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Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 1
PORT CITY INDUSTRIAL CENTER
Sub-Area 1 provides a location in which the industrial vitality of Muskegon may be
readily observed. Home to the Port City Industrial Park, the area offers opportunity
for service and manufacturing industries to locate in a secure, fully-serviced, park
setting with close proximity to US-31 and I-96. Industrial growth within the sub-area
has been particularly formidable over the past decade and is anticipated to remain
strong. Complimenting the industrial flavor of the area is an enclave of regional
commercial activity comprised of several national retail chains located at the US-31/I-
96 Intersection, and the Muskegon Correctional Facility located along the eastern
portion of the sub-area. While both uses are considered secondary to the primary
focus of the sub-area, they provide high quality retail and employment opportunities.
It is the goal of the Master Plan to retain the industrial orientation of Sub-Area 1.
Accordingly, the rezoning of land for additional non-industrial use shall be
discouraged, provided however, parcels located along Sherman Boulevard and
Laketon Avenue may be used for non-industrial purposes which are ancillary to the
area's industrial focus. Such uses include, but are not limited to, financial institutions,
health/fitness clubs, office supply stores, computer sales and servicing, employment
centers, and other uses with the potential to serve local industrial needs.
Location (Area Boundaries): Area Description:
North: Laketon Avenue The sub-area is traversed by several of the
East: City Limit [Muskegon Charter City's local and regional arterials. These
Township] include Laketon Avenue, Sherman
South: Sherman Boulevard Boulevard, and US-31. Interstate I-96 lies
West: US-31 approximately three miles south,
intersecting with US-31. Access to these
Neighborhood: systems has heavily influenced sub-area
development.
East Muskegon
A majority of the sub-area is devoted to
Land Use: industrial use. The area is home to the Port
City Industrial Park - a Class "A" planned
Primary: Industrial industrial park. Uses within the park
Secondary: Regional commercial include environmental, engineering, and
State correctional facility printing services; wholesale food services;
and manufacturing and processing
industries.
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The Muskegon Correctional Facility, a State several major restaurants, and a Comfort
prison complex, is located along the eastern Inn.
side of the sub-area in a heavily wooded
setting. The facility has been designed, Laketon Avenue serves as the sub-area's
constructed, and landscaped to blend with northern border. Land use along the
its natural surroundings. Although abutting roadway is primarily industrial.
the Port City Industrial Park, it has not been
a deterrent to the park's rapid growth. Sunrise Memorial Gardens, a cemetery, is
located near the US-31 (Industrial
At the extreme southwest corner of the sub- Boulevard) and Keating Avenue
area, near the Sherman Boulevard and US- Intersection.
31 Intersection, one finds a new regional
retail strip center anchored by a Target Adjacent Land Use:
department/variety store. Other uses
include retail outlets specializing in North: Industrial and limited commercial
electronics, computers, and pet supplies East: City limit/Muskegon Charter
and a family style restaurant. Additional Township. Land uses include
space is available for retail occupancy. vacant parcels, single-family
residential, and industrial.
South: Sherman Boulevard comprised of
regional commercial, service, and
industrial.
West: US-31.
Sub-Area (Land Use) Stability:
As evidenced by the high rate of new
industrial and retail growth over the past
ten years, level of recent private investment,
and proposed new investment, the sub-area
is considered a stable land use area.
Along Sherman, east of the retail center, lie
a combination of industrial and service Sub-Area Issues:
facilities. Service uses include a financial
institution and tennis/fitness club. Although considered highly stable, the sub-
area possesses several factors warranting
The retail center is situated directly across a attention within the Master Plan. These are:
new, complimentary, retail complex
located in neighboring Fruitport Township. 1. There is likely to be continued demand
That development is anchored by WalMart, to convert industrial properties along
SAM's Club, and Lowe's retail stores. Sherman Boulevard to non-industrial
Other uses include a series of variety stores, (retail or service sector) use.
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2. As the level of retail traffic grows, Master Plan Recommendations:
conflicts with industrial park traffic are
likely to increase. 1. Maintain the sub-area's industrial focus.
3. Much of the easterly vehicular traffic 2. Along Sherman Boulevard and Laketon
bound for the Target site does not Avenue maintain the current industrial
proceed to the signalized intersection zoning status to restrict conversion of
before turning left. Instead, left turns industrial property to uses considered
are made off Sherman, at the initial inconsistent with the area's land use
parking lot access opening. This results focus.
in vehicular conflicts, including the
stacking of traffic in the northerly, 3. Continue monitoring traffic movement
eastbound, lane which has been throughout the sub-area. As needed,
designed to accommodate through address circulation and access
movement. problems. Particular attention should
be given to minimizing access points.
4. Internal traffic movement on public This includes, where possible, the
streets within the Port City Industrial closure of unnecessary curb cuts;
Park should be analyzed to ensure that ensuring alignment of driveways;
sufficient signalization and/or signage erection of internal directional signage
exists to avoid long periods of queuing to accommodate visitors and truck
at intersections. traffic; and like factors.
5. Site development (zoning) standards 4. Implement zoning (site plan) standards
should be implemented to ensure that to ensure compatibility with the Marne
parcels abutting the future Marne to to Muskegon Rail Trial system. Such
Muskegon Rail Trail [Musketawa Trail] standards should include provisions for
are well designed, compatible with, and segregating parking areas from the trail
complimentary to the trail system. system; visual buffering of outside
storage, parking, and loading/unloading
6. The sub-area includes several wetland areas; appropriate building setbacks (at
locations. These are generally found least 50'); landscaping; and the like.
within the central portions of the Port
City Industrial Park. These natural 5. Incorporate the sub-area's wetlands as a
features should be recognized and component of the City's natural features
protected. inventory. Implement zoning (site plan)
standards to ensure protection of the
7. The Sunrise Memorial Gardens, while a wetlands including minimum setbacks
viable use, represents a use which is not (at least 50 feet); avoidance of snow
consistent with the future growth and storage within the building/wetland
development of Sub-Area 1. setback area; maintenance of natural
buffer strip (at least 25 feet) from the
actual wetland limit; and like criteria.
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6. Preclude further expansion of the
Sunrise Memorial Garden Cemetery.
Moreover, investigate the present status
of the cemetery site to determine the
extent of development and potential to
convert unused property [lying adjacent
to existing industrial parcels] for
industrial use.
Pursuant to the above, and to Sunrise
Memorial Gardens in general, it is
important that buffering standards be
established between the Gardens and
adjacent industrial development. Said
buffers should provide for heavy
landscaping to ensure adequate visual
and noise buffering.
7. Work with Fruitport Township to
coordinate development and access
management along Sherman Boulevard.
8. Work with Muskegon Charter Township
to coordinate development and access
management along Laketon Avenue.
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MASTER PLAN SUB-AREA 2
SHERMAN/LAKETON MIXED USE AREA
Sub-Area 2, located directly west of US-31 between Laketon Avenue and Sherman
Boulevard, is an area undergoing change. Land uses include single-family residential,
multiple-family, general retail, business services, medical facilities, and light and heavy
industrial. Although classified as mixed use, specific development types tend to be
spatially distributed to four distinct sectors. These are the Mercy Hospital Medical
Campus near the Sherman Boulevard/US-31 Intersection (southeast quadrant of the
sub-area), strip commercial bordering the eastern edge of Getty Street and southern
edge of Laketon Avenue, a mixed residential tract within the sub-area's northwest
quadrant, and industrial located in the sub-area's interior (Medendorp Industrial Park).
As a whole, the sub-area's predominate, emerging use is industrial.
It is the goal of the Muskegon Master Plan to encourage expanded industrial
development in Sub-Area 2. In doing so, the plan recognizes that Sub-Area 2 contains
various non-industrial uses important to the well-being of the City and populace as a
whole. Accordingly, the plan outlines measures to ensure adequate protection and
compatibility between the sub-area's variety of land development types.
Location (Area Boundaries): Street. Laketon and Sherman intersect with
nearby US-31 resulting in easy access for
North: Laketon Avenue automobile and truck traffic.
East: US-31
South: Sherman Boulevard Mercy Hospital, along with associated
West: Getty Street medical offices, nursing facilities, and
medical supply businesses, are located near
Neighborhood: the Sherman Boulevard/US-31 Intersection.
East Muskegon Single and multiple family housing are
found in the sub-area's northwest quadrant.
Land Use: The multiple-family dwellings are of recent
construction and provide rent assisted
Primary: Industrial accommodations for area residents.
Secondary: Health services
Single-family Commercial development has occurred in
Commercial strip fashion along Getty Street and Laketon
Avenue. Uses include general and
Area Description: speciality retail, convenience retail,
services, and offices. Strip commercial is
Sub-Area 2 may be accessed via Laketon also found along the western edge of Getty
Avenue, Sherman Boulevard, and Getty Street in Muskegon Heights and along the
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northern edge of Laketon in Sub-Area 3. 2. Industrial development is emerging as
Some industrial development is also found the sub-area's predominate land use.
sporadically located along the two The area's proximity to US-31,
corridors. combined with the availability of large
parcels, has made the area inviting to
The central portion of the sub-area, which industrial users. The City is also
is also the largest land area component, is encouraging industrial development
developing as industrial and is known as through its land assembly efforts in this
the Medendorp Industrial Park. Similar to area.
its counterpart lying east of US-31 (Sub-
Area 1, the Port City Industrial Park), Sub- 3. Reinvestment in existing, single-family,
Area 2 provides an opportunity to create a housing units is minimal. Housing
high quality industrial area with close located in the interior portions of the
proximity to excellent transportation sub-area is undergoing replacement by
facilities. new and/or expanding industries. In
some instances, homes (home sites) are
Adjacent Land Use: being assembled to create parcels
sufficient to accommodate industrial
North: Mixture of residential, development.
commercial, and industrial.
