Thorsen contributed to this report.