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CITY OF MUSKEGON
PLANNING COMMISSION
SPECIAL MEETING
DATE OF MEETING: Thursday, October 4, 2018
TIME OF MEETING: 4:00 p.m.
PLACE OF MEETING: Commission Chambers, First Floor, Muskegon City Hall
AGENDA
I. Roll Call
II. Public Hearings
III. New Business
IV. Old Business
A. Case 2018-26: Staff-initiated request to rezone 372, 380, 388, 394, 398, 406, and 414
Houston Ave; 1246, 1252 and 1258 5th St; and 1148 6th St from R-3, High Density Single
Family Residential to Form Based Code, Urban Residential.
V. Other
VI. Adjourn
AMERICAN DISABILITY ACT POLICY FOR ACCESS TO OPEN MEETING OF THE
CITY COMMISSION AND ANY OF ITS COMMITTEES OR SUBCOMMITTEES
The City of Muskegon will provide necessary reasonable auxiliary aids and services, such as signers for the hearing impaired and audio tapes
of printed materials being considered at the meeting, to individuals with disabilities who want to attend the meeting, upon twenty-four hour
notice to the City of Muskegon. Individuals with disabilities requiring auxiliary aids or services should contact the City of Muskegon by
writing or calling the following:
Ann Meisch, City Clerk
933 Terrace Street
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STAFF REPORT
October 4, 2018
Case 2018-26: Staff-initiated request to rezone 372, 380, 388, 394, 398, 406, and 414 Houston Ave; 1246,
1252 and 1258 5th St; and 1148 6th St from R-3, High Density Single Family Residential to Form Based
Code, Urban Residential.
SUMMARY
1. Staff is proposing the following rezonings from dense single-family residential to Form Based Code,
Urban Residential. This would allow for more building types; including rowhouses, duplexes and
small multi-plexes (3-6) units.
2. Community EnCompass would like to build a new four-unit home on the vacant lot at 380 Houston
Ave. This lot previously held a four-unit home before it was destroyed in a fire. Half of this block is
already zoned FBC, UR and hosts several large homes. This block could adequately support larger
homes with the large alley and lots that could support multiple cars parking in the rear.
3. Community EnCompass also has developed plans to build attached homes on the three lots at 1246-
1258 5th St, which are owned by the City and County.
4. Please see the enclosed sections of the Form Based Code, including the Urban Residential Context
Area and the associated housing types that are allowed.
5. Please see the enclosed letter of support (for the 1246,1252 and 1258 5th St properties) from the
Nelson Neighborhood Improvement Association.
6. This request was tabled at the August 16 Planning Commission meeting. Staff delivered a
presentation at the September 19 Nelson Neighborhood Improvement Association meeting. Many in
attendance were not supportive of additional attached units in the neighborhood.
NELSON NEIGHBORHOOD HOUSING STATS
Below is an overview of the housing types in Nelson Neighborhood, according to the 2015 Target
Marker Analysis. These are measured by units, not individual buildings. Example: 350 duplex units
would indicate there are 150 duplex structures.
Rent/Own
Renter Occupied: 2,058 (53%)
Owner Occupied: 1,792 (46.5%)
Housing Units by Total Units in the Structure
Single Family, detached: 947 (46.7%)
Duplex: 350 (17.3%)
3-4 Units: 204 (10%)
5-9 Units: 67 (3.3%)
10-19 Units: 18 (0.9%)
20-49 Units: 74 (3.6%)
50 or more: 314 (15.5%)
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HOUSING STATS MAP
Green = Single-Family Rental Blue = Duplex Purple = Small Multi-Plex Yellow= Large Multi-Plex
This map was prepared in 2017 with statistics gathered by staff from analyzing assessment records in BS&A
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1246, 1252, 1258 5th St
380 Houston Ave (Community EnCompass Property)
Existing Homes in the same block as 380 Houston Ave
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Zoning Map
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Aerial Map (Please note the map is outdated. All parcels at 1246, 1252 and 1258 5th St are now vacant)
Size Standards by Housing Type
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Community EnCompass Proposals
Below are renderings for the two Community EnCompass projects. Please keep in mind that this is not a site
plan review and other housing types could be placed on these lots in the event the rezonings are approved.