East: US-31. 4. New, rent assisted, multiple-family
South: Sherman Boulevard with a apartments have been constructed
mixture of residential and along Valley Street, near Barney. While
commercial. this development has helped stabilize
West: Mixture of residential, the "immediate" neighborhood area, its
commercial, and industrial. impact on the sub-area's other
residential sectors is negligible.
Sub-Area (Land Use) Stability:
Sub-Area Issues:
Over the past ten to fifteen years, the sub-
area has experienced significant change. 1. Designation and use of the sub-area for
Additional change is anticipated as industrial development will require the
evidenced by the following: removal of single-family housing.
1. Mercy Hospital has encouraged the
successful, campus-type, development
of free-standing medical offices and
clinics directly south and west of the
main hospital building. A large number
of the region's health professionals are
located there. Additional, similar,
development is anticipated.
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2. The combination of land uses (e.g., Exceptions:
housing, medical, commercial, and
industrial) may result in land use a. The general area occupied by Mercy
compatibility conflicts unless Hospital (east of Roberts Street and
development is carefully regulated. south of Black Creek) should be
recognized as a health services/office
3. Generally, the strip commercial location.
development along Getty Street and
Laketon Avenue has not provided b. The area north of East Barney Avenue,
sufficient buffer protection with west of Madison Street, and south of
adjoining residential development. East Delano Street should be retained as
mixed use residential.
4. Strip commercial development along
Getty Street and Laketon Avenue varies c. Permit strip commercial development
in depth pursuant to residential along Laketon Avenue up to a depth of
encroachment. The "deeper" parcels approximately 300 feet.
may establish benchmarks for
subsequent requests to extend d. Permit strip commercial development
commercial into residential locations. along Getty Street at the following
locations:
5. The visual image afforded by Getty
Street and Laketon Avenue is poor due South of East Barney Street.
to a lack of high quality streetscape and
coordinated business signage. Between East Barney and East
Sherman, between Roberts Street and Delano Avenue. Within this area,
Getty Street experiences a similar commercial should be limited to the
phenomena. alley between East Barney Avenue
and East Hackley Avenue. The
6. In several instances, non-residential block between East Hackley Avenue
"spot" development has been allowed and East Delano Avenue may
to encroach upon residential locations. extend from Getty to Continental
Street.
7. The sub-area is traversed by Little Black
Creek, a tributary of Mona Lake. This e. Pursuant to items c and d, above,
natural feature requires protection from ensure that sufficient zoning standards
sub-area development. are in place to address the issues of
limited access control, pedestrian and
Master Plan Recommendations: vehicular circulation, signage,
landscaping, and related design criteria.
1. Except as noted, extend the limits of
industrial development to Getty Street. 1. As the proposed industrial area is
planned (designed), investigate the
potential closure of Continental Street,
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Austin Street, and Valley Street at their
intersecting points with Laketon
Avenue. Entry to the industrial area
may be gained via other access points.
2. Any commercial or industrial
development bordering residential
should provide high quality buffering in
the form of architectural screening and
landscaping.
3. Implement streetscape and coordinated
signage programs for Sherman
Boulevard, Getty Street, and Laketon
Avenue.
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MASTER PLAN SUB-AREA 3
GETTY STREET TO US-31 RESIDENTIAL/MIXED-USE AREA
Sub-Area 3 is bordered by several of the City's major arterials. These systems
experience high levels of through traffic which render abutting lands desirable for
commercial and industrial use. Notwithstanding the above, Sub-Area 3 retains a
significant amount of concentrated residential development situated internal to the
roadways.
It is the goal of the Master Plan to retain the internal residential orientation of Sub-
Area 3, while recognizing the opportunity to provide for non-residential uses in select
perimeter locations. In providing for non-residential perimeter development, careful
attention must be given to adequate buffering between residential and non-residential
uses. Additionally, perimeter roadways should be landscaped to reflect a setting (entry)
which is more residential than commercial in character.
Location (Area Boundaries): The interior portion of the area consists of
low to moderately priced single-family
North: Apple Avenue homes, West Michigan Christian High
East: US-31 School, and approximately nine religious
South: Laketon Avenue institutions (churches).
West: Getty Street
Due to the character of the perimeter
Neighborhoods: roadways, the sub-area experiences a
mixture of retail, service, and industrial
Sheldon Park development along segments of Apple
Oakview Avenue, Getty Street, and Laketon Avenue.
The northeasterly portion of the area is near
Land Use: the intersection of Apple Avenue and US-
31. As such, parcels in this location along
Primary: Single-family residential Apple have developed in strip commercial
Secondary: Educational facilities fashion, linking with similar development
Churches /religious in nearby Muskegon Charter Township.
institutions The Apple Avenue/US-31 Intersection
Mixed retail, Industrial represents an initial entry point into the City
and serves as a regional commercial center.
Area Description:
Getty Street is almost fully developed as
The sub-area is bordered by Apple Avenue, strip commercial. Laketon Avenue consists
Getty Street, and Laketon Avenue. All are of a mixture of residential, commercial, and
principal arterials, providing for high rates industrial (warehousing/distribution).
of transient through movement.
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Adjacent Land Use: 3. Through traffic, non-related to sub-area
residents, results from those attempting
North: Residential and strip to avoid travel along the major
commercial. perimeter roadways during peak times.
East: Residential, commercial, and
industrial. 4. Several of the residential blocks
South: Commercial and industrial. experience homes in need of
West: Residential, commercial, and rehabilitation.
industrial.
5. There is a lack of adequate buffer
Sub-Area (Land Use) Stability: protection between many of the strip
commercial areas and adjacent
The area is slowly undergoing change, due homesites.
in large part to the continual strip
commercialization of Apple Avenue, Getty 6. There is a lack of coordinated planning
Street, and Laketon. Many of the residential between the City and adjoining
blocks experience homes in need of Muskegon Charter Township.
rehabilitation and/or basic "paint-up/fix-up."
Master Plan Recommendations:
1. Maintain the sub-area's residential
focus.
2. Restrict the continued strip
commercialization of Apple Avenue.
3. Permit remaining residential properties
along Getty Street to be converted to
commercial use.
4. Implement through zoning, buffer
Sub-Area Issues: requirements associated with non-
residential uses which are to be located
1. The demand for additional strip contiguous to residential development.
commercial development along Apple
Avenue, Getty Street, and Laketon 5. Restrict further expansion of industrial
Avenue is anticipated to continue. development.
2. There is a lack of a consistent and 6. Implement a comprehensive streetscape
cohesive streetscape along Apple program along Apple Avenue, Getty
Avenue, Getty Street, and Laketon Street, and Laketon.
Avenue.
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7. Focus residential rehabilitation and site
maintenance efforts in this sub-area.
8. Working in conjunction with Muskegon
Charter Township, prepare and
implement a coordinated streetscape
beautification program for the
commercial sector along Apple Avenue
near US-31.
9. Implement signage along Apple
Avenue, west of US-31, alerting drivers
to the City's core downtown (and major
attractions).
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MASTER PLAN SUB-AREA 4
PECK STREET TO GETTY STREET RESIDENTIAL/MIXED-USE AREA
Sub-Area 4 is predominately residential in use. The Clinton-Peck and McLaughlin
Historic Districts are located in the sub-area. The historic districts possess a variety of
period housing, institutional, and commercial structures. To the northwest, Sub-Area
4 links with Muskegon's Core Downtown. The sub-area also includes a variety of
medical facilities and commercial, industrial, and institutional development.
It is the goal of the Master Plan to retain the residential orientation of Sub-Area 4,
while also recognizing the importance of existing medical, office, commercial, and
industrial development that is appropriately sited and designed. With the exception of
Laketon Avenue, these latter uses are found along the perimeter of the sub-area.
Laketon Avenue, a major east/west arterial located within the sub-area, possesses
several pockets of non-residential development.
Except for recognized enclaves of desired non-residential development, the sub-area's
internal development should be limited to those uses of a residential character or
having residential compatibility.
Location (Area Boundaries): Area Description:
North: Apple Avenue The sub-area is bordered by Peck Street,
East: Getty Street Apple Avenue, Getty Street, and Muskegon
South: City Limit [Muskegon Heights] Heights (on the south). Laketon Avenue is
West: Peck Street located near the southern portion of the
area. These roadways, classified as
Neighborhoods: principal arterials, carry significant traffic
through this portion of the City.
Angell
Marsh A majority of the area is devoted to single-
McLaughlin family use. Housing character and local
neighborhood quality vary markedly. On
Land Use: some blocks, one finds superior examples
of well-maintained period housing.
Primary: Residential Conversely, one also discovers residential
Secondary: Hospital/Medical facilities blocks with homes and home sites in need
Medical offices of major rehabilitation and/or clean-up. A
Commercial, Cemetery visible example of the above situation may
be found along the residential blocks
surrounding Hackley Hospital. To the
immediate west of the hospital, along
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Clinton Street, one finds high quality period
housing on manicured sites. To the
immediate east, along Hoyt Street, homes
are generally smaller in size, significantly
lower in assessed value, and often in need
of rehabilitation. Comparable variations in
housing character and condition are
prevalent throughout the sub-area.
