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General Plan Recommendations
Master Land Use Plan
The following text reiterates the most Study, with MDOT, the feasibility of an
important recommendations presented in additional ramp at Marquette to serve
the body of this Master Plan. They are the growing area around Muskegon
organized here to allow a quick review of Community College.
the major points. Additional detail may be
found in the body of this document. Implement the Downtown loop to
provide for a unifying effect for the
Traffic Downtown area including widening
Houston to three lanes.
Designate Laketon as the principal east
and west route. Construct to five lanes Natural Features
wide with right turn lanes, install state-
of-the-art signals, timed to route traffic Habitat Plan Development and
on Laketon, and implement access Implementation. Several areas which
controls. Preserve the ability to utilize are now or could become natural areas,
the abandoned railroad right-of-way to have great potential for improved
expand Laketon to a six lane road with wildlife habitat and native vegetation.
boulevard. The plan would describe the kind and
size of habitat that would be created;
Extend Henry north of Laketon as a where it would be created; how it
commercial corridor and as a direct could be integrated with other uses; and
connection to Downtown, through what funding sources and cooperating
Western. groups are available to assist.
Designate Muskegon and Webster as Integration of Natural Features and
three lanes wide Downtown and two Areas with Recreation and Leisure
lanes wide with left turn lanes in the Planning. The natural amenities within
historic district, south of Downtown. the City are unique and are not
Streetscape the historic district in a duplicated elsewhere. The system of
"turn of the century" mode. Natural Features and Areas should be a
focus for recreation and leisure,
Implement access control on Apple, especially along the lakeshore and also
Henry, Getty, and Sherman. along stream corridors. The Muskegon
Lakeshore Trail will link special Natural
Encourage access to the Downtown Features and Areas and provide an
through the north and south opportunity for access to scenic views
connections with Seaway at U.S. 31 and recreational activities.
and I-96.
Development of Water Quality and
Encourage Shoreline as the principal Subwatershed Plan. Development of a
route to Downtown with strong access Water Quality and Subwatershed Plan
controls, collector routes, timed signals, is critical for determining specific
and year round landscape. actions or policies the City can initiate
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General Plan Recommendations
Master Land Use Plan
to improve water quality within each Working with the Muskegon Lake
subwatershed and Muskegon Lake. The Public Advisory Council, Natural
recommended Water Quality and Resource Conservation Service & Soil
Subwatershed Plan will support Conservation District, and other
regulations set forth in the General Environmental Groups where common
Zoning and Design Criteria for the lakes interests exist. Some groups are
and stream corridors. completing water quality analysis,
cleanup and awareness programs, or
Generic Zoning and Design Criteria for other assessment, protection, and
Natural Features and Areas. All of the enhancement projects. Many of these
Natural Features and identified Natural projects are aligned with common goals
Areas within the City could be more and objectives of the City, related to
effectively managed through zoning protection, preservation and use of it's
mechanisms such as Natural Feature natural features.
Overlay Zoning Districts and
development standards, Planned Unit Historic Districts
Development Standards, site plan
review, cluster development The City should perform a more
regulations, building height limits and comprehensive evaluation of its historic
Special Use Standards. areas and buildings and develop a more
detailed plan. Modifications, including
Development and Enforcement of City possible expansions (e.g., Third Street)
Stormwater Management Requirements of the existing Historic Districts should
and other Possible Modifications for be considered and discussed with the
Sensitive Natural Areas. Development community. Financial incentives for
and/or revision of stormwater preservation and maintenance should
management practices, future be evaluated, including methods for
enforcement of stormwater bringing buildings up to current code
management practices, and possible requirements.
retrofit of existing systems may reduce
the amount of pollutants entering As the City continues its efforts to make
waterways through illegal sanitary better use of its Downtown,
connections, parking lot and street consideration of Historic Buildings and
runoff, and industrial discharges. environments should be incorporated in
the planning and implementation.
Preservation and Conservation of Western Avenue presents an excellent
Natural Features and Areas. Several opportunity to address Downtown
Natural or potential Natural Areas development needs and preserve and
around the City, have extreme make better use of architecturally
ecological value. These areas should important structures. Other areas
be acquired by the City solely or with provide opportunities for Bed and
potential conservancy groups, and Breakfast, specialty retail, and restaurant
placed in a conservancy program. uses, all of which can protect and make
Master Land Use Plan
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General Plan Recommendations
Master Land Use Plan
good use of historic structures. other community and State trail
systems.
