Adobe Acrobat File:downtown_plan.pdf
This document is a text-only version of the original Adobe Acrobat file. Graphics and formatting may be lost in the conversion from pdf to html.
View the Adobe Acrobat version of this file.
Table of Contents
Downtown/Lakeshore Redevelopment Plan
1. Introduction.................................................................................................................. 1 1
2. Issues, Assets, and Opportunities .................................................................................. 2 1
Issues ............................................................................................................................ 2 1
Assets and Opportunities ............................................................................................... 2 5
3. Goals ............................................................................................................................ 3 1
4. Defining a Manageable Downtown............................................................................... 4 1
Guest and Entertainment Center .................................................................................... 4 3
Enterprise Center ........................................................................................................... 4 5
Maritime Center ............................................................................................................ 4 7
Service Center ............................................................................................................... 4 8
5. Market Analysis ............................................................................................................ 5 1
Customer Survey Findings ............................................................................................. 5 1
Market Based Demand .................................................................................................. 5 4
6. Proposed Projects ......................................................................................................... 6 1
Project Identification...................................................................................................... 6 1
Additional Projects ........................................................................................................ 6 3
Project Focus Areas ..................................................................................................... 6 15
7. Physical Design Considerations..................................................................................... 7 1
Maintenance ................................................................................................................. 7 1
Physical Improvements.................................................................................................. 7 2
8. Implementation Actions................................................................................................ 8 1
Introduction
Downtown/Lakeshore Redevelopment Plan
The Downtown/Lakeshore Redevelopment members of the City and regional
Plan presents a pragmatic, results-oriented business, governmental, institutional,
strategy for the revitalization and banking, investment, development,
redevelopment of Downtown Muskegon educational, entrepreneurial, and
and adjoining Muskegon Lake waterfront. residential communities;
As a framework for action, realization of the
plan requires long-term commitments of Business owner, neighborhood, City
focused resources, time, and public official, and City staff workshops;
support.
Downtown shopper and patron surveys
The plan focuses on specific steps and (215 individuals were surveyed);
actions necessary to accomplish goals that
define a desired future for Muskegon's A telephone survey of 450 households
Downtown. Those goals include: within the Downtown's market area as
defined by the shopper and retail patron
Establish a framework for investment in surveys;
Muskegon's Downtown core;
A physical analysis of Downtown
Enhance the viability of existing assets Muskegon which included an
and opportunities; examination of land use, pedestrian and
vehicular circulation systems,
Create a 365-day-a-year Downtown; concentrations of activity, and of
primary Downtown facilities; and
Develop portions of the City as a
regional employment center; A retail market analysis that determined
general market conditions and
Enhance the productive interaction of identified the market potential for retail,
the various assets; service, and other redevelopment
activities.
Develop portions of the City as an
entertainment and visitor center;
Improve the City's image; and
Improve links between the core
Downtown and waterfront.
The plan is a framework for action that is
supported by findings and
recommendations based on:
Perceptions of the City's past, present,
and potential future, as shared by
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 1 1
Introduction
Downtown/Lakeshore Redevelopment Plan
Downtown/Lakeshore Redevelopment Plan
1. Introduction 5. Market Analysis
Presents a plan overview. Presents a detailed overview of
commercial use patterns, attitudes and
2. Issues, Assets, and Opportunities perceptions, and the demographic and
socio-economic issues relevant to the
An overview of issues, assets, and Downtown. The market analysis
opportunities relevant to the City and component provided a pragmatic basis for
Downtown as identified during the Downtown enhancement, redevelopment,
planning process. The plan defines issues and plan implementation actions.
as those aspects or features of the
Downtown that are perceived as 6. Proposed Projects
problematic if not addressed or resolved.
Assets and opportunities are those aspects Describes a variety of completed,
and features of the Downtown that are proposed, and in-process projects that can
perceived as positive, vital components of benefit Downtown development and
the City's past, present, and potential redevelopment efforts. It also describes
future. other projects that will enhance the
Downtown and assist in an on-going
3. Goals process of building Muskegon as a regional
focal point.
An overview of goals for enhancing the
Downtown established during the early 7. Physical Design Considerations
phases of the planning process.
Provides a range of recommendations for
4. Defining a Manageable Downtown physical maintenance and improvements
within the Downtown.
Delineates a core Downtown consisting of
four distinct functional centers in which 8. Implementation Actions
specific development and redevelopment
activities should be focused. Describes specific means and methods that
should be used in the process of
implementing the plan.
The plan offers a variety of exciting past planning and development initiatives
concepts and challenges that are based on rather than overlooking them. As a
some of the finest urban assets and framework for action, realization of the plan
opportunities found in West Michigan. The requires long-term commitments of focused
plan retains historic aspects of Downtown resources, time, and public support.
Muskegon, and blends those aspects with
contemporary ideas. Moreover, it builds on
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 1 2
Introduction
Downtown/Lakeshore Redevelopment Plan
Over time, City leaders, staff, and the
public will be faced with difficult decisions
regarding the expenditure of public
resources. "Should economic development
resources be concentrated on the
revitalization of a core Downtown, or
should all projects be considered on an
equal basis regardless of location and
Downtown impact?" In response to such
questions, this plan recognizes that
Muskegon comprises more than just a
Downtown, and that all areas of the City
are important.
However, one might view the Downtown
as the "heart" of the City, providing life to
the community and region as a whole.
Accordingly, one must ask; "what are the
long-term implications of failing to sustain
the Downtown?"
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 1 3
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
ISSUES Downtown Muskegon exhibits little sense
of place. From a physical and economic
Issues are defined here as those aspects of perspective, most uses do not relate to
Muskegon's Downtown that are viewed by other nearby uses.
various interest groups in a negative light.
They are also perceived as problematic if People unfamiliar with the Downtown have
not addressed and resolved. difficulty finding their way between the
Muskegon Mall and Hackley Library, or
An overview of the most important issues between the Art Museum and Heritage
identified by participants in the process of Landing.
preparing the Downtown/Lakeshore
Redevelopment Plan follows: Lack of Focus for Activity
Where/What is Downtown Muskegon? The Downtown exhibits no strong focus or
concentration of activity. In many
Downtown Muskegon was identified by Downtowns, point of entry and a
different people in different ways. Because Downtown core are clearly defined by
of its location along the waterfront, concentrations of buildings, government
Downtown Muskegon has historically facilities, and other clusters of activity.
developed in a linear orientation. Its land
mass is substantial. Key facilities and The dispersal of investment in the
activity centers such as Muskegon Mall, Downtown, and the absence of a
Frauenthal Center, waterfront, City Hall, Downtown plan and plan implementation
Hackley Library, Muskegon Art Museum, program, have contributed to the current
and the Muskegon County Building, etc., lack of focus.
are dispersed. Past Attempts and Support
Perceptions of the diversity of Downtown
facilities and activity centers is clouded by A great deal of public and private money
the Downtown's physical scale, the has been invested in the Downtown and
distance between facilities and centers, and waterfront. Private sector investment has
by the absence of clearly defined pedestrian often been unsuccessful, and public sector
and vehicular routes and linkages. investment has often been criticized. Thus,
much of the boldness, aggressiveness, and
One-on-one interview and Downtown risk-taking inherent in a successful
shopper and telephone survey results Downtown building process has
indicated that the distance between diminished or been lost.
Downtown facilities and activity centers is
unreasonable. Long-Term Viability of Muskegon Mall
Disjointed Nature of Activity While retailing is alive and well in
downtowns throughout the United States,
traditional downtown retailing has been
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 1
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
challenged, and is often no longer not in close proximity to other entities.
successful. Today, most successful Many of these investments proved not to be
downtown retail activity is associated with prudent to the initial investing parties.
unique offerings and product mixes,
intermingled with entertainment and visitor The lack of return on and success of
based attractions or activities. investments, or financial failure of
individual ventures, has diminished the
While the mall serves a viable function to a market for new commercial investment
sufficiently large population, and along the waterfront.
experiences reasonable sales volumes, the
prognosis for its long-term viability in its Much of the public and private investment
current form, market position, and tenant along the waterfront appears to be visually
mix may be less than positive. Future isolated from the downtown core area.
increased competition from various sources Linkages between the waterfront and the
will likely diminish its economic health. downtown are not readily apparent.