Hackley Hospital, the City's largest medical
facility and a major employer, is located
near the Laketon Avenue and Peck Street
Intersection. Attached to the hospital are
two multi-storied medical office buildings
providing physician and associated medical occupying the equivalent of approximately
space. Over the years, Hackley Hospital 18 blocks. They are surrounded to the
has acquired surrounding properties, north, west, and south by residential
including residential sites, in order to meet development. On the east, they abut, and
growth demands. The inclusion of such buffer, an area comprised of industrial uses.
property has allowed the hospital to expand
at its present location, versus relocating Peck Street consists of a mixture of
elsewhere. Over the past ten years, the residential, office, and speciality retail
hospital has instituted major site development. In many instances, homes
improvement activities including the have been converted for non-residential
beautification of several blocks along use, but retain their residential character.
Laketon Avenue and perimeter landscaping
consistent with the character of the area's As in Sub-Area 3, Getty Street has
historic background. Additional developed in strip commercial fashion.
improvements are planned. Generally, such commercial parcels are
limited to the first tier of properties along
Located near Hackley Hospital, one finds a the roadway. There has been only limited
variety of religious facilities (local intrusion into the adjoining residential
churches), medical offices, public and blocks.
private schools, and Marsh Field. Marsh
Field, currently undergoing rehabilitation, Getty Street also possesses a small industrial
represents one of the City's finest baseball area, a portion of which provides incubator
complexes and is suitable for tournament space for budding industrial businesses.
play. Normally, industrial development would be
discouraged in a residential sub-area,
Restlawn and Oakwood Cemeteries are however, several factors prevent the above
located near the east-central portion of the use from negatively impacting surrounding
sub-area. Collectively, they represent the properties. As previously indicated, the
sub-area's second largest land use, industrial site is buffered by two large
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cemeteries. These features reduce the Sub-Area Issues:
visual impacts of the industrial uses and
prevent the east-west movement of 1. Many residential blocks experience
industrial traffic through nearby residential deteriorating housing conditions and/or
blocks. poor site maintenance.
Within Sub-Area 4, Laketon Avenue has 2. It is anticipated that Hackley Hospital
avoided the strip commercialization will require the additional removal of
common to the City's major streets. This is homes for hospital expansion and
due to a variety of factors, including the associated improvement purposes.
former presence of the Grand Trunk
Railroad right-of-way, paralleling Laketon 3. Peck Street is likely to experience
Avenue on the north. The historic presence continued demand for the conversion of
of this 66 foot right-of-way, actively used for single-family homes to non-residential
rail transport during the early to mid- use.
1970's, precluded use of frontage
properties. The line is now abandoned, 4. The area lacks a convenient, full-
most of the trackage removed, and the service, grocery store.
right-of-way in City ownership (with some
exception). A portion of the right-of-way 5. The presence and location of the
(between Getty Street and Hoyt Avenue) is hospital and related medical facilities
presently being redeveloped as a results in some movement of transient
component of the City's pathway system. traffic through adjacent residential
blocks.
Adjacent Land Use:
6. The perimeter roads, and Laketon
North: Core downtown and residential. Avenue, lack high quality, cohesive,
East: Strip commercial. streetscapes.
South: Muskegon Heights (mixed uses)
West: Residential, strip office, 7. The demand for strip commercialization
institutional. of Getty Street is likely to continue.
Sub-Area Stability: 8. There is a lack of adequate buffer
protection between many of the strip
The stability of the sub-area varies commercial areas/uses and adjacent
depending on the specific geographic homesites.
location. As a whole, the sub-area is
classified as slightly less than stable. This is 9. There is a lack of coordinated planning
due to the increasing rate of homes in need between the City and adjoining
of rehabilitation. Muskegon Heights.
10. Although the sub-area is host to, or
near, several major employers, it does
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not possess a higher quality, market 7. Implement comprehensive streetscape
rate, apartment complex. programs along Apple Avenue, Getty
Street, Laketon Avenue, and Peck
11. The industrial development along Getty Street.
must be carefully buffered to ensure
compatibility with nearby residences. 8. Focus residential rehabilitation and site
maintenance efforts in this sub-area.
12. The general area (Sub-Area's 3, 4, and
5) includes high numbers of children 9. Consider placement of a local
and older residents. Other than local community center central to Sub-Area's
schools, the availability of recreational 3, 4, and 5 that will provide leisure and
facilities for these residents is limited. educational facilities to area residents.
Master Plan Recommendations: 10. Work with an area retailer to assemble
sufficient property for construction of a
1. Maintain the sub-area's residential full-service grocery store and accessory
focus. uses.
2. Coordinate the City's sub-area planning 11. Investigate the potential for construction
effort with that of Hackley Hospital on of a market rate apartment complex. A
the development of a campus master possible location is one central to the
plan to ensure high quality integration confluence of Sub-Areas 4 and 5 with
of the medical facility with surrounding the Core Downtown.
neighborhoods and the roadway
system. Ensure that such efforts include 12. Consider placement of duplex, tri-plex,
residents and the underlying and four-plex units as infill housing
Neighborhood Association. based on designs [building and site]
which are complimentary to existing
3. Complete the proposed bicycle area housing.
pathway along Laketon Avenue.
13. Coordinate planning efforts with that of
4. Permit remaining properties along Getty Muskegon Heights along common
Street to be converted to commercial boundaries and corridors.
use.
5. Implement, through zoning, buffer
requirements associated with the
placement of non-residential uses
contiguous to residential development.
6. Limit additional industrial development
to the established industrial sector.
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MASTER PLAN SUB-AREA 5
PECK STREET TO SEAWAY DRIVE RESIDENTIAL/MIXED-USE AREA
Sub-Area 5 ranges from residential development in the north to heavier industrial uses
along the south (southwest). The sub-area includes the headquarters of the Brunswick
Corporation, SPX industrial facilities, St. Mary's Cemetery, and Muskegon High School
and school administration offices. The Jefferson, Campus, Clinton-Peck, Houston, and
Clay-Western Historic Districts are located in the sub-area. The Jefferson District is
classified as a "AA" historic district and provides excellent examples of period housing.
The sub-area also possess a unique, downtown residential neighborhood lying south of the
City's Core Downtown, close to historic Western Avenue on the west. The neighborhood
is part of a "AA" National Register Historic District and home to the Hackley House and
Hume Home.
Location (Area Boundaries): The southerly portion of the area is devoted
to industrial development, including the
North: Core Downtown headquarters of the Brunswick Corporation
East: Peck Street and SPX industrial facilities. These uses, as
South: City Limit [Muskegon Heights] well as others, have been in existence for
West: Seaway Drive many years and are well established at this
location. Most have made ongoing
Neighborhoods: investments in new buildings and
equipment and are the recipient of tax
Marsh incentives from the City. The industrial area
Nelson possesses several former industrial sites.
Land Use:
Primary: Residential - northerly
portion
Industrial - southerly portion
Secondary: Educational facilities
Offices
Mixed commercial
Cemetery
Area Description: The northerly two-thirds of the sub-area
consists of residential development varying
The sub-area is bordered by Peck Street, in quality, size, and value. The residential
Core Downtown, Seaway Drive, and blocks encompassed by the Jefferson
Muskegon Heights (on the south). Historic District possesses some of the
City's finest housing, with sites generally
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well-maintained. The blocks abutting the The sub-area includes the Peck Street and
Core Downtown [generally described as Sanford Street one-way pair located along
that area between Hackley Park, Western the easterly border. These north/south
Avenue, Ninth Street, and Houston] reflect systems serve as major collectors to local
a neighborhood enclave with direct linkage residential traffic and as arterials to through
and identity to the City's downtown movement. Over the years, Peck Street has
entertainment and business area. The experienced the conversion of homes to
Master Plan calls for this area to be office and speciality retail and services uses.
classified as an "In-Town" residential The rise of such development may be
neighborhood, distinct from the basic core traced to nearby Hackley Hospital and the
downtown area. The "In-Town" northerly portion of the roadways proximity
neighborhood is part of the Class AA to the City's core downtown.
National Register Historic District. The
Charles Hackley House and Hume Home, Seaway Drive (BR-31) serves as the area's
historic landmarks, are located in the "In- westerly boundary. The roadway
Town" neighborhood. effectively isolates the area from
development to the west.
Notwithstanding the presence of many
quality homes, the sub-area also possesses a Adjacent Land Use:
number of blocks with units in need of
rehabilitation and site maintenance. North: Core Downtown
East: Mixed residential, office, and
Muskegon High School serves as a major speciality retail
anchor to the sub-area's residential South: City limit (Muskegon Heights)
segment. Over the years, the school has West: Seaway Drive
undergone several major expansions and
site improvements. Additional Sub-Area Stability:
enhancements are underway.
The area's stability varies throughout.
Residential locations range from mature,
well maintained, neighborhoods to those
undergoing significant decline and in need
of rehabilitation.
Most of the industrial development is also
mature in age. And, like the area's
residential development, ranges from well
maintained facilities to those in need of
major rehabilitation and/or removal.