Further planning and thought needs to
be done on streetscaping and the Brownfield Analysis
environments around the historic areas.
Appropriate pedestrian scale lighting, Continue the brownfield screening
benches, walkways, signage, and program and determine current
plantings can enhance the historic feel ownership of sites on the list. For
of the neighborhoods and facilitate the example, a review of City directories
development of the Downtown as a would provide information on sites with
destination. Such planning and design industrial histories that are likely to be
standards/guides may be integrated with impacted.
similar efforts recommended for the
other portions of the Downtown. Continue to update the brownfield GIS
layer so that it may be used as a
Further promotion of the City's Historic planning tool for brownfield
Districts should be undertaken. An redevelopment. Consider expanding
informal review appears to indicate that the number of data fields to increase its
beyond the most visible monumental flexibility and make it more useful to
structures, few people are aware of the the private sector.
City's historic beauty. Promotional
efforts can help preserve the historically Continue to monitor developments in
important items and increase tourism. environmental regulations, tax
incentives, and funding sources.
Parks, Recreation, and Community
Facilities Continue to seek state and federal
funding opportunities to address
Continue the program pursuant to the brownfield issues. A good track record
1993 Muskegon Leisure Services Master in obtaining State-level resources exists,
Plan. The Plan emphasizes retention but further opportunities are most likely
and enhancement of existing features, available (e.g. site reclamation funds,
increased program offerings, and state revolving loan funds and
Lakeshore recreational improvements. renaissance funds). Pursue a
The Plan outlines 20 capital brownfield pilot program grant from
improvements to be completed over U.S. EPA.
several years.
Enact a groundwater use ordinance that
Construct a Community Center in the prohibits the installation and use of
Downtown area or nearby Downtown potable wells in areas with known
neighborhoods. groundwater contamination.
Continue completion of the Muskegon Finalize the development of a
Lakeshore Trail, with connections to Brownfield Redevelopment Authority.
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Use the brownfield site map prepared The Zoning Ordinance should be
under the master plan as the basis for upgraded to include strict buffer
defining a city-wide brownfield zone. standards between residential and non-
residential districts. Residential areas
Expand on the work done under the near or surrounded by industrial areas
Site Assessment Fund grant to should be evaluated for long term
determine the marketability of identified viability.
brownfield sites.
An "Ombudsman" liaison position
Continue to implement sound goal- between the Neighborhood
oriented land use planning and Associations/Residents and City Hall
implementation. Coordinate with should be tested.
brownfield efforts to identify rezoning
and infrastructure needs. Consider Zoning regulations associated with the
environmental issues when evaluating conversion of single-family homes to
infrastructure needs. Integrate utility multiple-family use should contain
upgrades with any required standards ensuring that converted
remediation. dwellings have sufficient on-site
parking, suitable locations for trash
Host a workshop that provides receptacles which are customarily
information on brownfield stored out of doors, sufficient yard/play
redevelopment and financial and tax areas, and exterior facade controls.
incentives.
Design and implement streetscape
Neighborhood Quality and Development programs for each of the City's major
roadways. Such programs may range
Systematic and targeted programs of from simple tree plantings in selective
code enforcement and site cleanup locations to more intensive
should be implemented. greenbelting. As part of this effort,
Neighborhood Associations, churches, examine the potential for enlarged
hospitals, businesses and other groups terraces along Webster and Muskegon
and facilities should be involved. Avenues.
Planning Commissioners should
annually survey the entire City for Work with S.D. Warren to reduce the
neighborhood conditions. occurrence and/or modify the timing of
emissions of unpleasant odors.
Entitlement and other funds should be
targeted to maintain and enhance Work with area grocery retailers
neighborhood conditions. Both isolated regarding opportunities in core urban
blocks and whole neighborhoods neighborhoods. It is not recommended
should be targeted to prevent the spread that the City enter the grocery business.
of blight and improve residential Rather, that the City work with the
quality. private sector to secure suitable sites
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General Plan Recommendations
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and, where feasible and appropriate, Along Sherman Boulevard and Laketon
provide development assistance with Avenue maintain the current industrial
the opportunity for reasonable zoning status to restrict conversion of
paybacks. industrial property to uses considered
inconsistent with the area's land use
Zoning regulations should restrict the focus.
opportunity for inappropriate business
development to occur in residential Continue monitoring traffic movement
locations. Non-conforming businesses throughout the sub-area. As needed,
should be highly restricted. address circulation and access
problems. Particular attention should
Promote ongoing housing in-fill be given to minimizing access points
programs. As part of the in-fill effort, including, where possible, the closure
work with area builders to determine of unnecessary curb cuts; ensuring
possible joint public/private alignment of driveways; erection of
partnerships for the construction of internal directional signage to
affordable housing. accommodate visitors and truck traffic;
and like factors.