Timing for Expansion of Muskegon Mall Waterfront residential development has met
with much greater success. Examples
Proposals to expand the mall to include Harbour Towne and Cole's
accommodate one or more traditional residential condominium projects. Both
anchor tenants and additional stores have projects represent high-end residential
been made over a number of years. While development.
past proposals may well have been a viable
option, they may no longer represent the Industrial History and the Environment
best alternative for expansion of retail or
retail-related activity to Downtown Much of the Downtown and Lakeshore are
Muskegon. perceived as tainted remnants of
Muskegon's industrial history. Although
Recent and proposed expansion of retail the Downtown borders one of the regions
activity elsewhere in the Muskegon area, largest inland lakes, its history and the
and significant retail growth of similar current "brownfield" nature of many
activity along the Alpine Avenue corridor properties present a perceptual hurdle to
(near and north of the M-37/I-96 appreciating this natural asset.
interchange) in Kent County may decrease
the viability of expanding the mall, and In combination with the other issues
minimize the prospect of attracting tenants. discussed here, this perception can block
individuals from seeking out activities in the
Previous Waterfront Investment Downtown.
Over the years, private commercial This perception can also block private
investments have been made in the sector investment in the Downtown.
downtown and along the waterfront. These Environmental liabilities present a
investments were substantial, though often perceived hurdle to some investors and
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 2
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
businesses. individuals who are known entrepreneurs
in City and regional business communities
Image in Larger Region suggest that such a group no longer exists,
or is no longer willing to exercise its
Success of the recent county-wide millage influence.
to enhance the Walker Arena, Frauenthal
Theater, and immediate surroundings Such a group can play a significant role in
within the downtown, and the success of increasing and channeling investment in a
activities like the Muskegon Summer productive manner.
Celebration, and Parties-in-the-Park,
indicate a public awareness of the Business Recruitment Activity
importance of some of the downtown's
activities and facilities to the regional Success in a competitive environment calls
population. for an aggressive approach to recruitment of
business and investment.
The downtown and City as a whole
continue to suffer an image problem. From Current regional recruitment activity, to the
an economic perspective, many people in extent that it exists, is appropriately geared
surrounding areas view Muskegon as they toward attracting new business and
perceived the community to have been in investment on a regional basis. While this
the 1950s and earlier. While the City's is positive, there does not appear to be any
economic base has changed, members of significant organized attempt at recruiting
the public and investment communities are activity targeted toward either the City of
not fully aware of the transformation; and Muskegon proper or the downtown in
visitor activity, business opportunities, and particular.
investment have suffered.
Perceptions of Crime
Private/Public Sector Communications
Contrary to Police Department statistics,
There are perceptions that "one hand is not many people perceive sections of the
aware of what the other hand is doing." downtown to be unsafe, particularly during
Communications between the public and the evening hours. These perceptions stem
private sector, and within the private sector, primarily from loitering youth and other
seem to be inconsistent to non-existent. activities that make individuals feel at risk
Partnerships between the public and private in the downtown.
sector seem to be weak to non-existent.
Visual Character and Maintenance
Private Sector Influence
The downtown's visual character
Many communities have a group of private contributes to a lack of sense of place,
sector interests and individuals that have disjointed activity, fear of crime, and other
the ability to influence private and public issues. Physical improvements and
sector decisions. Interviews with enhancements that have been made in one
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 3
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
area do not appear to blend or be One-way streets, streets bisected by
consistent with improvements in another buildings, limited direction signage, the
area. decentralized nature of development,
limited public parking at activity centers,
The downtown exhibits limited vibrancy and similar factors contribute to unpleasant
due to a lack of contrasting colors. Many experiences for visitors unfamiliar with the
prominent buildings are fully earth tone or downtown.
gray in color. There are few colorful flower
beds, banners, flags, sculptures, and other Western Avenue Historic District
features that soften the built environment.
Over the years, a variety of plans have been
Some of the downtown's most visible proposed for revitalizing Western Avenue.
spaces present a poor image due to limited Approximately eight years ago, a
or non-maintenance. Examples include the streetscape program was instituted starting
Western Avenue streetscape (torn and at the Third Street/Western Avenue
missing banners, weed infested terraces, intersection and extending several blocks
damaged pavers) and mall entries (broken south. Since that time, a few buildings and
sidewalk and pavers, non-paved public sites have been rehabilitated, including the
parking area, weeds, litter). recently renovated Union Depot that
houses the Convention and Visitors Bureau.
Shoreline Drive
Western Avenue remains largely
Shoreline Drive was frequently referred to undeveloped, exhibiting a variety of vacant
by the public and City staff during and underutilized buildings and sites. The
interviews and surveys as the "downtown streetscape has not been well maintained.
bypass." Construction of the initial phases This results in mixed impressions of
have increased the awareness and view of Western Avenue.
the waterfront, but did not dramatically
increase access to the downtown. It can be Many feel the Avenue has great potential
argued that Shoreline Drive has created a for future development of an historic
significant barrier to movement between nature. Others believe the Avenue has lost
the traditional core area and the waterfront its historic potential, and express a desire to
in Muskegon. see most of the buildings removed, opening
the way for new opportunities.
Vehicular Circulation
County and Metro Planning and
Visitors have difficulty finding their way Development
between downtown facilities and activity
centers. Although a County Metropolitan Planning
Commission and Regional Planning
Streets and circulation routes throughout Commission have existed for some time,
much of the downtown are disjointed and Muskegon County lacks a comprehensive
confusing. land use/development plan.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 4
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
Planning and development initiatives tend to enhancing the completed and
to be accomplished in isolation, with little uncompleted portions of Shoreline Drive so
regard for cross jurisdictional impacts. that the roadway provides for the smooth
flow of activity in and out of downtown.
County Metropolitan planning is generally
not accomplished within the framework of History and Image
goals and policies that recognize the need
to cooperatively participate on matters of Along with Muskegon's image as a union
local and regional development. Past town comes a proud history and work ethic
attempts by the staff of individual units of that is, if properly marketed and promoted,
government to cooperatively tackle regional important to future economic development
planning issues have met with only limited efforts. Stressing the historic importance of
success. Muskegon as a blue-collar working
community with a quality-oriented, hard
The area's three largest cities (Norton working, and dependable labor force can
Shores, Muskegon Heights, and Muskegon) be a viable marketing concept.
share common borders and common issues.
Each has a recognized downtown center or Historically the waterfront has been used
area and each employs full-time planning primarily for industrial purposes.
staff. Unfortunately, there is no established Utilization of this history can be an asset.
forum for sharing information, discussion of Residential activity, mixed with a working
common needs and concerns, or for industry, is in vogue in many waterfront
reviewing pending projects of communities, creating an urban ambiance
metro/regional significance. not otherwise achievable.
ASSETS AND OPPORTUNITIES The City's industrial entrepreneurs brought
with then a desire to expand cultural
Assets and opportunities are those aspects opportunities. At least 17 theaters existed
of Muskegon's downtown that are between 1867 and 1955 along Western
perceived as positive, or are viewed by Avenue between Third and Pine. Most of
various interest groups as important and these were in buildings that were
vital to the City's present and future. incorporated into Muskegon Mall. The
potential to revive some of that history
An overview of assets and opportunities along Western Avenue may still exist.
follows: Muskegon Lake Waterfront
Improved Access - Shoreline Drive Throughout the Country, there is no greater
Rather than being viewed as a bypass that asset to quality development than a viable
hinders access to downtown, Shoreline waterfront. Muskegon's waterfront
Drive can enhance ingress and egress to the represents probably the largest
heart of the community and nearby concentration of underutilized, developable
waterfront. Opportunities exist with respect land along Michigan's coastline. Creative
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 5
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
use of the Muskegon Lake waterfront is an boardwalks, piers, and other waterfront
option unavailable to many other mature facilities.
urban centers.
The above opportunities offer synergistic
The City and County have instituted a benefits to nearby retailers and services
variety of shoreline redevelopment resulting from visitors attracted to
measures to support and/or compliment waterfront development.
future activity. A large State of Michigan
grant was obtained by the City to assess the U.S.S. Silversides Submarine and Maritime
environmental condition of lakefront Museum
properties, and several industrial properties
have already been razed (e.g., the Teledyne Considered the nation's most famous
industrial complex) or replaced with land surviving World War II submarine, the
uses that reflect the tremendous asset of U.S.S. Silversides draws over 30,000
Muskegon Lake and provide public access visitors annually. The submarine is
(e.g., Heritage Landing). The City continues currently berthed along the Muskegon Lake
to aggressively pursue lakeshore Channel, a significant distance from the
redevelopment and the wise use of its downtown. Berthing the submarine at a
brownfields. These activities position the downtown waterfront location would
lakeshore for excellent development and compliment the other marine facilities
enhancement activities. proposed for the downtown, and could add
to the downtown visitor base.
The waterfront also represents an
opportunity to maintain or enhance wildlife Waterfront Housing
habitat and public access to the shoreline.