Sub-Area Issues:
1. There are pockets of housing in need of
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City of Muskegon 11 17
Sub-Area Plans
Master Land Use Plan
rehabilitation. quality, result in planning challenges
unique to the area [e.g. tourist traffic,
2. Laketon Avenue suffers as a result of demands for conversion of large homes
several business and property owners to commercial use, etc.].
who fail to maintain the appearance of
their buildings and/or frontage sites. 10. There is a lack of coordinated planning
between the City and adjoining
3. The area has several Part 201 sites. Muskegon Heights.
These are generally located in the area's
industrial sector. Master Plan Recommendations:
4. Buffers between residential and 1. Redevelop that portion of the sub-area
industrial development are virtually located south and east of the industrial
non-existent. sector from residential to industrial.
5. The small enclave of housing within the 2. Complete the proposed bicycle
vicinity of East Hackley Avenue and pathway along Laketon Avenue.
Park Street is isolated by industrial and
commercial development. The 3. Implement, through zoning, buffer
suitability, and long term survival, of requirements to mitigate compatibility
residential development in this location impacts between residential and non-
is questionable. residential uses.
6. The area's major streets lack a cohesive 4. Work with the Muskegon Public
streetscape program. Schools Board of Education to
development a long range campus
7. The site occupied by Muskegon High master plan for the High School area.
School is undersized and may impact
long term development efforts. 5. Investigate the potential for
development of a market rate apartment
8. As with adjoining Sub-Area 4, Sub-Area complex.
5 contains a number of major
employers. However, the area does not 6. Implement comprehensive streetscape
possess higher quality, market rate, programs along the sub-area's major
apartment in which employees may roadways.
live.
7. Focus "brownfield" redevelopment
9. The "In-Town" neighborhood district efforts on the former industrial land.
represents an exceptional residential 8. Focus residential rehabilitation and site
asset due to its historic character and maintenance efforts in this sub-area.
geographic position. However, the
district's close proximity to the
downtown, combined with its historic 9. Work with Laketon Avenue businesses
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City of Muskegon 11 18
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to encourage site enhancements and,
where necessary, building facade
improvements.
10. Develop a comprehensive preservation
strategy [plan] for the "In-Town"
residential district which permits the
City to capitalize on the tourist appeal
of the district while retaining its
residential integrity. The preservation
strategy should include an analysis of
building and site conditions on a parcel-
by-parcel basis, preparation of a
streetscape program unique to the
district and consistent with its historic
flavor, an analysis of visual and
pedestrian linkages to Western Avenue
and the Core Downtown, an assessment
of traffic circulation impacts and
recommended improvements, an
analysis of infill needs and potential
including a comprehensive evaluation
of infill programs completed over the
past several years, and related district
factors.
11. Coordinate planning efforts with that of
Muskegon Heights. Of particular note is
the joint development of a small
industrial park from Park to Seaway and
Hackley to Laketon.
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MASTER PLAN SUB-AREA 6
BARCLAY STREET SUB-AREA
Barclay Street, one of the City's north/south collectors, traverses the center of Sub-Area
6. This sub-area contains a variety of land uses including parks and open space, single
and multiple family residential, and various forms of commercial. No specific land use
predominates, however, residential becomes the primary focus when single and
multiple family land areas are combined. Ruddiman Creek borders the western edge of
the area, leading into Ruddiman Lagoon and Muskegon Lake.
It is the goal of the Master Plan to retain the mixed-use character of Sub-Area 6 and to
demonstrate how varying land uses may co-exist, as well as compliment each other.
Location (Area Boundaries): this location, one finds retail strip centers
lying east and west of Henry. Historically,
North: Laketon Avenue these centers have served a regional
East: Seaway Drive (BR-31) population base offering grocery,
South: Sherman pharmacy, clothing, automotive, restaurant,
West: Barclay and Ruddiman Creek and general retail goods.
Neighborhoods: The area lying between Henry Street and
Seaway Drive is slowly becoming a solid
Campbell core area of commercial development.
While some residential and industrial uses
Land Use: do exist, it is anticipated they will
ultimately be replaced by commercial
Mixed Use: Open space/park facilities.
Single-family
Multiple-family Commercial activity may also be found
Office, service, and retail along Laketon Avenue, between Barclay
Area Description: Street and Seaway Drive. Commercial uses
are situated in strip fashion along the
Henry Street, a north/south arterial, roadway and include a variety of local retail
traverses the easterly portion of the sub- and service facilities.
area. Henry Street is one of the metro areas
most popular commercial corridors. Henry Between Henry and Barclay one finds the
Street links the sub-area to the nearby cities sub-area's largest section of single-family
of Roosevelt Park and Norton Shores. homes. Generally, homes are moderately
Commercial development is generally priced and in good condition. There are
found throughout the length of Henry limited instances of units in need of
Street, with the largest concentration at the rehabilitation.
southern end near Sherman Boulevard. At
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Sub-Area Stability:
Although commercial development along
Henry Street is undergoing some change,
the sub-area as a whole is relatively stable.
Due to competition from new commercial
development occurring in outlying
locations, Henry Street's position as the
region's premier commercial sector has
declined. Notwithstanding that fact,
Muskegon Catholic Central School lies west however, Henry Street's central position to
of Barclay, south of Laketon. Muskegon a large population base should ultimately
Catholic is one of the region's largest counter any declining trend.
parochial schools.
Sub-Area Issues:
A large, vintage, multiple-family housing
complex is found in the Willow Drive area, 1. There is a lack of buffering between
south of Muskegon Catholic Central. commercial and residential
Although renovated several years ago, the development.
complex retains a row-house, barracks type,
character. Additional multiple-family 2. Due to its location, the City may
facilities may be found in the southern experience a demand for the expansion
portion of the sub-area, between Barclay of commercial development between
and Henry Streets. Henry Street and Seaway Drive. This
would necessitate the removal of homes
Ruddiman Creek and Ruddiman Lagoon (located in the area between Hackley
traverse the western rim of the sub-area. and Young Streets). The City has
These natural features markedly enhance invested considerable funds in this area
the sub-area's attractiveness and are for purposes of maintaining its
important elements to the local quality of residential character.
life. Ruddiman Lagoon empties into nearby
Muskegon Lake. The creek and lagoon are 3. The area's major streets (Laketon
closely associated with McGraft Park, found Avenue, Henry Street, and Sherman
in adjacent Sub-Area 7. Boulevard) lack cohesive streetscape
programs.
Adjacent Land Use:
4. The area between Young Street, Seaway
North: Residential and strip retail Drive, Laketon Avenue, and Henry
East: Seaway Drive Street is industrial in orientation. This is
South: City limit (Roosevelt Park) not consistent with surrounding land
West: Ruddiman Creek, McGraft Park, uses.
and residential
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5. The former Mall (now under Muskegon streetscapes along Laketon Street,
County ownership and used for storage) Henry Street, and Sherman Boulevard.
detracts from the visual quality and
general character of Henry Street. The 4. Market the Outlet Mall site for
large vacant parking lot and appearance redevelopment to commercial or office
of unused buildings is not conducive to use. Due to its size, the site might also
a high quality commercial (retail) function as the location of a community
environment. recreation center.
6. Remaining single-family homes along 5. Allow homes along Henry to be
Henry Street are likely to experience a converted to office or commercial use.
future demand for conversion to
commercial use. 6. Prohibit future industrial development
along Henry.
7. Commercial development along
Laketon Avenue has been restricted to 7. Restrict commercial development along
the area between Seaway Drive and Laketon Avenue to Barclay Street.
Barclay Street. Pressure may result to
extend commercial uses farther west 8. Prepare and implement a
due to the large population comprehensive management plan for
concentration in this area. Ruddiman Creek and Ruddiman
Lagoon. Utilize an environmental
8. Ruddiman Creek and Ruddiman Lagoon corridor overlay zone (as part of the
are subject to deterioration due to the zoning ordinance) to provide additional
influence of surrounding development. resource protection.
9. There is a lack of coordinated planning 9. Coordinate boundary planning activities
between the City and adjoining with the City of Roosevelt Park.
Roosevelt Park.
Master Plan Recommendations:
1. Implement, through zoning, controls to
ensure adequate buffers between
commercial and residential
development.
2. Complete the full commercial
development of that area lying between
Henry Street, Laketon Avenue, Seaway
Drive, and Sherman Boulevard.
3. Prepare and implement high quality
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City of Muskegon 11 22
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Master Land Use Plan
MASTER PLAN SUB-AREA 7
McGRAFT PARK RESIDENTIAL AREA
Sub-Area 7 is one of Muskegon's mature, stable, inviting residential areas. The sub-area
is anchored by McGraft Park, located along the sub-area's eastern edge, and the
Muskegon Country Club on the west. Central to the sub-area is Bunker Junior High
School.
Lakeshore Drive extends in a east/west direction along the northern edge of the sub-
area, while Sherman Boulevard delineates the southerly perimeter. These systems
enable vehicular traffic to move to the nearby, and highly popular, Lake Michigan
shoreline and Pere Marquette Park.
It is the goal of the Master Plan to retain the McGraft Park Residential Sub-Area as
single-family in orientation. As such, the Master Plan supports ongoing efforts towards
the rehabilitation of mature housing stock for continuing single-family use and, where
feasible, the construction of new single-family detached homes. Moreover, those
features of the sub-area considered highly beneficial to the area's residential character,
aesthetic quality, and life style should be fully protected and, where necessary,
enhanced. These include McGraft Park, Seyferth Playfield, and tributaries of
Ruddiman Lagoon.