Analyze sidewalk and pathway needs as
part of the City's ongoing public Implement zoning (site plan) standards
infrastructure improvement to ensure compatibility with the Marne
programming activities. to Muskegon Rail Trail system. Such
standards should include provisions for
With limited exception, restrict business segregating parking areas from the trail
development in the "In-Town" system; visual buffering of outside
residential neighborhood. Bed and storage, parking, and loading/unloading
breakfast operations, tea rooms/coffee areas; appropriate building setbacks (at
shops, etc. should be considered based least 50'); landscaping; and the like.
on rigid zoning standards to ensure
compatibility with area homes. Incorporate the sub-area's wetlands as a
component of the City's Natural
Develop and use schools, churches, Features inventory. Implement zoning
businesses, etc., as residential anchor (site plan) standards to ensure
facilities to help promote neighborhood protection of the wetlands including
cohesiveness, quality, and general minimum setbacks (at least 50');
improvements. avoidance of snow storage within the
building/wetland setback area;
Sub-Areas maintenance of natural buffer strip (at
least 25') from the actual wetland limit;
Sub-Area 1 - Port City Industrial Center and like criteria.
Maintain the sub-area's industrial focus. Preclude further expansion of the
Sunrise Memorial Garden Cemetery.
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Moreover, investigate the present status buffering in the form of architectural
of the cemetery site to determine the screening and landscaping.
extent of development and potential to
convert unused property [lying adjacent Implement streetscape and coordinated
to existing industrial parcels] for signage programs for Sherman
industrial use. Boulevard, Getty Street, and Laketon
Avenue.
Pursuant to the above, and to Sunrise
Memorial Gardens in general, it is Sub-Area 3 - Getty Street to US-31
important that buffering standards be Residential/Mixed-Use Area
established between the Gardens and
adjacent industrial development. Said Maintain the sub-area's residential
buffers should provide for heavy focus.
landscaping to ensure adequate visual
and noise buffering. Restrict the continued strip
commercialization of Apple Avenue.
Work with Fruitport Township to
coordinate development and access Permit remaining residential properties
management along Sherman Boulevard. along Getty Street to be converted to
commercial use.
Work with Muskegon Charter Township
to coordinate development and access Implement, through zoning, buffer
management along Laketon Avenue. requirements associated with non-
residential uses which are to be located
Sub-Area 2 - Sherman/Laketon Mixed-Use contiguous to residential development.
Area
Restrict further expansion of industrial
Except as noted in the sub-area analysis, development.
extend the limits of industrial
development to Getty Street. Implement a comprehensive streetscape
program along Apple Avenue, Getty
As the proposed industrial area is Street, and Laketon.
planned (designed), investigate the
potential closure of Continental Street, Focus residential rehabilitation and site
Austin Street, and Valley Street at their maintenance efforts in this sub-area.
intersecting points with Laketon
Avenue. Entry to the industrial area Working in conjunction with Muskegon
may be gained via other access points. Charter Township, prepare and
implement a coordinated streetscape
Any commercial or industrial beautification program for the
development bordering a residential commercial sector along Apple Avenue
area should provide high quality near US-31.
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General Plan Recommendations
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Implement signage along Apple Consider placement of a local
Avenue, west of US-31, alerting drivers community center central to Sub-Area's
to the City's core Downtown (and 3, 4, and 5 to provide leisure and
major attractions). educational facilities to area residents.
Work with an area retailer to assemble
Sub-Area 4 - Peck Street to Getty Street sufficient property for construction of a
Residential/Mixed-Use Area full-service grocery store and accessory
uses.
Maintain the sub-area's residential
focus. Investigate the potential for construction
of a market rate apartment complex. A
Coordinate the City's sub-area planning possible location is one central to the
effort with that of Hackley Hospital's on confluence of Sub-Areas 4 and 5 and
the development of a campus master the Core Downtown.
plan to ensure high quality integration
of the medical facility with surrounding Consider placement of duplex, tri-plex,
neighborhoods and the roadway and four-plex units as infill housing
system. Ensure that such efforts include based on designs [building and site]
residents and the Neighborhood which are complimentary to existing
Association. area housing.
Complete the proposed bicycle Coordinate planning efforts with that of
pathway along Laketon Avenue. Muskegon Heights along common
boundaries and corridors.