Such factors can provide additional reasons Waterfront housing projects have fared
for people to experience the downtown. better from an investment perspective than
waterfront commercial projects. Waterfront
Grand Valley State University Research housing represents an additional
Vessel opportunity to create a 24-hour commercial
center of town, when coupled with marinas
One waterfront project that has reached and other amenities.
fruitation is the siting of a GVSU research
vessel along the waterfront in the heart of Visitor Base
the community. This can be catalytic to
focusing both related and unrelated The number of visitors to Muskegon
development nearby. County, and influx of visitor dollars,
continues to grow on an annual basis.
Related development opportunities include While other parts of Muskegon County
a Great Lakes Aquarium, educational have captured an increasing number of
facilities and programs with a marine those dollars, Muskegon and the downtown
orientation, nearby placement of the U.S.S. have largely been passed up as a
Silversides, fishing sites, pedestrian destination. The waterfront and other
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 6
Issues, Assets, & Opportunities
Downtown/Lakeshore Redevelopment Plan
assets, if properly developed and marketed, Muskegon County's Heritage Landing was
can reverse this pattern, creating a new flow developed as a multi-use waterfront park
of revenues and employment opportunities. that is used to stage events and other
outdoor activities. Heritage Landing has
Activities including charter boat and on- met with success and positive public
shore fishing, daytime and evening cruises, feedback.
gambling, weekend visitor packages
(offering theater, fishing, and golf), and Farmer's Market
other lake related/marine activities have the
potential to significantly enhance the While the Farmer's Market is not located in
downtown's tourism base. the core downtown, it attracts people on a
regular basis during its operating season.
Availability of Developable Land Patrons of the Market then have the
opportunity to come further Downtown and
The availability of land in the current experience its assets. Opportunities exist to
commercial core and waterfront area is a enhance spin-off, synergism, or the sharing
significant opportunity. With targeting of of patronage associated with the Farmer's
public and private resources, phased Market.
development, and proper marketing, the
land, much like the water, provides In-Town Historic Districts and Structures
Muskegon with the opportunity to plan for
and define its own destiny. Several residential historic districts
(including a National Register District) are
Existing Institutions located within walking distance of the
downtown. A portion of Western Avenue,
Downtown Muskegon is blessed with a an historic district comprised of commercial
diversity of facilities, activity centers, and development, is part of the downtown and
institutions that continue to serve the entire home to such notable facilities as the
region. Examples include the Frauenthal Amazon Building and recently renovated
Theater, Walker Arena, Hackley Library, Depot. These districts help bolster the
Muskegon County Museum, and Muskegon energy of the downtown via their
County Museum of Art. population base and visitor draw. New
development and preservation
Some of the area's largest corporate opportunities exist with the districts, which
interests maintain offices or hold significant could further enhance the visitor base.
investment in the downtown.
Muskegon is the county seat, and houses
the central offices for both the City and
County governments. It continues to offer
regional retail activity, and contains some
of the areas best known restaurants.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 2 7
Goals
Downtown/Lakeshore Redevelopment Plan
Nine goals associated with Muskegon's Goals are statements that answer the
Downtown and lakeshore were established questions:
during the early stages of the planning
process. These goals are based on input "What should Downtown Muskegon's
provided during public, elected and future be?"
appointed official, and City staff workshops;
one-on-one interviews; and Downtown "What needs to be done to attain that
shopper and telephone surveys. future?"
These goals describe general destinations or The proposed projects, physical design
conditions Downtown Muskegon should considerations, and implementation
reach or attain. They provide a vision for recommendations described in Sections 6,
the Downtown, to be achieved through a 7, and 8 of this plan are specific statements
comprehensive enhancement and describing the means and methods by
redevelopment program. which the above goals can be
accomplished or attained.
Summary of Goals
1. Establish an acceptable 6. Create a 24-hour Downtown through
framework in which public and the development of appropriate uses
private investment in the core of and activities.
the City for the foreseeable future
can focus. 7. Develop the Downtown as the regional
employment center, and expand the
2. Enhance the viability of existing current employment base.
assets.
8. Develop the Downtown as the
3. Enhance synergism or sharing of entertainment center of Muskegon
customer and patron bases among County and the West Michigan
current and future activities and Central Shoreline area.
uses.
9. Undertake physical enhancements
4. Improve the linkage between the which improve the image of
established core of activity and Downtown through the creation of
waterfront. landmark/reference points and
viewscapes; and implementation of
5. Create a 365-day or full year improved landscape designs,
Downtown. pedestrian lighting, and coordination
signage.
Achievement of any or all of the goals will limited resources, aggressive marketing,
require the establishment of strong public- and public support.
private partnerships, targeting of limited
public and private resources, leveraging
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 3 1
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
INTRODUCTION and draw high volumes of people into the
downtown.
The geographic limit of Muskegon's
Downtown is not formally defined or Collectively, the "GEMS" functional areas
delineated. This has resulted in define and delineate the downtown core,
decentralization of development within the and provide the opportunity to focus the
City's developed core, a lack of downtown on geographic and functional
concentrated resources, and loss of areas and activities that are both compatible
potential business synergy. and complementary.
This section of the plan delineates a Each of the functional centers, with the
manageable core downtown consisting of exception of the Enterprise Center, possess
four distinct functional areas within which recognized activity centers and anchor
public and private resources should be uses. GEMS functional centers are
focused so that the goals described in illustrated in Figure 4.1 and the current
Section 3 can be attained. The geographic anchor facilities in Figure 4.2. GEMS
limits of the core downtown and downtown functional centers are briefly described as
functional areas are based on an analysis of: follows:
The location and concentration of Guest and Entertainment Center
current activity centers, land uses The Guest and Entertainment GEMS Center
(Figure 4.1), and anchor facilities; includes Hackley Park, Frauenthal Theater,
Walker Arena, the Hackley Library, the art
Physical geography, amenities, and museum, the County Historical Museum,
history; Muskegon Mall, Western Avenue, and the
Convention and Visitors Bureau housed in
Opportunity to concentrate additional, the renovated Union Rail Depot.
similar economic activity or like Enterprise Center
employment; The Enterprise Center encompasses
significant areas of vacant land along the
Current synergism; and scale or Muskegon Lake shoreline, and areas of
distance. existing commercial and industrial
development along the current and future
DOWNTOWN CORE GEMS Seaway Drive corridor.
F Maritime Center
UNCTIONAL AREAS The Maritime Center includes vacant and
developed land along the Muskegon Lake
The analysis of Muskegon's Downtown Shoreline.
resulted in the delineation of a core Service Center
downtown area consisting of four distinct The Service Center encompasses City and
functional areas that exhibit compatible and County government facilities, and other
complimentary land uses, activity centers, nearby uses.
and anchor facilities that provide stability to
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 1
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
The GEMS acronym offers a relatively easy public art museum, county historical
means of identifying the general focus and museum, public transit station, and the
purpose of each functional area, though it is mall. The Guest and Entertainment Center
not intended for use as a marketing tool. It also includes the historic commercial strip
should be noted, however, that limited use along Western Avenue which includes the
of the functional area acronym and recently renovated depot and the Amazon
functional center names has proven Building.
successful during the process of preparing
this plan. Subsequent public meetings and The Guest and Entertainment Center abuts
public feedback find participants employing the shoreline Maritime Center. The Guest
the terms rather frequently, and with and Entertainment Center provides
positive connotation. opportunity to concentrate a variety of
entertainment, service, and retail uses in
Scale or distance issues became a close proximity to existing facilities of local
significant factor during the process of and regional significance, and to
delineating the downtown and GEMS compliment the activities of the Maritime
functional centers. Employees and visitors Center. As indicated, the Guest and
to a downtown will regularly walk no more Entertainment Center includes Western
than six blocks to go from one facility to Avenue. Western Avenue is known for its
another. During the winter months, the historic structures and linkage to both the
distance is limited to three blocks. People downtown and nearby historic residential
employed in downtown areas making lunch districts. The Avenue is directly linked to
trips generally do so to establishments the Walker Arena, Frauenthal Theater,
within a three block area. While they will Muskegon Mall, and County Depot, with
go further, such trips are less frequent, or nearby proximity to Heritage Landing.
involve the use of a vehicle. Western Avenue offers significant potential
for commercial development of a
Existing land use was also an important specialty/theme nature, as well as basic
factor, particularly as it relates to separating services and facilities. Redevelopment of
the core downtown from nearby single- Western is key to not only its underlying
family residential neighborhoods. The functional center, but also the downtown
Existing Land Use Map (shown in Figure core as a whole. Accordingly, this
4.5) illustrates land uses within the core component offers additional detail and
downtown. commentary regarding the Avenue. The
subsequent section on Proposed Projects
Guest and Entertainment Center provides additional suggestions.