While fostering the above goal, it is acknowledged that a limited range of commercial
and office activities are appropriate to select segments of Lakeshore Drive and
Sherman Boulevard. Typically, non-residential uses should be oriented to the needs of
the local populace. Such development should be highly controlled pursuant to type,
location, and design in order to prevent negative impacts on the sub-area's residential
focus.
Industrial development should be prohibited.
Location (Area Boundaries): Multi-family
North: Lakeshore Drive Neighborhoods:
East: McGraft Park Road/Barclay
South: Sherman Boulevard (City limit) Lakeside
West: Muskegon Country Club Glenside
Land Use:
Area Description:
Primary: Single-family residential
Secondary: Regional and neighborhood The area is primarily comprised of mature
commercial residential housing stock in good to very
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City of Muskegon 11 23
Sub-Area Plans
Master Land Use Plan
good condition. Lakeshore Drive - The advanced age of
housing along portions of Lakeshore Drive,
Complimenting the sub-area's residential combined with a lack of maintenance and
flavor are several parks including Seyferth influence of certain nearby industrial and
Playfield and well-known McGraft Park. commercial uses, has resulted in
intermittent pockets of homes in need of
McGraft is recognized throughout the rehabilitation. Left unchecked, such
Muskegon Metropolitan area as one of the conditions could impact nearby home sites,
region's finest outdoor parks. As such, it is including those internal to the sub-area.
in demand by residents and non-residents
alike. The park's outdoor amphitheater is Sherman Boulevard - Some of the
commonly used by religious, civic, and commercial uses along Sherman have not
other groups for summer concerts, while provided or maintained sufficient buffer
the indoor shelter and outdoor playgrounds protection to fully mitigate unwanted
are host to numerous picnics, family compatibility impacts (e.g., noise, lights,
reunions, and civic festivities. aesthetics, etc.) between said uses and
nearby homes. This is not conducive to
Commercial development is sporadically residential stability.
located along Sherman Boulevard.
Typically, commercial uses are found as Sub-Area Issues:
small nodes near intersections or as small
strip segments within various blocks. Along In addition to the stability concerns
Lakeshore, commercial development referenced above, several additional issues
generally occurs in linear (strip) fashion. warrant attention. These are:
Adjacent Land Use: 1. The presence of commercial
development and commercial zoning
North: Industrial, marina, and along Sherman Boulevard (both sides),
commercial. combined with high rates of traffic
East: Residential and McGraft Park. (local and transient) will result in
South: Strip commercial. additional requests for strip commercial
West: Muskegon Country Club. rezonings. The same phenomena holds
true for Lakeshore Drive (although the
Sub-Area (Land Use) Stability: amount of property left for rezoning is
limited).
As a whole, the sub-area is relatively stable.
However, some unwanted disruption to the 2. Commercial signage along Lakeshore
area's residential environment is Drive and Sherman Boulevard is not
experienced along the Lakeshore Drive and consistent pursuant to size, type, and
Sherman Boulevard corridors. These are design.
described below.
3. Zone district classifications along
Lakeshore Drive lack continuity and, in
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City of Muskegon 11 24
Sub-Area Plans
Master Land Use Plan
certain instances, are not consistent all projects should be subject to
with the Preamble Statements of the rigid site design (zoning) standards,
present zoning ordinance. including site plan review by the
Planning Commission.
4. Many of the commercial establishments
along Lakeshore Drive and Sherman 2. Maintain the existing system of sub-area
Boulevard lack streetscapes consistent parks and natural features as integral
with the residential character of the sub- elements of the area's residential flavor.
area.
3. Incorporate the sub-area's (Ruddiman
5. Certain outlot areas associated with Lagoon) tributaries as components of
tributaries of Ruddiman Lagoon have the City's natural features inventory.
been used inappropriately (e.g., Implement zoning standards and
depositing of leaves and brush, maintenance criteria to ensure
depositing of debris, heavy trespass, protection of the tributaries [refer to
cutting of vegetation potentially suitable Number 4, following].
for wildlife and the protection of the
water resource, etc.). 4. Develop and implement an educational
program which advances preservation
Master Plan Recommendations: of the area's natural features. For
instance; a) consider erecting an
1. Maintain the character of the sub-area informational display map of the
as single-family residential. Limited Ruddiman Lagoon/McGraft Park natural
multiple-family may be permitted area and park system on the grounds of
provided: McGraft Park; b) develop a designated
"walking" trail, with interpretive
residential density (units per acre) signage, traversing the park and lagoon
does not exceed underlying single- area [the trail should be included as a
family standards by more than 50 component of the Lakeshore Trail
percent; Master Plan]; c) as part of the City's
Leisure Services Program, coordinate a
sufficient on-site parking exists to program with the local system of public
accommodate all units; and private schools and neighborhood
associations for purposes of educating
the character of the multiple-family students and residents on the
complex (building and site) must be importance of the area's (City's) natural
consistent with that of surrounding features; d) on public properties, near
residential development; water courses, identify and implement a
program of designated "natural" areas
all units should have on-site access wherein lawn maintenance is either
to at least (1) stall of an enclosed eliminated or markedly reduced. This
garage; and, might include a designated 25 feet,
non-disturb, natural area adjacent to
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City of Muskegon 11 25
Sub-Area Plans
Master Land Use Plan
local water and wetland bodies. While it is recognized that Lakeshore
Drive serves a rather high amount of
5. Along Sherman Boulevard, work with transient traffic, many of the uses
adjoining Norton Shores to coordinate permitted within the present B-4 areas
the preparation and implementation of (e.g., major automobile repair, engine
consistent (compatible) sign, access, and body repair, storage of wrecked
and related streetscape standards. Such automobiles, storage of goods, parts
standards should recognize the sub- assembly, vehicular sales, flea markets,
area's residential character. etc.) are not conducive to the planned
character of the area.
6. Implement zoning (site plan) standards
requiring adequate buffer protection
between the commercial uses along
Lakeshore Drive and Sherman
Boulevard and adjacent residential
development.
7. Limit expansion of commercial
development (rezonings) along
Sherman Boulevard.
8. Existing commercial districts along
Sherman Boulevard, west of Pine Grove
Street, should be restricted to the B-1
Zone District Classification. B-1 uses
are designed primarily to serve persons
residing in adjacent residential areas or
neighborhoods.
9. Commercial development along
Lakeshore Drive should be restricted to
the B-2 Zone District Classification.
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City of Muskegon 11 26
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 8
LAKE MICHIGAN SHORELINE SUB-AREA
Sub-Area 8 might be classified as a peninsula since it is surrounded by water on three
sides. These include Muskegon Lake, the Muskegon Lake Channel leading to Lake
Michigan, and Lake Michigan. The area is home to the highly popular Pere Marquette
Beach fronting on Lake Michigan, as well as Kruse Park. Each summer the beach draws
literally thousands of residents and visitors who come to enjoy the water, sand, and
sunshine. Other notable land uses include the Muskegon Country Club, the Harbour
Towne planned residential development, the Silversides Submarine tourist attraction,
and several marinas located along the Muskegon Lake side. In addition to Harbour
Towne, residential development is found throughout the length of the area.
It is the goal of the Master Plan to maintain the quality and character of Sub-Area 8,
while permitting select (and highly restricted) residential and commercial enhancements
consistent with the range of sub-area uses. Industrial development should be
prohibited.
Location (Area Boundaries): Area Description:
North: Muskegon Lake Approximately one-fifth (1/5) of the sub-
East: Eastern edge of the Muskegon area is comprised of the Muskegon Country
Country Club Club. Located at the eastern edge of the
South: Sherman Boulevard (City of area, the Muskegon Country Club is a
Norton Shores) private, 18 hole golf course with associated
West: Lake Michigan club house, dining, recreation, and meeting
room facilities. Site topography is rolling
Neighborhoods: with mature trees abounding throughout.
The golf course serves as an attractive
Beachwood/Bluffton aesthetic feature for entry to the sub-area. It
also provides a significant land use buffer
Land Use: between this sub-area and adjoining Sub-
Area 7.
Primary: Single-family Residential
Lake Michigan Lake Michigan serves as the western
shoreline/beach boundary of the sub-area, extending the full
Secondary: Muskegon Country Club length in a north/south direction.
Marina, marina service Associated with Lake Michigan is one of the
region's finest sand beaches. The beach is
home to Pere Marquette Park, a City
recreational facility. Except for a small
concession area, commercial development
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City of Muskegon 11 27
Sub-Area Plans
Master Land Use Plan
is non-existent along the beach. Over the quality, attached condominium units in a
years, public discussion has ensued series of clustered pods. The project has
regarding placement of speciality proven highly successful and the housing
commercial facilities along a portion of the reflects some of the most expensive units in
beach area. These might include the City ($200,000+). The success of
restaurants and specialty retail with an Harbour Towne demonstrates the ability of
emphasis on the tourist trade. Public Muskegon to successfully compete with
opinion on such development is split. other communities in the high end housing
Some wish to preserve the "natural" market.
qualities of the beach area, while others
view small, well-planned, commercial
facilities as consistent with the character of
the area and benefiting the community.