Permit remaining properties along Getty
Street to be converted to commercial Sub-Area 5 - Peck Street to Seaway Drive
use. Residential/Mixed-Use Area
Implement, through zoning, buffer Redevelop that portion of the sub-area
requirements associated with the located south and east of the industrial
placement of non-residential uses sector from residential to industrial.
contiguous to residential development.
Complete the proposed bicycle
Limit additional industrial development pathway along Laketon Avenue.
to the established industrial sector.
Implement, through zoning, buffer
Implement comprehensive streetscape requirements to mitigate compatibility
programs along Apple Avenue, Getty impacts between residential and non-
Street, Laketon Avenue, and Peck residential uses.
Street.
Work with the Muskegon Public
Focus residential rehabilitation and site Schools Board of Education to develop
maintenance efforts in this sub-area. a long range campus master plan for the
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General Plan Recommendations
Master Land Use Plan
High School area. Henry Street, Laketon Avenue, Seaway
Drive, and Sherman Boulevard.
Investigate the potential for
development of a market rate apartment Prepare and implement high quality
complex. streetscapes along Laketon Street,
Henry Street, and Sherman Boulevard.
Implement comprehensive streetscape
programs along the sub-area's major Market the Outlet Mall site for
roadways. redevelopment to commercial or office
use. Due to its size, the site might also
Redevelop the existing "brownfields" function as the location of a community
into productive and compatible uses. recreation center.
Focus residential rehabilitation and site Allow homes along Henry to be
maintenance efforts in this sub-area. converted to office or commercial use.
Work with Laketon Avenue businesses Prohibit future industrial development
to encourage site enhancements and, along Henry.
where necessary, building facade
improvements. Restrict commercial development along
Laketon Avenue to Barclay Street.
Develop a comprehensive preservation
strategy [plan] for the "In-Town" Prepare and implement a
residential district which permits the comprehensive management plan for
City to capitalize on the tourist appeal Ruddiman Creek and Ruddiman
of the district while retaining its Lagoon. Utilize an environmental
residential integrity. corridor overlay zone (as part of the
zoning ordinance) to provide additional
Coordinate planning efforts with that of resource protection.
Muskegon Heights. Of particular note
is the joint development of a small Coordinate boundary planning activities
industrial park from Park to Seaway and with the City of Roosevelt Park.
Hackley to Laketon.
Sub-Area 7 - McGraft Park Residential Area
Sub-Area 6 - Barclay Street
Maintain the character of the sub-area
Implement, through zoning, controls to as single-family residential. Limited
ensure adequate buffers between multiple-family may be permitted under
commercial and residential certain circumstances.
development.
Maintain the existing system of sub-area
Complete the full commercial parks and Natural Features as integral
development of that area lying between elements of the area's residential flavor.
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General Plan Recommendations
Master Land Use Plan
Incorporate the sub-area's (Ruddiman Sub-Area 8 - Lake Michigan Shoreline
Lagoon) tributaries as components of
the City's Natural Features inventory. Consistent with the City's
Implement zoning standards and Downtown/Lakeshore Redevelopment
maintenance criteria to ensure Plan, relocate the Silversides to a Core
protection of the tributaries [refer to Downtown site. Reuse the vacated site
Number 4, following]. for public open space/park purposes.
Develop and implement an educational Restrict permanent commercial
program which advances preservation development along Pere Marquette
of the area's natural features. Beach. Instead, consider the restrictive
leasing of limited, seasonal, space to
Along Sherman Boulevard, work with vendors who utilize portable trailers or
adjoining Norton Shores to coordinate kiosks which may be positioned and
the preparation and implementation of removed on a daily basis.
consistent (compatible) signage, access,
and related streetscape standards. Such Other than the commercial
standards should recognize the sub- development detailed under item 2,
area's residential character. above, restrict commercial uses
(restaurant, convenience, bait and
Implement zoning (site plan) standards tackle, marine supplies, etc.) to the
requiring adequate buffer protection marina service area located along
between the commercial uses along Lakeshore Drive, between Thompson
Lakeshore Drive and Sherman Avenue (extended) and S.D. Warren.
Boulevard and adjacent residential
development. Prepare a detailed sub-area plan for the
marina service area. The plan should
Limit expansion of commercial call for the elimination of industrial uses
development (rezonings) along but should permit the variety of mixed-
Sherman Boulevard. uses currently existing.