The first of these functional areas is the Above all, the Guest and Entertainment
Guest and Entertainment Center. Included Center should be viewed as a way to bring
within the boundaries are noted downtown people downtown for eating, cultural
activities and facilities such as Hackley activities and experiencing a vibrant urban
Park, Frauenthal Theater, Walker Arena, atmosphere that is a primary function of a
major downtown hotel, public library, City. The older, historic feel and proximity
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 2
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
to Muskegon Lake and other amenities between downtown, the waterfront, and the
establish a framework to build upon as this historic neighborhood.
Center is further established. Anchor
facilities for it are already present with the Many of the buildings along Western
several restaurants, the beautiful Frauenthal Avenue are kept in excellent condition,
Theater, the Muskegon Mall, the improving clean, and in continuous use. A few of the
Walker Arena, and the Downtown Hotel. buildings detract from the quality only
Additional restaurants, nightclubs and other because they are not being used to their
retail/guest businesses could greatly potential. Some of the structures detract
facilitate the achievement of a 24 hour City from the quality because their abundant
center. and grand windows have been boarded
over. When these become functioning
The historic buildings along Western structures, with minor, sensitive
Avenue are generally in good to excellent architectural renovation to restore their
shape with few exceptions. The style of the former glory, they will become contributing
architecture is unique to small Midwestern factors to the style and glamour that could
downtowns; one and two-story commercial be achieved along Western Avenue.
and multi-story industrial buildings with
quality brick and terra-cotta work and store- The facade of the former hotel (593 though
front windows. Typically as a city increases 603 Western) cannot be duplicated for style
in size, these older, non-monumental and significance. Typically, facadism is not
buildings have been destroyed and recommended as a method of historic
replaced by featureless contemporary preservation, but this building is in very
structures. Muskegon is unique in that poor condition, with much of the existing
these buildings remain with only minor structure already demolished. The facade
changes to their original facades. Many of could be salvaged in its existing position
these buildings are still in use today, with a large, significant structure built to
although they could be better or more replace the portion of the hotel that has
thoroughly utilized. been demolished. This new building could
lend itself to almost any function, including
The general image perceived along Western a health club or spa, theater, or
Avenue is of the chasms left in the urban science/aquatic center.
fabric where buildings have been destroyed
and replaced with parking or empty lots. Due to alteration of its original facade, the
Where buildings once provided a Eagles complex is less than desirable in its
homogenous and textured streetscape, there architectural style; however, the buildings
are gaps that cause the flow of downtown are maintained and have functioned well
to be interrupted and disturbed. This area for the same owner for more than 50 years.
is perceived to be too far from the heavier This does provide a drawing influence to
used portion of downtown, but as sensitive downtown for Eagle members, most of
infill replaces the holes in the fabric, this whom drive from the suburbs or other
area will become the important link urban neighborhoods to this destination.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 3
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
Most of the buildings along Western back lower level only. Because of the C-shape of
directly up to the historic neighborhood. If the building, with the open courtyard
they were to provide the necessary services toward the water front, the upper, narrow
for the neighborhood, they would provide a floors would provide top-quality office or
link. Such uses could include a grocery residential space, with spectacular views of
store, a health facility, beauty/barber shop, the lake and excellent natural lighting.
banking, a hardware store, video store, These would make exceptional working
coffee shop, bakery, restaurants, and artists studios, however, this would be a
entertainment facilities, including a small less desirable economic venture.
multi-purpose theater. They would provide
much desired services to the neighborhood, Adding mass to the Avenue is desirable to
as well as the working community of replace the lost architectural fabric.
Downtown. Eliminating surface parking in exchange for
low-rise parking structures that have been
Muskegon Hardware already maintains a sensitively designed to fit the historic
large storage facility and wholesale neighborhood would be a desirable way to
hardware business between the downtown resolve the parking issue. However, the
and the neighborhood. Possibly opening a perception among those visiting
small hardware store specializing in historic downtowns is that parking is not available if
restoration items would not be far from they cannot see open parking lots.
reality. The large red brick building (521 Unfortunately, this is also the wrongly
through 531 Western) across from the perceived view when numerous small
Amazon Building would make an excellent parking lots are provided at the rear of
grocery store, with two-story shopping or buildings. Existing street parking should be
studios above. The Boiler Works building maintained as much as possible, as it
(1196 Eighth Street) requires a fair amount provides scale to the building facades and
of renovation, but could be used for will be reassuringly familiar to visitors.
housing, offices, shopping, museum, health
club or spa, or education facility. Many of Visual linkages could be formed with vistas
the smaller buildings would lend through existing open spaces or possible as-
themselves nicely to shops, restaurants, framed vistas between infill structures.
bars, and professional offices. Upper story views along Western should
remain open to the waterfront if possible.
One of the more prominent, but under Excluding the Mart Dock because of its
utilized buildings along Western Avenue is charm and character as a maritime facility,
the Amazon Building. Overall, the Amazon existing contemporary storage facilities on
is in good condition and is a monumental the waterfront must be addressed as visual
structure in the downtown. It is in need of clutter.
general repair, more intense usage, and
potential demolition of smaller, deterring Enterprise Center
additions. The potentials for this building
are somewhat limited because of its size. The second area is defined as the Enterprise
Retail would be best if restricted to the Center. It consists of largely vacant or
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 5
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
under utilized land near the waterfront and There are numerous uses potentially
in the vicinity of the yet-to-be-constructed suitable for placement in the Enterprise
next phase of Shoreline Drive. The land Center. These include professional and
was once used primarily for industrial corporate office buildings; flex-space
activity and commercial establishments. facilities for business and high-tech (non-
This area presents an excellent opportunity polluting) industries; professional and
to establish a concentration of heavy business services such as the office of
commercial and high-tech, light industrial, design professionals, print/reproduction
and product development oriented operations, photographic and arts supply,
business. The development of these and computer services; media productions;
employment generating activities should be select sales facilities requiring outdoor
enhanced by the extension of Shoreline display areas; marine design and supply;
Drive through this area. etc.
Employment activity created in the area will The Enterprise Center is not to be viewed as
have quality access to both the north and a future, heavy industrial area. The Center
south, will have a competitive advantage in should be developed in high-quality,
serving regional needs, and will provide business park fashion, accommodating the
additional clientele to the retail and service uses referenced above or other enterprises
sector of the core downtown. determined to be appropriate. This may be
accomplished utilizing the existing roadway
As the Enterprise Center develops, efforts to network or through select street vacating
enhance the flow of its employees to the and land assembly should the opportunity
other Centers should be made. Open and arise.
safe pedestrian pathways between it and
the other areas should be established, and The Enterprise Center should include
efforts should be made to keep the minimum design standards for all future
architecture at human scale. The Shoreline projects. These include, but are not limited
Drive extension should incorporate the to:
needs of pedestrians, and adequate access
should be provided for all appropriate Prohibition of pole-type structures. This
means of transportation. does not preclude steel buildings.
However, steel buildings should be
The Enterprise Center offers investors a designed incorporating high-quality,
unique opportunity to locate in a long-lasting, facade materials such as
downtown environment, rather than in an brick. Such buildings should also
industrial park, air park, or other traditional include window treatment along public
location. The Enterprise Center can provide right-of-way to avoid the sterile
opportunities for the establishment of high- appearance common to many industrial
quality facilities in a secure, urban structures. Brick and glass buildings,
environment easily accessible to and building incorporating unique
governmental, legal, business, designs and high-quality materials
entertainment, and lakeshore services. should be encouraged.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 6
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
Identification signs should be ground- uses that complement other activities
mounted, monument varies, of high- throughout the downtown. The Maritime
quality design and materials. Pole signs Center will also provide opportunity to
should be prohibited. enhance the City's tourist trade.
Sites involving yard areas should be The Maritime Center must exploit
well landscaped. This may include Muskegon's greatest asset: Muskegon Lake.
attractive landscape and architectural The visual, cultural, historic, habitat and
features and/or vegetation. Creative use tourist benefits of the Lake should be
of site lighting to highlight buildings incorporated into its planning and
and site features, and to enhance development. Fishing and water sport
pedestrian safety should be encouraged. acitivities, such as charter boats, marina's
and piers, should be considered. Seafood
Security fencing, unless properly venues and restaurants would fit nicely.
incorporated into the overall site Public access and enjoyment should be an
design, should be discouraged. important component to lure people to the
Cyclone, stockade, and similar fencing Downtown and its activities and businesses.
should be prohibited unless necessary The developing lakeshore bike/recreation
for the security of buildings and path is an excellent example of this
equipment. In all cases, the visual development. Enhancing the beauty and
impacts of such fencing should be appreciation of this exemplary natural
mitigated through other site resource will change the psychology and
enhancements. perception of the Downtown, and the City
in general.