Marina facilities and services, the
Muskegon Yacht Club, public boat launch
Along the southerly end of the Lake facility, and a variety of mixed-uses are
Michigan stretch one finds Kruse Park with found along the Muskegon Lake shoreline
a boardwalk along the Muskegon Channel, between Thompson Avenue (extended) and
boat ramps, and observation decks, and the the S.D. Warren plant. Marina facilities and
Kruse Park area woodlands. As with the a small beach area along Muskegon Lake
beach, the park and woodland features add are also located north of Harbour Towne.
to the high quality environmental character
of this sub-area. The Silversides, a World War II vintage
submarine, and designated national
Well-maintained single-family homes are monument, has been placed along the
located throughout the length of the sub- Muskegon Lake Channel and serves as a
area. A new residential site condominium regional tourist attraction. Over thirty
planned unit development is under thousand (30,000) guests per year visit the
construction in the northern portion of the site.
area, with linkage to Muskegon Lake.
Known as Harbour Towne, the site
condominium development includes high
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City of Muskegon 11 28
Sub-Area Plans
Master Land Use Plan
Some residents believe the beach
should be retained in a natural state.
Others feel a small cluster of speciality
retail would be economically beneficial
and conducive to a park of this type.
3. In addition to commercial development
along the beach, some residents believe
additional commercial activity should
be positioned near the Silversides in
order to take advantage of the tourist
trade.
4. The segment along Lakeshore Drive,
between Thompson Avenue (extended)
Adjacent Land Use: and S.D. Warren represents the sub-
area's greatest concentration of mixed
North: Muskegon Lake and a small uses, including an industrial facility,
segment of the S.D. Warren plant boat storage buildings, bar and
abutting the Muskegon Country restaurant, convenience store, marina,
Club. boat sales and service, and housing.
East: Residential
South: Residential (Norton Shores) 6. Although somewhat congested, the
West: Lake Michigan above area offers a desirable marine
character to the sub-area. However,
Sub-Area Stability: some of the uses and/or placement of
uses may not be desirable to the area's
Land use within the sub-area is considered long term stability.
very stable. The area's water related
position makes it a highly desirable 5. When compared to the Lake Michigan
location. Housing quality is generally very side and the area along the Muskegon
good to excellent. Lake Channel, the opportunity for
public access to the Muskegon Lake
Sub-Area Issues: shoreline is limited.
1. The presence of Pere Marquette Beach, 6. There is a lack of coordinated planning
the Silversides Submarine, and marina with the City of Norton Shores along
development result in significant the Sherman Boulevard corridor.
transient traffic through the sub-area.
Master Plan Recommendations:
2. There is divided opinion over the
development of a portion of Pere 1. Consistent with the City's
Marquette Beach for commercial use. Downtown/Lakeshore Redevelopment
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City of Muskegon 11 29
Sub-Area Plans
Master Land Use Plan
Plan, relocate the Silversides to a Core variety of mixed-uses currently existing.
Downtown site. Reuse the vacated site
for public open space/park purposes. 5. Public access (pathway or boardwalk
easements) along the length of
2. Restrict permanent commercial Muskegon Lake should be
development along Pere Marquette implemented. This would permit
Beach. Instead, consider the restrictive connection of similar pedestrian
leasing of limited, seasonal, space to movement opportunities presently
vendors who utilize portable trailers found along Lake Michigan and the
which may be positioned and removed Muskegon Lake Channel. Such
on a daily basis. pathways should be incorporated as
part of the Lakeshore Trail System.
3. Other than the commercial
development detailed under item 2, 6. Coordinate planning activities along
above, restrict commercial uses Sherman Boulevard with the City of
(restaurant, convenience, bait and Norton Shores.
tackle, marine supplies, etc.) to the
marina service area located along
Lakeshore Drive, between Thompson
Avenue (extended) and S.D. Warren.
With limited exception as detailed
below, commercial uses near the
former Silversides site should be
prohibited. The marina site located
north of Harbour Towne contains a
proposed restaurant facility (to occupy
the former marina club building). The
presence of the marina and existing
building appear to be conducive to a
restaurant at this location. Other forms
of commercial activity should be
restricted. Land development trends
indicate the viability of additional
housing in this area. Commercial
demands may be satisfied in the marine
service area delineated above, along
Lakeshore Drive between Thompson
Avenue (extended) and S.D. Warren.
4. Prepare a detailed sub-area plan for the
marina service area identified earlier.
The plan should call for the elimination
of industrial uses but should permit the
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City of Muskegon 11 30
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 9
MUSKEGON LAKE/LAKESHORE DRIVE MIXED-USED AREA
Regionally, Sub-Area 9 is most well-known for the presence of the S.D. Warren
manufacturing facility. Situated between Lakeshore Drive and Muskegon Lake, the S.
D. Warren site comprises one of the largest Lakeshore land holdings. It also represents
a complex issue pursuant to land use planning. On the one hand, the facility provides
employment opportunities, significant tax base, and represents the lumbering heritage
so important to the region's historic growth and development. Conversely, the facility
results in the movement of heavy truck traffic through non-industrial locations,
periodically emits off-site odors common to paper mills, fosters the City's image as a
heavy industrial town, and is considered by many to be visually blighting.
Near the S.D. Warren plant is the Lakeside Business District, a unique mixed-use
waterfront area conducive to pedestrian scale activity. The district includes a variety
of retail, marine, and service uses. Located along the eastern edge of the sub-area,
adjacent to Muskegon Lake, is the site of the (former) Amoco tank farm. The sub-area
rests at the base of an adjoining residential neighborhood.
It is the long range goal of the Master Plan to bring about the full redevelopment of
Sub-Area 9 consistent with the maritime character of the Lakeside Business District.
Location (Area Boundaries): Area Description:
North: Muskegon Lake The sub-area lies primarily between
East: Laketon Avenue/Lakeshore Drive Lakeshore Drive and Muskegon Lake and
South: Lakeshore Drive consists of a mix of industrial, commercial,
West: Western edge of the S.D. Warren marine, and recreational uses. The westerly
site one-half consists of the S.D. Warren Paper
Mill. This complex includes manufacturing
Neighborhoods: facilities and storage yards for wood pulp
and coal. Wood pulp arrives over the
Lakeside City's road system via large trucks, while
Nims coal arrives by lake freighter. Over the
years the plant has undergone several
Land Use: renovations including the application of
environmental controls to curb periodic off-
Primary: Industrial site odors common to paper production
Mixed-Use Commercial operations. The plant's rather massive site
Secondary: Marine is highly visible to those traveling
Residential Lakeshore and may be seen across the Lake
from North Muskegon. As indicated in the
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City of Muskegon 11 31
Sub-Area Plans
Master Land Use Plan
introduction, the facility represents a The Lakeside District contains the City's
complex planning issue. The plant only indoor movie theater, a grocery, local
provides a high number of employment tavern, restaurants, several marina/marina
opportunities, is a significant contributor to service facilities such as Great Lakes Marina
the City's tax revenue base, and links to the and Storage and Pier 33 Marina, and other
Region's former lumbering era. complimentary commercial uses. The
Conversely, the plant results in the cross district is situated at the base of a mature
town movement of heavy industrial traffic, residential area, thus providing nearby
periodically emits objectionable off-site shopping and entertainment convenience
odors, contributes to the City's image as a for neighborhood residents.
heavy industrial town, is perceived by
certain investors as a hindrance to the The sub-area includes the site of the
revitalization of the lakeshore, and is (former) Amoco tank farm. The site's low
considered by some to be visually elevation, water related position with vistas
blighting. to Muskegon Lake, and proximity to the
Ruddiman Lagoon make it potentially
conducive to public open space use.
Near the S.D. Warren plant lies the
Lakeside Business District. This unique
blend of mixed retail, marine, Adjacent Land Use:
entertainment, and service uses is markedly
different than the City's other business North: Muskegon Lake
locations due to its pedestrian scale and East: Residential
waterfront character. South: Residential, recreation, Ruddiman
Lagoon
West: Marina/marine services
Sub-Area Stability:
The sub-area is classified as stable. S.D.
Warren, the larger land holder, has made
substantial plant improvements over the
years. The Lakeside Business District has
Master Land Use Plan
City of Muskegon 11 32
Sub-Area Plans
Master Land Use Plan
also experienced a variety of building and environmental concerns [e.g. odor,
site improvements. traffic impacts, etc.].
Sub-Area Issues: 2. In the event of a relocation by S.D.
Warren, redevelop the plant site for
1. As a predominate, highly visual, land non-industrial use.
use, the S.D. Warren plant significantly
influences other shoreline 3. Acquire the Amoco tank farm site and
development. redevelop for public open space use.
2. Industrial development in this sub-area 4. As industrial development along the
generates undesirable levels of heavy shoreline is eliminated, restrict the
truck traffic and production related movement of deep water (bulk
odors. shipment carrier) vessels to this sub-area
thereby reducing (and eventually
3. The sub-area possesses several, large, eliminating) use of the shoreline for the
Part 201 and LUST sites. One of these temporary storage and/or processing of
includes the (former) Amoco tank farm waterborne industrial products.
which has public open space potential.