Existing commercial districts along Public access (pathway or boardwalk
Sherman Boulevard, west of Pine Grove easements) along the length of
Street, should be restricted to the B-1 Muskegon Lake should be
Zone District Classification. B-1 uses implemented. Such pathways should
are designed primarily to serve persons be incorporated as part of the Lakeshore
residing in adjacent residential areas or Trail System.
neighborhoods.
Coordinate planning activities along
Commercial development along Sherman Boulevard with the City of
Lakeshore Drive should be restricted to Norton Shores.
the B-2 Zone District Classification.
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General Plan Recommendations
Master Land Use Plan
Sub-Area 9 - Muskegon Lake/Lakeshore development within the interior
Drive Mixed-Used Area portions of the sub-area. Work towards
the long-term elimination of
Support the continued growth and commercial development on Beidler
development of S.D. Warren within the Street with reuse oriented to residential
limits of its current site. In doing so, development.
work with the industry to address their
environmental concerns [e.g. odor, Incorporate, through zoning, buffering
traffic impacts]. requirements between residential and
non-residential uses.
In the event of a relocation by S.D.
Warren, redevelop the plant site for Design and implement streetscape
non-industrial use. programs along Laketon Avenue and
Lakeshore Drive, including completion
Acquire the Amoco tank farm site and of the Lakeshore Trial.
redevelop for public open space use.
Restrict industrial expansion to infill
As industrial development along the locations, internal to existing industrial
shoreline is eliminated, restrict the development.
movement of deep water (bulk
shipment carrier) vessels to this sub-area Focus housing/site rehabilitation efforts
thereby reducing (and eventually on those blocks identified as exhibiting
eliminating) use of the shoreline for the a need.
temporary storage and/or processing of
waterborne industrial products. Sub-Area 11 - Seaway Drive/Waterfront
Maintain the Lakeside Business District Prepare and implement sound
as a manageable compact area suitable environmental policies governing
for pedestrian movement. shoreline development in order to
protect the integrity of the Muskegon
Sub-Area 10 - Seaway Drive/Laketon River ecosystem.
Avenue/Lakeshore Drive Residential/Mixed-
Use Area In cooperation with (non-water related)
industries along the shoreline, develop
Along Laketon, limit commercial and implement relocation programs
development to Barclay Street (south moving the operations to appropriate
side) and Franklin Street (north side). industrial sites, such as within the City's
Between Seaway Drive and the above complex of industrial parks.
streets, permit commercial infill along
Laketon Avenue. Prepare a comprehensive, sub-area,
Other than neighborhood businesses redevelopment (design) plan for Sub-
directly linked to the area, prohibit Area 11 based on the use of innovative
further encroachment of commercial development techniques (i.e.,
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City of Muskegon 13 10
General Plan Recommendations
Master Land Use Plan
Waterfront Overlay Zone/Planned Unit To enhance the marketability and
Development). Future development ongoing occupancy of the County
should be coordinated in a planned, Health Department Office Building,
versus piecemeal, fashion. provide, through appropriate zoning,
opportunity for both public and private
As part of the above plan, investigate use of the facility for office purposes.
the potential to create a single roadway
serving future sub-area development Working in concert with Muskegon
versus the present system (Western Charter Township, prepare an Apple
Avenue and Ottawa Street). Avenue Corridor development program
addressing access control, streetscape,
Develop the former Waste Water and signage standards.
Treatment site as a natural area
incorporating a system of nature trails With the growth of nearby Apple
for aesthetic enjoyment and educational Avenue as a prime commercial
enhancement. corridor, there appears to be no reason
to foster the interior (northerly)
Traverse the sub-area with the development of Sub-Area 13 properties
Lakeshore Trail system providing for retail, restaurant, or general service
opportunity for views of Muskegon use. Therefore, such development
Lake and associated natural areas. should be restricted to existing locations
along Apple Avenue.
Sub-Area 12 - North Apple Residential
General Hospital should be supported
Housing rehabilitation efforts should be through the development of
focused in Sub-Area 12. professional offices on, or adjacent to,
the hospital campus. The master plan
A comprehensive streetscape program recognizes the potential need for such
should be prepared and implemented development.
for Apple Avenue.
College-related directional signs should
Clustered commercial development be placed on Apple, near Shonat and
should be confined to the US-31 and Quarterline.
Getty Street intersections, consistent
with similar developments identified in
Sub-Areas 3 and 4.
The industrial node near Seaway Drive
(Skyline Drive) and Getty should be
developed as a small industrial park.
Sub-Area 13 - Muskegon Community
College
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City of Muskegon 13 11