Outdoor storage, except for the display
of select automotive, marine, and A major focus of the Maritime Center is the
recreational vehicles ready for direct compatible blending of shoreline
retail sale, should be discouraged. development with the retail and service
sectors of Western Avenue to create a sense
Of the four GEMS Centers, the Enterprise of visual linkage and ease of pedestrian
Center may have the greatest potential for flow between the two. Historically, such
full development within the shortest time linkage has not existed.
span. This is largely due to the relatively
small geographic size of the Center. As detailed in later sections of the plan, the
Maritime Center has been divided into four
Maritime Center subareas based on existing land use,
development potential, identified
The third area is the Maritime Center, development and redevelopment needs,
which focuses upon much of the developed and other factors. However distinct, some
and undeveloped waterfront properties in overlap of development opportunities may
the core of the City. The potential exists in occur and should be considered.
this area to further capitalize on the water
through the creation and development of This plan recommends that all future
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 8
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
development within the Maritime Center be streets. Such uses provide a transition
subject to either special land use or between the surrounding residential
planned unit development guidelines and neighborhoods and the other developing
standards. This will ensure better GEMS.
integration of individual sites, and
potentially result in higher quality site use As the Service Center further develops,
and design. Moreover, these tools provide linkages between the other Centers should
the City with the highest level of design be increased. Note that the Service Center
oversight. often acts as a gateway to the Downtown.
Besides for providing an beneficial home
General industrial development within the for professional, government and
Maritime Center should be prohibited. commercial activities, this Center functions
Sufficient area exists along other shoreline as an important transition zone into the
locations and in other industrial areas to newly enhancing Downtown.
accommodate the City's industrial needs.
Similarly, use of the Center for storage,
warehousing, bulk product sites,
maintenance facilities, and other such uses
should be highly discouraged.
Service Center
The fourth area is the Service Center, which
gives a home for community, even
region-wide services and functions.
Government facilities already have a
distinct and positive influence on this area,
and this should continue. City and County
government is well represented, and state
and federal government investment should
be encouraged. The recent movement of
the County government into the former
Baker College campus is an excellent
means of continuing to develop and
enhance this Center.
Other office and professional uses should
be encouraged. Several important law
firms reside in this area and similar
professional activities should continue to
find a home. Sensitive retail and
commercial development should be
encouraged, especially along the major
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 4 9
Defining a Manageable Downtown
Downtown/Lakeshore Redevelopment Plan
Market Analysis
Downtown/Lakeshore Redevelopment Plan
INTRODUCTION perceptions of Downtown Muskegon; and a
variety of other data.
Market research and analysis was
conducted to develop a Downtown/ Although the wealth of information
Lakeshore Redevelopment plan and plan contained in this section of the plan may be
implementation program that was practical, viewed as being of limited utility to general
pragmatic, and results oriented. The audiences, it is intended to provide
research process involved one-on-one information to members of City, regions,
interviews; one-on-one surveys of 215 State and wider business, development, and
Downtown shoppers/patrons; a region- redevelopment interests that is vital to
wide, 450 household telephone survey; and Downtown enhancement, development,
an analysis of known and available market, and redevelopment efforts.
demographic, and economic data. An overview of the market analysis follows
One of the two surveys performed was a (see Figure 5.1):
customer intercept or patron survey. A
sample of Downtown shoppers and patrons CUSTOMER SURVEY FINDINGS
was obtained on-street in front of various
commercial establishments in the core The vast majority of Downtown patrons
Downtown and inside of the Muskegon (84%) reside in Muskegon County. Few
Mall during June and July of 1995. The are visitors from other areas. The
second survey was a large sample preponderance of these live in zip code
telephone survey of households from areas 49440 through 49442.
throughout the entire Muskegon area. In
both cases, significant, original information Only about one-half (50%) of the
was generated with respect to commercial primary customer base comes to the
use and patterns, attitudes and perceptions area to shop. Other significant reasons
with respect to Downtown and specific for coming Downtown include: work
activity or uses Downtown, as well as (12%), entertainment (12%), personal
demographic data on those surveyed. service (9%) recreation (6%), eat or
drink at a food establishment (3%), and
The shopper surveys were conducted inside conduct banking business (3%).
of the Muskegon Mall and in front of
various Downtown businesses. The About one-half (50%) of all those who
telephone survey was conducted within the come Downtown only go to one
market area defined by shopper survey business or establishment. This low
data. level of synergism reflects the
geographic distance between various
Information was generated with respect to activities and services, as discussed
numbers of, and reasons for trips elsewhere in this plan.
Downtown; stores or places of business
requested by shoppers and others; age,
income, an employment status of shoppers;
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 1
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Purposes for Trips to Incomes of Patron Households
Downtown Less Than:
$20,000
Recreation 6% 23%
Entertainment 12% $20-29,000
14%
Shop 49%
Eat/Drink 3%
Government 1% $30-39,000
Other 4% 13%
Professional Service 1% $40-49,000
Personal Service 9% 10%
Bank 3% Work 12% $50-or more
40%
Figure 5.2 Patron Incomes
Figure 5.1 Downtown Trips City of Muskegon
City of Muskegon
About one-half (50%) of the customer
base is employed, with about one-half REGIONAL TELEPHONE SURVEY
(50%) of these being employed FINDINGS
Downtown. Thus, Downtown workers
represent a significant (about one-fourth
in total) share of the customer base. The following represent selected highlights
Increased employment Downtown from the Muskegon area household survey.
could be a significant factor in
expanding business activity. While 92% of the respondents
remarked that they were familiar with
Much of the current patronage is Downtown, 40% do not go to activities
approaching senior citizen status or are or conduct business in Downtown
seniors. About 20% of the customers Telephone Sample Never Go 40%
are 65 or older. About one-fourth are
between the ages of 50 and 64.
Household incomes of the customers Less Often 25%
are often substantial. About 45% of the
customers have annual household Few Times a Year 20%
incomes of $50,000 or more (see Figure Once a Week 15%
5.2).
The Muskegon Lake waterfront ("water
element") was defined as the Figure 5.3 Downtown Trip Frequency
Downtown's greatest attribute by the County Residents at Large
Based on Total Phone Sample
patrons.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 2
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Muskegon. This finding is collaborated Percent of People Making
by the on-street surveys. Of those who Multiple Visits
go Downtown, about one-fourth go
there at least once per week. On the
other hand, about one-third go there a 53%
maximum of a few times per year. 36%
Thus, about three-fourths either do not go 11%
Downtown or do not go there on any
regular basis. Whether for the purpose of
shopping, conducting other business, or
participating in other activities, Not Yes No
Downtown's current market penetration Usually
level is relatively low (see Figure 5.3). Figure 5.4 Frequency of Multiple
Visits When Downtown
City of Muskegon
While about two-thirds of all those who
go Downtown at least occasionally go
there to shop, many go primarily for these, only about one-fourth partake of
other purposes, or for a combined trip such activity in Downtown Muskegon.
to shop and for other purposes. Almost Only about 20% follow professional
one-third go to food establishments at hockey.
least occasionally. More than one-
fourth (27%) attend sporting events at Given the substantial senior
the arena at least occasionally, while community, employment levels are
21% attend other events at least reasonable within the population
occasionally. surveyed (see Figure 5.5). About 40%
of the households have two people
Once again reaffirming the patron employed full-time. About one-fourth
survey findings with regard to the low of all households have someone
level of synergism, only about one-third employed part-time.
(36%) most often go to more than one
business or establishment (see Figure About one-fourth of all households have
5.4). In total, 12% of those who a female as the primary income earner;
frequent Downtown most often go there 20% of all households have annual
by public transportation. While Sears incomes of $50,000 or more. Only 4%
and Steketee's at the Muskegon Mall of the households receive any form of
attract many for clothes shopping, many governmental assistance.
others go to Wal-Mart, K-Mart, or other
commercial areas in Norton Shores, or MARKET BASED DEMAND
to Grand Rapids.