5. Maintain the Lakeside Business District
4. Select shoreline areas offer ongoing as a manageable, compact area suitable
potential for the harboring of deep for pedestrian movement. Avoid the
water craft pursuant to the shipping linear (strip) extension of commercial
and/or receiving of bulk product and/or development outside the district's
large shipment containers. The receipt present boundaries. Encourage
of products such as aggregate, bulk retention of the district's marine
quantities of chemicals or like materials, character. Place greater emphasis on
etc. may be viewed by some as the district's tourist potential via
industrial in orientation and marketing and media efforts.
inappropriate for this shoreline local.
5. It is common for industrial (employee)
traffic to disperse throughout the
adjacent residential neighborhood as a
means of avoiding congestion on
Lakeshore Drive and McCracken Street.
Master Plan Recommendations:
1. Support the continued growth and
development of S.D. Warren within the
limits of its current site. In doing so,
work with the industry to address their
Master Land Use Plan
City of Muskegon 11 33
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 10
SEAWAY DRIVE/LAKETON AVENUE/LAKESHORE DRIVE RESIDENTIAL/MIXED-USE
AREA
Although primarily single-family residential, Sub-Area 10 contains a wide array of land
uses including some of the City's most well known commercial and industrial
businesses. The sub-area is served by Laketon Avenue, Seaway Drive, and Lakeshore
Drive and is the recipient of significant through traffic moving to local industries along
the shoreline, Pere Marquette Park, and homesites in adjoining Sub-Area's 7 and 8.
The northern edge of the sub-area abuts Muskegon Lake. However, like many of the
other sub-areas with water relationships, the residential segments are effectively
blocked from most of the shoreline by industrial or other private development.
It is the goal of the Master Plan to retain the retain the residential orientation of Sub-
Area 10 while restricting the expansion of commercial and industrial development to
infill locations.
Location (Area Boundaries): northern and west edge, separated from
Muskegon Lake by a strip of land varying in
North: Muskegon Lake width and occupied by industrial,
East: Seaway Drive/Core Downtown residential, marina, and office uses.
South: Laketon Avenue and a small
residential segment along Nolan Cole's (industrial) Bakery is located in this
Avenue and Frisbie Street sub-area along with an adjoining cluster of
West: Muskegon Lake high-end condominiums and associated
marina. Designed in planned unit
Neighborhood: development fashion, the project offers an
excellent example of the potential for
Nims residential and industrial development to
coexist.
Land Use:
Primary: Residential
Secondary: Industrial
Mixed Commercial
Office
Area Description:
Seaway Drive and Laketon Avenue serve as
the sub area's eastern and southern limit,
respectively. Lakeshore Drive runs near the
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City of Muskegon 11 34
Sub-Area Plans
Master Land Use Plan
Also found along the Muskegon Lake The interior portion, and a majority of the
shoreline is the Muskegon YFCA and sub-area is comprised of low to moderately
office/retail space (Waterfront Centre). The valued single-family homes. Housing and
YFCA is in close proximity to Heritage site condition are generally good with
Landing County Park located on Muskegon minor instances of blocks in need of
Lake at the edge of the core downtown. significant enhancement. The southwestern
portion of the area links with the Ruddiman
Lagoon.
Strip commercial use is found along
Laketon Avenue, between Seaway Drive
and Barclay Street. A small commercial
area on Laketon Avenue also exists near
Palmer Avenue. Isolated commercial
parcels occur on Beidler Street, north of
Laketon Avenue.
Adjacent Land Uses:
North: Muskegon Lake
The Waterfront Center [identified as an East: Seaway Drive (residential,
historic structure on the State Register of industrial, and commercial)
Historic Places] has undergone several South: Commercial, semi-public
transitions in use. Originally constructed (Muskegon Catholic High School,
for industrial purposes, this multi-storied commercial, McGraft Park.
brick building was converted to retail use West: Muskegon Lake
during the 1980's. Housing a variety of
specialty, antique, and craft shops, and a Sub-Area (Land Use) Stability:
restaurant, the rehabilitated industrial
facility waned after several years of use. The sub-area is relatively stable. Prior
The building has since been converted to investments have been made along the
office space. waterfront and will likely continue into the
future. Housing condition is generally
good.
Sub-Area Issues:
1. Laketon Avenue is likely to experience
future demand for continued strip
commercial development. With
commercial uses located at each end of
the Laketon Avenue segment, pressure
to develop the full corridor has the
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City of Muskegon 11 35
Sub-Area Plans
Master Land Use Plan
potential to occur. 3. Incorporate, through zoning, buffering
requirements between residential and
2. Existing industrial development on the non-residential uses.
south side of Lakeshore Drive abuts
residential development with virtually 4. Design and implement streetscape
no buffering between the uses. programs along Laketon Avenue and
Housing at this location exhibits the Lakeshore Drive, including completion
greatest need for improvement. of the Lakeshore Trail.
3. The interior of the sub-area, which is 5. Restrict industrial expansion to infill
residential in use, experiences several locations, internal to existing industrial
pockets/parcels of commercial development.
development. Given the sub-area's
close proximity to the Core Downtown 6. Focus housing/site rehabilitation efforts
and the commercial development along on those blocks identified as exhibiting
Laketon Avenue, interior commercial a need.
development is not desired.
4. Lakeshore Drive and Laketon Avenue
(central and eastern segments) are in
need of improved streetscapes.
Master Plan Recommendations:
1. Along Laketon, limit commercial
development to Barclay Street (south
side) and Franklin Street (north side).
Between Seaway Drive and the above
streets, permit commercial infill along
Laketon Avenue.
2. Other than neighborhood businesses
directly linked to the area, prohibit
further encroachment of commercial
development within the interior
portions of the sub-area. Work towards
the long-term elimination of
commercial development on Beidler
Street with reuse oriented to residential
development.
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City of Muskegon 11 36
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 11
SEAWAY DRIVE/WATERFRONT SUB-AREA
Sub-Area 11 lies between Seaway Drive and Muskegon Lake, north of the Core
Downtown. The most predominate land use features include the large expanse of
wetlands associated with the convergence of the three branches of the Muskegon River
with Muskegon Lake, and the B.C. Cobb Power Plant with its towering stack. Other uses
include commercial, marina facilities, and industrial facilities. Sub-Area 11 provides the
first glimpse of visual entry into the Core Downtown for visitors from the north. It is the
doorway to the Downtown.
It is the goal of the Master Plan to bring about major redevelopment throughout most of
Sub-Area 11 in a manner which integrates, yet protects, the area's unique natural
features.
Location (Area Boundaries): plant and the Muskegon River (North,
Middle, and South branches with associated
North: City Limit [Muskegon Charter wetlands). These features are easily
Township with North Muskegon observed by those traveling via Seaway
lying north of Muskegon Lake] Drive from the north. Both create positive
East: City Limit [Muskegon River impressions of the City.
floodplain and Seaway Drive-
Moses Jones Parkway] The plant's tall, and impressive, smoke
South: Seaway Drive stack is considered a well known City
West: Muskegon Lake landmark.
Neighborhood:
Jackson Hill
Land Use:
Primary: B.C. Cobb Power Plant
Muskegon River/wetlands
Vacant parcels The expanse of open water and wetlands
Secondary: Industrial Mixed Commercial formed as the Muskegon River converges
with Muskegon Lake offers an ecosystem
Area Description: supporting an array of fish, plants,
migratory waterfowl and other wildlife.
The northern one-half of the sub-area This area provides an excellent, and
consists of the B.C. Cobb (Consumer's nationally recognized, sport's fishery.
Energy) coal fired electric power generating
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City of Muskegon 11 37
Sub-Area Plans
Master Land Use Plan
Sub-Area Issues:
1. The environmental integrity of the
Muskegon River, and associated
tributaries and wetlands, are critical to
the future well-being of the City.
2. The large scrap metal/recycling
industry, as with other industries of a
heavy industrial character, are not
conducive to the positive long term
development of the sub-area.
3. Ottawa Street and Western Avenue
The southern one-half of the sub-area is exhibit the appearance of an aging,
comprised of strip commercial, industrial, non-maintained, industrial corridor.
undeveloped sites (due in large part to their Views of these systems from Seaway
wetland character), and Fisherman's Drive lend a negative image to the City
Landing (a public boat launching site). entryway.
Adjacent Land Use: 4. The area possesses several sites of
known environmental concern
North: City Limit [Muskegon Charter including the old City dump and
Township with North Muskegon wastewater treatment plant.
lying north of Muskegon Lake]
East: Muskegon River floodplain and Master Plan Recommendations:
Seaway Drive
South: Core Downtown 1. Prepare and implement sound
West: Muskegon Lake environmental policies governing
shoreline development in order to
Sub-Area (Land Use) Stability: protect the integrity of the Muskegon
River ecosystem.
The northern one-half of the area is
classified as very stable due to the presence 2. In cooperation with (non-water related)
of the B.C. Cobb Power Plant and industry along the shoreline, develop
Muskegon River. The southern one-half is and implement relocation programs
anticipated to undergo marked change over moving the operations to appropriate
the next ten to twenty years as older uses industrial sites, such as within the City's
make way for the revitalization of the complex of industrial parks.
waterfront. Pursuant to this recommendation, select
areas along the shoreline may be
suitable for industrial uses directly
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City of Muskegon 11 38
Sub-Area Plans
Master Land Use Plan
associated with the deep water port
capabilities of Muskegon Lake. Such
industries may include aggregate and
non-hazardous bulk products, large
container shipments, and other goods
utilizing the Great Lakes for product
movement. Unlike other subareas with
Muskegon Lake frontage, Sub-Area 11 is
closely linked to the region's interstate
road system.
