This is a real danger lurking among the zoning reform efforts we are seeing all over the english-speaking world. There are so many levers baked into the zoning code to prevent development that it's easy to produce a policy that appears to unwind the restrictions without actually permitting any real progress.

My city upzoned the entire city from 1 to 3 units per lot across the whole city a few years ago, which is great. Except they left a parking minimum of 1 per unit, setback requirements, lot coverage maximums, and height restrictions that make it nearly impossible to build additional units that are fit for habitation. A policy that looks great at a glance is awful in practice. I looked into adding a rental unit in my backyard with an architect. The limits resulted in something that would have to be under 400 sq ft / 37 sq m and would be awful to live in.

To their credit the city is now looking at moving to 4 units per lot by right and as part of that process is considering fixing some of the gaps they left the last time, but it illustrates the need to look at zoning codes very closely to make sure the intended development is actually allowed (or question if the gaps are being left on purpose).