Introduction
About 27% of all respondents go to see
live theater at least on occasion. Of Based on the data base on spending and
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 3
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Visitors/Non-Residents
Number of Household Members Visitors not living in the City or County
Employed Full-Time represent the smallest market force at this
time. Information salient to the visitor
1 - 32% demand follows:
The majority of visitors to Muskegon
County are from out of state. Based on
2 - 40% requests made to the local visitors
bureau and various travel related
0 - 27% entities, about 21% of all visitors are
3 - 1% from Illinois. About 17% of the visitors
are from Michigan, and 15% are from
Indiana. Figure 5.6 contains information
on the proportion of visitors to
Figure 5.5 Household Employment
City of Muskegon Muskegon County coming from various
states.
other issues developed through the Most of the visitors to the general area
consumer surveys, one-on-one interviews, around Muskegon come primarily for
and secondary sources of information, a leisure purposes. About 20% come at
detailed analysis of the potential for activity least once a year for general vacations,
in the Downtown area was conducted. The while another 16% come for
following are conclusions from that sightseeing. An additional 13%
analysis. defined their primary purpose as being
Residence of Area Visitors
There are three basic potential groups that
contribute possible revenue to activity in
the Downtown area: Remainder 28%
Visitors/Non-Residents (non-City or Wisconsin 10%
County); Ohio 9%
Residents of Muskegon; and
Illinois 21% Indiana 15%
Muskegon County Residents (exclusive
of City residents). Michigan 17%
Note that the dollar estimates included in
this discussion include inflation adjustments Figure 5.6 Residence of Area
for the present day (1995-1996) and Visitors to City by State
therefore; future estimates have not been
inflation adjusted.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 4
Market Analysis
Downtown/Lakeshore Redevelopment Plan
water recreation or the beach, with an year 2000, spending on non-food retail
additional 12% coming for the quiet by visitors to Muskegon County is
atmosphere. The more frequent visitor expected to grow by about $0.5
trips have a tendency to be water million. The combination of restaurant
oriented. or food establishment sales and
entertainment is expected to grow by
As defined through a survey conducted about $1.5 million. Table 5.1 contains
by the West Michigan Tourist information on the estimates of visitor
Association in 1993, the visitors to the spending in Muskegon County in
area are more often than not highly selected areas or functions.
educated, empty-nesters. Eighty
percent (80%) of the visitors are The potential for increased visitation
married, with 55% having at least a and visitor spending exceeds the noted
college education. About one-half are estimates if significant visitor based
over 46, with one-third define activity is established in the area. In the
themselves as professionals. Almost short-term, or over the next five years,
one-half have annual incomes above visitor based spending could exceed the
$50,000. estimates by 50%, with an additional
$7 to $8 million in additional spending
Muskegon County room tax collections annually on food, entertainment, and
have risen significantly since 1988 and other retail within Muskegon County.
1989, as a result of both increases in The Downtown waterfront of Muskegon
occupancy or room nights, and is one of the more likely places from
increases in the price of rooms. which additional visitor based activity
could be spawned.
Visitor spending in Muskegon County
has also risen from the 1988-1989 While the demand will increase from
period to the present. Spending has the visitor component, such demand is
risen by at least 6% in Muskegon not likely to yield sufficient revenue to
County. While visitor spending was attract another large hotel facility to
estimated at $62.8 million in the 1988- Downtown in the next five or so years.
1989 period, visitor spending within Room night expansion could be
Muskegon County is estimated to be sufficient to create the opportunity for a
tween $69 and $71 million during the small inn or several bed and breakfasts
1995-1996 period. By the year 2000, located in close proximity to the water.
spending could reach the $80 to $85
million level. Spending Category 1995-1996 2000
Non-Food Retail $3,300,000 $3,800,000
The visitor spending within Muskegon Entertainment $3,500,000 $4,000,000
County is distributed between a variety
of functions and activities, including but Food $8,600,000 $9,950,000
not limited to transportation, lodging, Table 5.1 Muskegon County
non-food retail, food purchases, and Visitor-Based Estimates
entertainment. Between 1996 and the
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 5
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Category 1995 2000 2005
Food $34,065,000 $48,961,000 $57,827,000
Eat/Drink 52,923,000 43,650,000 44,885,000
General Merchandise 35,201,000 54,562,000 56,106,000
Furniture 24,411,000 25,208,000 25,921,000
Automotive 112,366,000 87,191,000 82,177,000
Drugstore 22,591,000 14,550,000 14,962,000
Apparel 14,114,000 14,586,000 14,999,000
Hardware 19,359,000 23,607,000 24,275,000
Auto Service 14,431,000 14,914,000 15,336,000
Miscellaneous 22,519,000 36,520,000 37,553,000
Total $351,980,000 $363,749,000 $374,041,000
Table 5.2 Estimated Sales Retail & Related Services
City of Muskegon Residents
Residents of Muskegon residents of the City of Muskegon are
contained in Table 5.2.
As defined through the survey data, the
residents of the City of Muskegon are a The sales estimates have been divided
significant share of the current potential into numerous subcategories or store
market for goods and services in the types. About fifty different store types
Downtown area. The following or subcategories were examined. The
summarizes the potential associated with sales estimates by subcategory are
this second major component of demand. converted to supportable space through
the application of per square foot
Retail and related services demand productivity levels. A sales productivity
generated by residents of the City of level is the level of sales at which a
Muskegon is substantial and will grow business operation is assumed to be
in the future. Retail and related services able to pay all costs of operation and
sales generated by the residents are provide a reasonable return on
estimated at $352 million for 1995- investment. Sales productivity levels
1996. These sales are expected to grow vary for each type of operation.
to about $364 million by the year 2000
and to $374 million by 2005. Retail
and related services sales can be
subdivided into ten major categories of
retail. The sales estimates for five year
incremental periods for retail and
related services generated by the
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 6
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Category 1995 2000 2005
Food 88,390 127,042 150,048
Eat/Drink 192,447 158,727 163,218
General Merchandise 169,338 262,475 269,901
Furniture 106,407 109,882 112,988
Automotive 548,868 425,897 401,405
Drugstore 68,458 44,091 45,339
Apparel 57,217 59,129 60,804
Hardware 104,638 127,599 131,209
Auto Service 104,046 107,529 110,571
Miscellaneous 116,481 188,903 194,247
Total 1,556,290 1,611,274 1,639,730
Table 5.3 Estimated Supportable Retail Space
City of Muskegon Residents
In Table 5.3 retail and related services need for expanded government
space supported by the residents of the services, space linked to or created by
City of Muskegon is estimated. Retail the relocation or creation of a regional
and related services space supported by or national service operation, nor the
the market component is expected to growth necessary to stimulate shifting
grow only marginally over the next ten employment needs.
years. Muskegon Mall currently has a
reasonable penetration into this market. Muskegon County Residents (Exclusive of
No additional retail space focused City Residents)
primarily on this component of the
market is advisable at this time. The third primary component of demand is
the Muskegon County population,
Socio-economic and demographic exclusive of the population associated with
changes in the community are expected the City of Muskegon. This third market
to generate a growing demand for component is essentially the largest
services, most likely to be situated in potential base to be served. It is also one in
office structures, or space converted to which current market penetration is very
offices. Based on the age of the low. Thus, many potential dollars are not
population, the increased need for coming from this segment of the market
medical services, and other cumulative into the Downtown at present, including
factors, it is estimated that the residents Muskegon Mall. The following reflects
of the City will generate about 20,000 market demand associated with Muskegon
square feet in demand for new space County residents, excluding those in the
annually over the next ten years. The City of Muskegon.
estimated demand does not include any
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 7
Market Analysis
Downtown/Lakeshore Redevelopment Plan
The market potential associated with development is likely to outstrip the
the residents of the area is more than growth in demand. Thus, a weakening
twice that of the potential associated of the market in this category and a
with residents of the City of Muskegon. possible "shake-out" is possible. Table
Furthermore, the remainder of 5.5 contains the estimates of
Muskegon County's population is supportable space for retail and related
generally younger and more affluent services generated by residents of
than the City of Muskegon population, Muskegon County, excluding those
reflecting differing needs, particularly as living in the City of Muskegon.
reflected in terms of commercial
development associated with both retail While current market penetration is
related services and office space. small, there is no reason to believe that
unique activity located Downtown
Current retail and related services sales cannot increase market penetration, and
generated by this component are therefore, revenue from this potent
estimated at about the $884 million source.
level (see Table 5.4). Over the next ten
years, the sales are expected to increase In addition to retail and related services,
to $1.372 billion, or about 55%. This demand for additional office space over
represents an average annual growth of the next ten years generated by the
5.5%. market could reach between 500,000
and 1 million square feet, depending
The increase in sales will result in a upon the assumptions. Once again,
substantial increase in supportable while not capturing a significant share
space. Over the next ten years, about of the market growth, the enhanced
2.2 million additional square feet will access provided by Shoreline Drive,
be supportable by the market. Much of coupled with recruitment and
the increase will come in four marketing, could result in expansion of
categories. The increases in two of the market share.
those categories could have significant
implications to Downtown. Those In addition to the noted market
categories consist of eating and drinking components, additional demand could be
establishments, and miscellaneous. The drawn from households residing outside of
miscellaneous category is composed of Muskegon County, but within the Greater
numerous types of businesses, many Grand Rapids/Tri Cities/Muskegon region.