3. Prepare a comprehensive, sub-area,
redevelopment (design) plan for Sub-
Area 11 based on the use of innovative
development techniques (i.e.,
Waterfront Overlay Zone/Planned Unit
Development). Future development
should be coordinated in a planned,
versus piecemeal, fashion.
4. As part of the above plan, investigate
the potential to create a single roadway
serving future sub-area development
versus the present system (Western
Avenue and Ottawa Street).
5. Develop the former Waste Water
Treatment site as a natural area
incorporating a system of nature trails
for aesthetic enjoyment and educational
enhancement.
6. Traverse the sub-area with the
Lakeshore Trail system providing
opportunity for a view of Muskegon
Lake and associated natural areas.
Master Land Use Plan
City of Muskegon 11 39
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 12
NORTH APPLE RESIDENTIAL SUB-AREA
Sub-Area 12 comprises the largest land mass of the 13 areas, extending from US-31 to
Seaway Drive (BR-31), between Apple Avenue (M-46) and the (northern) City limit. A
majority of the area is single-family residential, supplemented by small pockets of
industrial, several segments of strip commercial, and multiple-family. Ryerson Creek
and Fourmile Creek traverse the sub-area. These systems provide wildlife habitat,
greenspace, and help to identify the area's character.
It is the goal of the Master Plan to maintain the residential integrity of the sub-area,
while setting aside small segments suitable for commercial and industrial uses in a
highly compatible, non-threatening, fashion.
Location (Area Boundaries): schools and churches are interspersed
throughout and compliment the residential
North: City limit/BR-31 flavor of the area.
East: US-31
South: Apple Avenue (M-46) Strip commercial development of a mixed
West: Seaway Drive/BR-31 variety is found along Apple Avenue near
the US-31 and Getty Street intersections.
Neighborhoods: This development is consistent with those
of the adjoining sub-areas. Isolated
Jackson Hill commercial parcels are found along Apple
Angell throughout its length.
Marquette
Steele An industrial area is located near the
intersection of Getty Street with Seaway
Land Use: Drive (Skyline Drive). This area is situated
directly across from the Teledyne
Primary: Residential
Secondary: Industrial, commercial
Area Description:
Single-family homes are found throughout
the sub-area including many new homes
located in the Marquette neighborhood.
They range from well to poorly maintained
dwellings. Sub-Area 12 has the highest
concentration of homes experiencing
significant site deterioration. A variety of
Master Land Use Plan
City of Muskegon 11 40
Sub-Area Plans
Master Land Use Plan
Continental Plant. The industrial area is 3. Clustered commercial development
isolated/buffered by woodlands and should be confined to the US-31 and
wetlands associated with the Muskegon Getty Street intersections, consistent
River. with similar development identified in
Sub-Areas 3 and 4.
Adjacent Land Use:
4. The industrial node near Seaway Drive
North: BR-31 (Skyline Drive) and Getty should be
East: US-31 developed as a small industrial park.
South: Residential, commercial,
institutional
West: Seaway Drive (M-120)
Sub-Area Stability:
Due to the high number of homes and
home sites in need of improvement, the
general stability of the sub-area as a whole
is less than desirable. For many blocks,
advancements need to be made in
neighborhood rehabilitation efforts.
Sub-Area Issues:
1. A large number of residential blocks
exhibit poor housing and/or poor site
condition.
2. Apple Avenue is likely to experience
additional demand for increased
commercial use.
3. Apple Avenue lacks a comprehensive
streetscape program.
Master Plan Recommendations:
1. Housing rehabilitation efforts should be
focused in Sub-Area 12.
2. A comprehensive streetscape program
should be prepared and implemented
for Apple Avenue.
Master Land Use Plan
City of Muskegon 11 41
Sub-Area Plans
Master Land Use Plan
MASTER PLAN SUB-AREA 13
MUSKEGON COMMUNITY COLLEGE SUB-AREA
In addition to Muskegon Community College, Sub-Area 13 hosts General Hospital, a
mixture of high density apartment complexes, a small area of single-family homes, a
public golf course, and a variety of institutional and commercial uses. Similar to Sub-
Area 1, Sub-Area 13 is separated from the main body of the City by US-31. Except for
linkage to the City on its westerly side, the sub-area is surrounded by Muskegon
Charter Township.
The southwest corner of the sub-area abuts the Apple Avenue (M-46)/US-31
Intersection. In this general location, Apple Avenue experiences a high degree of retail
and fast food development, including the presence of local and national facilities. This
general area represents the primary (core) retail center for Muskegon Charter Township
and additional retail expansion is anticipated. Interestingly, the above intersection
coincides with Muskegon County's center of population.
Notwithstanding Apple Avenue's existing commercial development and the roadway's
importance to the Township for additional business use, it is the goal of the Muskegon
Master Plan to retain the institutional and multiple-family character of Sub-Area 14
within the confines of the City.
Location (Area Boundaries): systems form the western and southern
perimeters of the area, respectively. The
North: City Limit and Muskegon Charter intersection of the two systems also serves
Township as the City's primary entry for those
East: City Limit and Muskegon Charter traveling from the north or east. Both are
Township important to the efficient movement of
South: Apple Avenue (M-46) college bound and apartment traffic.
West: US-31
Muskegon Community College (MCC) and
Land Use: the University Park Golf Course lie north of
Marquette Avenue, comprising roughly
Primary: Institutional one-third (1/3) of the sub-area's land mass.
Multiple-family The Muskegon Center for Higher
Secondary: Single-family Education, a consortium of colleges and
Regional commercial universities including MCC, Ferris State
University, Grand Valley State University,
Area Description: and Western Michigan University, is
located on the MCC Campus.
Access to the sub-area is quickly gained via
US-31 or Apple Avenue (M-46). These
Master Land Use Plan
City of Muskegon 11 42
Sub-Area Plans
Master Land Use Plan
An additional one-third of the area is Downtown, will further strengthen this
comprised of medium to high density, area.
multiple-family, apartments. These range
from market rate to rent assisted units. Sub-Area Issues:
The remaining one-third is comprised of 1. It is anticipated the Muskegon County
General Hospital, physician offices, the Health Department, located at the
Muskegon County Health Department corner of Harvey and Oak, will relocate
office building, the former State Regional its operations to the downtown campus
Center (for the developmentally disabled), of Baker College (now owned by
small nodes of single-family residential Muskegon County) resulting in the
home sites, and a variety of commercial vacancy and availability of this large
development. Thirteen restaurants are office complex.
located on M-46 within close proximity to
the US-31/M-46 Intersection, although not 2. While recent improvements have been
all are in Sub-Area 13. All of the major fast made to the US-31/M-46 Intersection,
food chains are represented, as well as a traffic congestion remains pronounced
number of family-style restaurants. along M-46 throughout the sub-area
and in adjacent Sub-Area 12. Of
particular concern are the many left
turns at non-signalized intersections and
by traffic exiting businesses along the
roadway.
3. Due to their interior locations,
combined with a limited number of
access points along M-46 and limited
signage, facilities such as MCC, the
Center for Higher Education, General
Hospital, and the like may be difficult
to locate by those unfamiliar with the
Sub-Area (Land Use) Stability: area. This problem will become more
pronounced as Baker relocates to the
The presence of Muskegon Community area.
College, recent expansion of the college to
support the Center for Higher Education, 4. Apple Avenue lacks a consistent access,
General Hospital, and predominately well streetscape, and signage program. A
maintained apartment development result similar situation exists in adjoining
in a high degree of stability for Sub-Area 13. Muskegon Charter Township.
Additionally, Baker College anticipates
relocating its Downtown campus to the site Master Plan Recommendations:
of the vacant Regional Center during 1997.
That move, while impacting the City's 1. To enhance the marketability and
Master Land Use Plan
City of Muskegon 11 43
Sub-Area Plans
Master Land Use Plan
ongoing occupancy of the County and like establishments. The current
Health Department Office Building, uses are consistent with the above.
provide, through appropriate zoning,
opportunity for both public and private 4. General Hospital should be supported
use of the facility for office purposes. through the development of
professional offices on, or adjacent to,
2. Working in concert with Muskegon the hospital campus. The master plan
Charter Township, prepare an Apple recognizes the potential need for such
Avenue Corridor development program development.
addressing access control, streetscape,
and signage standards. Within the City, 5. College-related directional signs should
the program should include the full be placed on Apple, near Shonat and
commercial segment of Apple Quarterline.
traversing Sub-Area 12, extending to
approximately Roberts Street in Sub-
Area 13. Within Muskegon Charter
Township, we recommend the study
extend to at least the Sheridan
Road/Apple Intersection area.
3. With the growth of nearby Apple
Avenue as a prime commercial
corridor, there appears to be no reason
to foster the interior (northerly)
development of Sub-Area 13 properties
for retail, restaurant, or general service
use. Therefore, such development
should be restricted to existing locations
along Apple Avenue.
The few internal commercial
establishments presently located along
Marquette Avenue should be restricted
to existing sites and limited, through the
City's zoning ordinance, to uses fully
complimentary with the surrounding
residential and institutional setting.
These would include small
convenience stores selling groceries
and sundry items, ice cream shop,
restaurant or deli with indoor seating
[no drive-through], family video rental,
Master Land Use Plan
City of Muskegon 11 44