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STAFF RECOMMENDATION
Staff recommends approval of the request because it follows the recommendations of all of the recent
planning efforts, including the Master Plan, Imagine Muskegon and the Downtown and Lakeshore
Redevelopment Plan, as noted below. Also, the housing types allowed in the Form Based Code match what
is recommended in the Target Market Analysis. Explanations of how this request relates to these
plans/studies are in red.
1997 Master Land Use Plan
Zoning regulations associated with the conversion of single-family homes to multiple-family use
should contain standards ensuring that converted dwellings have sufficient on-site parking, suitable
locations for trash receptacles which are customarily stored out of doors, sufficient yard/play areas,
and exterior façade controls.
Form Based Code requires duplexes and small multiplexes to be built to certain standards, so the
chance of converting an existing single-family home to multi-family is extremely low. Form Based
Code will also require all homes to be built on appropriate sized lots (see the “Size Standards by
Housing Type” chart). Form Based Code also has more stringent design standards, which match the
design types of existing homes in the neighborhood. The code also encourages alley usage for cars
and trash receptacles.
Promote ongoing housing in-fill programs. As part of the in-fill effort, work with area builders to
determine possible joint public/private partnerships for the construction of affordable housing.
Form Based Code allows for a wide selection of unit sizes and price points. It will also ensure that
infill development is built to the scale of the existing neighborhood.
2003 Imagine Muskegon Plan
Downtown should be designed to accommodate various age groups, socio-economic backgrounds,
and cultural and racial heritage.
The 2015 Target Market Analysis states that a majority of these types of target markets are looking to
locate in attached units, which could be achieved through Form Based Code. Single-family housing,
which limits housing options, is the only legal conforming use is R-1, R-2 and R-3 districts, which is
the majority of Nelson neighborhood.
A mix of housing opportunities that provide choices to a wide range of people, including high-quality,
affordable apartments, condominiums, cottages, and single-family homes.
Single-family zoning dominates the Nelson Neighborhood. Large apartment buildings are starting to
become popular downtown. However, we have a lack of “missing middle” housing, which can be
achieved through Form Based Code.
2008 Downtown and Lakeshore Redevelopment Plan
Context sensitive architecture will reflect the character of existing buildings.
Amend the zoning ordinance to provide standards regulating architecture, site utilization,
landscaping, window coverage, pedestrian amenities, and building form, so new buildings integrate
well with existing structures.
Form Based Code requires stringent design guidelines that were created to fit in with the existing
scale and architecture of the neighborhood.
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2015 Target Market Analysis
By a conservative estimate, Nelson neighborhood could support 110 attached units per year over the
next 5 years. Compared to only 8 to 10 single family homes.
Almost 70% of the target markets identified are seeking attached units.
We see that there is a demand for attached units, which could be met through Form Based Code. There
are currently only 23 vacant lots in the Nelson neighborhood that would allow for “missing middle”
housing types. See map below.
During the workshops for the creation of the Form Based Code, attendees were asked to prioritize the
following goals. The top two selected relate to the current rezoning request.
1. Facilitating higher density development/adding new residents to the downtown
2. Fostering economic development/building the tax base for the city.
3. Balancing transportation modes/enhancing choices (i.e. walk, bike, transit, vehicle)
4. Providing access to businesses, community attractions, and schools
5. Supporting transit ridership through available parking (park n’ ride)
6. Providing ample and affordable parking
DELIBERATION
I move that the request to rezone 372, 380, 388, 394, 398, 406, and 414 Houston Ave; 1246, 1252 and 1258
5th St; and 1148 6th St from R-3, High Density Single Family Residential to Form Based Code, Urban
Residential be recommended to the City Commission for (approval/denial).
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