found in traditional Downtown areas or Generally, current retail customer
in regional shopping malls. movement in the greater region is away
It is also noted that the increase from Muskegon and towards these other
anticipated in general merchandise areas, with the possible exception of people
space, the category associated with pursuing recreational activities. Reversal of
traditional department stores and value the pattern is conceivable and has been
oriented retailers, is expected to grow at accomplished by other communities along
only a modest level. Planned new Lake Michigan. Holland is a notable
example of a reversal.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 8
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Category 1995 2000 2005
Food $132,366,000 $166,075,000 $177,217,000
Eat/Drink 83,131,000 132,086,000 147,182,000
General Merchandise 237,449,000 297,708,000 328,941,000
Furniture 46,746,000 66,814,000 74,663,000
Automotive 196,401,000 295,753,000 336,397,000
Drugstore 26,816,000 49,354,000 54,888,000
Apparel 35,461,000 49,478,000 55,025,000
Hardware 60,876,000 80,077,000 89,056,000
Auto Service 49,856,000 68,161,000 75,469,000
Miscellaneous 15,206,000 28,341,000 33,364,000
Total $884,308,000 $1,233,847,000 $1,372,202,000
Table 5.4 Estimated Sales: Retail and Related Services
Muskegon County Residents (non-City)
Category 1995 2000 2005
Food 343,458 430,926 459,835
Eat/Drink 302,295 480,313 535,207
General Merchandise 1,142,267 1,432,147 1,582,397
Furniture 203,765 291,240 325,454
Automotive 959,349 1,444,648 1,643,179
Drugstore 81,261 149,558 166,327
Apparel 143,756 200,578 223,066
Hardware 329,040 432,824 481,356
Auto Service 359,457 491,435 544,126
Miscellaneous 78,658 146,597 172,580
Total 3,943,306 5,500,226 6,133,527
Table 5.5 Estimated Supportable Retail Space (square feet)
Muskegon County Residents (non-City)
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 9
Market Analysis
Downtown/Lakeshore Redevelopment Plan
While not currently a factor with respect to 1.5 million square feet of additional space
sales and activity in Downtown Muskegon, along (see Table 5.7).
other than to diminish captured demand or Thus, the potential exists to capture a larger
dollars from residents of Muskegon County, share of the growing market components,
this additional market component is including visitors and residents of the
important because it is so large. The retail region. However, capturing an increased
and related services sales generated by the share of the market will require
regional population, exclusive of those concentrations of marketable activities
living within Muskegon County, is oriented toward the regional population
estimated at $7.7 billion. It is expected to and visitors to the general region.
grow over the next ten years, reaching a
$12.3 billion level (see Table 5.6). Numerous activities have been proposed
for either the established core of
The amount of supportable space generated Downtown, the waterfront within
by this market component will grow by Downtown, or potential areas near
about 20 million square feet over the next Downtown. The following section contains
ten years. Demand for eating and drinking some of those proposals that would serve
establishments, often critical to the long- potential market growth components or
term viability of Downtowns, is expected to would be catalytic to stimulating other
grow to a level sufficient to support about activity Downtown.
Category 1995 2000 2005
Food $929,078,000 $1,645,868,000 $1,911,528,000
Eat/Drink 688,775,000 950,087,000 1,106,581,000
General Merchandise 1,466,236,000 1,653,941,000 1,929,138,000
Furniture 579,566,000 795,753,000 923,404,000
Automotive 2,005,385,000 2,530,519,000 2,942,135,000
Drugstore 201,184,000 302,416,000 352,704,000
Apparel 309,396,000 425,583,000 494,789,000
Hardware 500,025,000 688,788,000 800,793,000
Auto Service 401,660,000 551,879,000 641,621,000
Miscellaneous 629,916,000 1,068,228,000 1,236,181,000
Total $7,711,221,000 $10,613,062,000 $12,338,974,000
Table 5.6 Retail and Related Services Sales Estimate
for the Remainder of the Grand Rapids-Muskegon Region
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 10
Market Analysis
Downtown/Lakeshore Redevelopment Plan
Category 1995 2000 2005
Food 2,410,737 4,270,635 4,959,960
Eat/Drink 2,504,636 3,454,862 4,023,931
General Merchandise 7,053,446 7,956,416 9,280,275
Furniture 2,526,315 3,468,669 4,025,096
Automotive 9,795,590 12,360,682 14,371,278
Drugstore 609,648 916,412 1,068,800
Apparel 1,254,254 1,725,262 2,005,814
Hardware 2,702,684 3,722,967 4,328,364
Auto Service 2,895,935 3,979,002 4,626,034
Miscellaneous 3,285,310 5,525,527 6,394,279
Total 35,038,555 47,380,434 55,083,831
Table 5.7 Supportable Space Generated
by the Remainder of the Grand Rapids-Muskegon Region
Downtown/Lakeshore Redevelopment Plan
City of Muskegon 5 11
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
PPROJECT
ROJECT IIDENTIFICATION
DENTIFICATION In the past, Muskegon was linked by ferries
to other communities around Lake
A variety of projects offer the potential to Michigan. The growth and improvements to
bring new synergy to Downtown Muskegon. other transportation modes lead to the
These range from projects in the planning decline of ferries. However, with an
and discussion stages, as well as those increasing visitor base to the area, and
recently completed or underway. The improvements in ferries (e.g., their speed), a
projects described below represent those ferry or ferries could become an important
considered beneficial to the Downtown. and unique part of Downtown Muskegon.
Note that a smaller ferry system within the
1
1 .. W.G. Jackson Research Vessel
W.G. Jackson Research Vessel immediate Muskegon area is possible, as
well as a larger Lake Michigan ferry. Both
The recent dedication of the Grand Valley could act to enhance the Downtown.
State University's research ship represents
a first of several possible water-oriented 5
5 .. Improvements to the
Improvements to the Frauenthal Center
Frauenthal Center
facilities that could become a new focus for for the Performing Arts
for the Performing Arts
the Downtown area. The research vessel,
dedicated during the summer of 1996, In 1996 voters approved a millage to
could be catalytic to the expansion of enhance the Frauenthal Center, clearly
marine science activity if located within recognizing the importance of the Downtown
close proximity to the vessel. cultural facility to the regional population.
The improvements should assist in
2
2 .. Aquarium
Aquarium recapturing some of the dollars being spent
by Muskegon County residents who currently
Of all proposals, none is likely to have a seek live theater outside of Muskegon.
greater impact on the long-term visibility to Increased patronage could stimulate
attract the visitor base to complement the internal and nearby restaurant activity, and
research vessel, or contribute to youth would make the Frauenthal catalytic to the
education in the Downtown area, than the creation of expanded entertainment and the
proposed aquarium. A location along the proposed entertainment district.
water near the current core, in close
proximity to other water-oriented activity 6
6 .. Improvements to the Walker Arena
Improvements to the Walker Arena &
&
such as the research vessel, is preferred. Conference Center
Conference Center
The aquarium could well be linked to other
facilities through research on marine and Sports and sporting activity have proven to
other environmental issues. be catalytic to enhanced activity in
Downtown areas. Sports facilities situated
3
3 .. Boat Slips
Boat Slips Downtown, such as Jacob's Field in
Cleveland and Camden Gardens in
The increased availability of boat slips for Baltimore, assist with maintaining
visitors coming to Muskegon would assist Downtown evening patronage. The
with increasing the viability of Downtown as patronage for the events and activities held
an attraction. at such facilities create the opportunity for
synergistic or spin-off establishments,
4
4 .. Cross Lake Ferry
Cross Lake Ferry including restaurants, sports bars or
taverns, and sporting goods operations.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 1
1
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
Furthermore, improvement to the facility will guidelines for location and maximizing the
help to improve the likelihood of attracting economic development potential should be
increased local or regional oriented incorporated.
meetings, smaller conferences, trade
exhibits, and other events that draw people u Facilities should be located along the
to the core area. waterfront;
u Facilities associated with the activity
7
7 .. Minor League Baseball Stadium
Minor League Baseball Stadium should provide hotel lodging
accommodations;
Along with improvements to the Walker u On-site parking should be minimized;
Arena, the construction of a minor league u A jobs program linking hiring to
baseball stadium could increase the role of residency in Muskegon City and County
spectator sports in the Downtown. Similar should be developed; and
facilities built in other communities have u The amount of on-site restaurant and
had positive impacts on the Downtown and retail activity should be minimized.
the communities in general. Wilmington,
Delaware, successfully integrated such a AADDITIONAL
DDITIONAL P
PROJECTS
ROJECTS
facility into their waterfront with great
success. While unlikely to have an impact
of the magnitude of the aquarium in terms The following are activities or components of
of spin-off economic return, a baseball the Downtown that are also suggested for
stadium does represent a viable component incorporation into the plan. These activities
if properly planned and developed. will enhance the Downtown and assist with
establishing the core areas as a regional
8
8 .. Waterfront Gambling Facilities
Waterfront Gambling Facilities focal point.
The purpose of this plan is not to suggest or 1
1 .. Wholesale/Retail Seafood - Farmer's
Wholesale/Retail Seafood - Farmer's
support the concept for one or more Market Complex
Market Complex
gambling-oriented facilities located along
the waterfront in Muskegon. There are The current farmer's market could be a
arguments on both sides as to the validity of synergistic attraction for Downtown if
such inclusion within a community. situated in a location capable of sharing
However, the proposed Downtown program patronage with other nearby activities. We
would be remiss if such facilities were not suggest that the Farmer's Market be
accounted for. They have been discussed relocated to a site closer to the Muskegon
extensively by the public in the past , and Mall, or be situated along the waterfront,
will likely be discussed and proposed by and be expanded to include a seafood
others again in the future. market and household flower and plant
market.
From a planning perspective, the attempt
here is to: 1) recognize that the proposals Creation of an indoor/outdoor market
exist; 2) provide some guidelines from a complex along the waterfront, combined
planning prospective so that if a gambling with other water-related activities, adds a
facility is built, it will be compatible with the unique feature and ambiance to the
other components of Downtown. Should Downtown not available in other West
gambling facilities be built, the following Michigan communities. A waterfront
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 2
2
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
seafood market would help make the from events such as those occurring at
waterfront come alive 365 days a year, 24- Heritage Landing.
hours a day.
u A Downtown location compliments, and
Facilities associated with a market complex is complemented by, other retail trade
might include slips for charter and pleasure and uses which draw people into the
boats, a lakefront pedestrian boardwalk with Downtown from all points of origin.
finger piers for fishing, seafood restaurants,
tourist related marine craft, such as the USS u A Downtown location compliments the
Silversides, marine oriented specialty retail, existing and future "tourist" aspects of
and uses of a similar nature. the City. The present location tends to
be more isolated and distant.
Options for relocating the Farmers Market
were addressed in more depth in a previous u At least one, and perhaps more, rural
study. In addition to the Downtown, a communities lying north of the City are
number of other possible locations were seriously investigating development of a
assessed. While not conclusive, the Farmer's Market. While the impact of
Farmers Market Relocation Study found that such a facility on a Downtown location
a Downtown site was at least as good as cannot be ascertained, it is highly
other possible sites. The Downtown location probable that any impact would be
was preferred by the Market vendors, and greater on the present location than a
viewed as having good site access. Downtown location.
While the Farmers Market Relocation Study u A majority of survey respondents viewed
went into greater detail than this Plan, the Downtown location favorably.
several factors relating to possible
relocation to the Downtown can be noted: 2
2 .. Waterfront Housing
Waterfront Housing
u Shoreline Drive, particularly when
completed, offers the same level of In general, housing along the waterfront in
exposure as the present routing system. Muskegon has met with much greater
In fact, exposure may be greater. The success than commercial activity. We
high number of people destined for the suggest that waterfront housing be
Downtown from Norton Shores, Grand incorporated into the very core of the City,
Haven, Fruitport, Spring Lake, etc., are not simply along other areas of the
more likely to be exposed to a waterfront. Such housing should be
Downtown/shoreline location than the "market rate," and where possible, include
present one. amenities such as boat slips. All units
should take advantage of waterfront views.
u Based on the principle that proximity Specific development projects should
invites greater use, a Downtown location provide for enhancement of public
is more likely to access a greater waterfront access.
number of Downtown workers during the
noon hour. 3
3 .. Expansion of Family-Oriented Waterfront
Expansion of Family-Oriented Waterfront
Activity
Activity
u A Downtown location is more likely to
capture a larger portion of spin-off traffic There have been attempts to incorporate
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 3
3
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
permanent, public, family-oriented open retreat center or specifically designed
space and activity along the waterfront in conference facility would be an important
the core area of Muskegon. A noteworthy year-round asset. Underutilized space in the
example is Heritage Landing incorporated Muskegon Mall should be examined for
into the southern end of the Downtown possible redevelopment as a conference
waterfront. However, there are many center.
additional "soft play" and other family-
oriented activities that could be 5
5 .. Health Spa and Indoor Recreation
Health Spa and Indoor Recreation
incorporated. Examples include water- Complex
Complex
oriented amusements, miniature golf, and
beach volleyball. Many of these activities Coupled with increased Downtown housing
often provide a fairly quick return on limited opportunities, enhanced employment
capital investment. Thus, the facilities activity, and an increase in full year activity,
represent a form of "land banking" or an indoor health and recreation spa would
temporary facilities providing activity, be an additional asset. Such a facility could
excitement, and economic return prior to include an indoor Olympic swimming pool,
construction of more permanent facilities or indoor track, sports medicine related activity
increased private investment. and equipment, a full gym, exercise and
weight training equipment, tennis courts,
A family-oriented activity that is generally and other courts and activities. Such
missing from the Downtown, but with facilities should compliment rather than
potential , is that of sport fishing from the compete with the nearby YFCA.
shore. Limited public access, combined
with a lack of suitable areas and facilities Such facilities also often incorporate a
from which to fish Muskegon Lake, render health education component. Increasing
sport fishing almost non-existent along the numbers of such facilities are linked to
lake in the core Downtown. Fishing areas hospitals, HMOs, or networked physicians
and facilities, such as finger piers and groups.
linkages with the Shoreline Trail system, can
encourage greater use of the lakefront in 6
6 .. Entertainment District Focused on
Entertainment District Focused on
the Downtown, provide an excellent and Quality Restaurants Offering Live
Quality Restaurants Offering Live
inexpensive means of family recreation, and Evening Entertainment
Evening Entertainment
compliment other waterfront activities.
The existence of the theater and arena, the
4
4 .. Corporate Retreat or Conference Center
Corporate Retreat or Conference Center character of the existing structures along
Western Avenue, and the expanding
The Walker Arena provides an opportunity to regional market, provide the opportunity to
incorporate conference activity into the create an expansion of entertainment
Downtown. However, that is not the original activity in the Downtown area. The focus of
design intent or primary function of the the new activity would be quality restaurants
facility and conference activity will always offering music, which could range from jazz
play a secondary role. Based on and blues to rock, country, and small and
Muskegon's history of industrial big band revival.
development, and certain projects
suggested in this plan to recreate a Entrepreneurial activity would be an
significant employment center, a corporate important component of the development.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 4
4
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
attraction in the evening and on weekends,
While chain facilities would be welcome, as well as provide an additional inducement
many of the businesses would be expected to attract corporate retreats, conferences,
to be "one-of-a-kind" or unique. Such a and increase boaters. See Figure 6.1 for an
clustering of facilities in one area would help illustration of the possible "look" of Western
to enhance the Downtown as a regional Avenue.
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 5
5
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 6
6
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
7
7 .. Inn
Inn cornerstone of Downtown Muskegon. As the
population within Muskegon County
The range of transient accommodations continues to grow and change, there will
available in or near the Downtown is limited inevitably be an increased demand for a
at the present time. There is one major number of services. Increased demand will
Downtown hotel facility. The creation of a translate into expanded space needs.
small inn (maximum of 50 rooms) with Those needs should be accommodated in
associated restaurant and entertainment one or more new structures within
would be an added option to the commercial Downtown Muskegon to increase synergism
core. The facility should be incorporated within the County and to maintain the hub of
into the Guest and Entertainment district, the institutional activity. A concept drawing
and could possible be developed in one of of new governmental building is shown in
the existing historic buildings on Western Figure 6.3. Location within a defined
Avenue. In the future, additional nearby bed geographic areas as a means of stimulating
and breakfast operations could be regional economic development and job
established, allowing for the conversion and growth in areas of need, such as Muskegon,
recycling of older historic structures. should be incorporated into public policy at
the County and other levels of government.
During completion of the Downtown study,
8
8 .. Expansion of Government Presence
Expansion of Government Presence Baker College announced plans to relocate
to the former Muskegon Regional Center
Institutional activity has been, and will be, a near Muskegon Community College. This
provides an opportunity for the
County to consolidate various
facilities and services in close
proximity to the main County
Building. In the event such a
consolidation occurs, we advise
that the following
recommendations be
implemented.
u The high-quality landscape
along Apple Avenue and
throughout the site should be
maintained.
u Primary use of the facility and
site should be office in orientation,
as opposed to residential
(individual or congregate housing
whether short or long term), penal,
or medical. While the City
recognizes a need for such
Downtown/Lakeshore Redevelopment Plan
City of Muskegon
City of Muskegon 6
6 u
u 7
7
Proposed Projects
Proposed Projects
Downtown/Lakeshore Redevelopment Plan
facilities, it has its fair share based on
metro population, and should avoid 9
9 .. Expansion of Educational Offerings