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CITY OF MUSKEGON
PLANNING COMMISSION MEETING
July 10, 2025 @ 4:00 PM
MUSKEGON CITY COMMISSION CHAMBERS
933 TERRACE STREET, MUSKEGON, MI 49440
☐ CALL TO ORDER:
☐ ROLL CALL:
☐ APPROVAL OF MINUTES:
A. Approval of the minutes from the regular meeting of June 12, 2025.
Planning
☐ PUBLIC HEARINGS:
A. Case 2025-25: Request to amend Section 2331 of the zoning ordinance
to allow marihuana retailers and provisioning centers with approved
drive-thru access to remain open for drive-thru sales only between 12
a.m. and 2 a.m., by The Grassy Knoll. Planning
B. Case 2025-26: Request to amend Section 2005.05 of the Form-Based
Code to allow churches as a permitted use in civic buildings in the Form-
Based Code, Downtown context area, by Century Club Development,
LLC. Planning
C. Case 2025-27: Request for a special use permit to expand a non-
conforming structure by no more than 30%, at 3211 Edgewater Street.
Planning
D. Case 2025-28: This case has been removed. Planning
E. Case 2025-29: Staff-initiated request to rezone the following properties:
1181 and 1200 Ransom St; 1176, 1196, 1208, 1222, 1250, 1259, 1275, 1299,
1302, 1309, 1314, 1319, 1322, 1334, 1337, 1342, 1347, 1365, 1377, 1391,
1410, 1415, 1422, 1435, 1440, 1443, 1470, 1502, 1516, 1532, 1542, 1562,
1576, 1586, 1596, 1604, 1624, 1625, 1632, 1633, 1640, 1643, 1649, 1652,
1659, 1660, 1669, 1670, 1691, 1705, 1715, 1725, 1735, 1765, and 1781 Peck
St.; 19 Irwin Ave, 22 E. Southern Ave, 23 Strong Ave, 24 Morrall Ave, and
32 Iona Ave, from RM-1, Low Density Multiple-Family Residential to Form
Based Code, Neighborhood Edge; 1765 Peck St, 1781 Peck St, Parcel #
61-24-205-465-0006-10, and 1778 Sanford St, from B4, General Business,
to Form Based Code, Neighborhood Core; 180 E. Laketon Ave and 1752
Page 1 of 3
Page 1 of 41
Peck St from B-4, General Business and MC, Medical Care, to Form
Based Code, Neighborhood Edge; and 36 Catherine Ave, 1366, 1378,
1386, 1394 and 1469 Peck St from B-1, Limited Business, to Form Based
Code, Neighborhood Edge. Planning
F. Case 2025-30: Staff-initiated request to amend the zoning ordinance to
allow marinas as a permitted use in Form-Based Code, Lakeside Mixed
Residential districts. Planning
G. Case 2025-31: Staff-initiated request to rezone 3172 and 3182 Edgewater
St; 2976, 2984, 2986, 3002, 3084, 3088, 3092, and 3094 Lakeshore Dr, from
WM, Waterfront Marine to Form Based Code, Lakeside Mixed Residential.
Planning
☐ UNFINISHED BUSINESS:
☐ NEW BUSINESS:
☐ ANY OTHER BUSINESS:
☐ GENERAL PUBLIC COMMENT:
► Reminder: Individuals who would like to address the City Commission shall do the following: ►Fill out a
request to speak form attached to the agenda or located in the back of the room. ► Submit the form to
the City Clerk. ► Be recognized by the Chair. ► Step forward to the microphone. ► State name. ►Limit of
3 minutes to address the Commission.
☐ ADJOURNMENT:
AMERICAN DISABILITY ACT POLICY FOR ACCESS TO OPEN MEETINGS OF THE CITY OF
MUSKEGON AND ANY OF ITS COMMITTEES OR SUBCOMMITTEES
To give comment on a live-streamed meeting the city will provide a call-in telephone
number to the public to be able to call and give comment. For a public meeting that is
not live-streamed, and which a citizen would like to watch and give comment, they
must contact the City Clerk’s Office with at least a two-business day notice. The
participant will then receive a zoom link which will allow them to watch live and give
comment. Contact information is below. For more details, please visit:
www.shorelinecity.com
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 with twenty-four (24) hours’ notice to the City of Muskegon. Individuals with
disabilities requiring auxiliary aids or services should contact the City of Muskegon by
writing or by calling the following:
Ann Marie Meisch, MMC. City Clerk. 933 Terrace St. Muskegon, MI 49440. (231)724-6705.
clerk@shorelinecity.com
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Page 2 of 41
Page 3 of 3
Page 3 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-25: Request to amend Section
2331 of the zoning ordinance to allow marihuana
retailers and provisioning centers with approved
drive-thru access to remain open for drive-thru
sales only between 12 a.m. and 2 a.m., by The
Grassy Knoll.
Submitted by: Mike Franzak, Planning Director Department: Planning
Brief Summary:
Request to amend Section 2331 of the zoning ordinance to allow marihuana retailers and
provisioning centers with approved drive-thru access to remain open for drive-thru sales only
between 12 a.m. and 2 a.m., by The Grassy Knoll.
Detailed Summary & Background:
In April 2024, the applicant requested to amend the ordinance to be able to operate 24 hours per
day. The ordinance that was proposed was not well written and would have eliminated any hours of
operation for all other retail stores. The request was ultimately denied. This request is much more well
written and should not cause any unintentional hardships for other marihuana retailers.
There are currently three approved drive-through locations within the city. These are located at The
Bodega (885 E Apple Ave), The Grassy Knoll (2125 Lemuel St), and Greencraft (551 Young Ave).
Current Ordinance Excerpt
Section 2331: Marihuana Facilities Overlay District
3. Provisioning Centers, Retailers, Microbusinesses and Designated Consumption Establishments may
operate between the hours of 8 am and 12 am.
Proposed Ordinance (additions italicized)
Section 2331: Marihuana Facilities Overlay District
3. Provisioning Centers, Retailers, Microbusinesses and Designated Consumption Establishments may
operate between the hours of 8 am and 12 am. daily; however, Provisioning Centers and Retailers
with approved drive-thru access may remain open for drive-thru sales only between the hours of 12
am and 2 am, provided all other applicable local, state, and safety regulations are met.
Current Drive-Thru Regulations
Section 2331: Marihuana Facilities Overlay District
3.d. Curbside/Drive-Thru. Curbside delivery is allowed at all retail sale locations with an approved site
plan that does not impede traffic or pedestrian safety. Drive-thru's are allowed as a special use
permitted under the following conditions:
i. The underlying zoning designation must be B-2, B-4, MC, I-1, I-2 or any Form Based Code
designation/building type that allows for drive-thru businesses.
Page 4 of 41
ii. Drive-thru windows must be located on private property. Streets and alleys may only be used for
the movement of traffic and may not be used for drive-thru vehicular stacking.
iii. A traffic study must be performed showing the anticipated number of stacking spaces and where
they would be located on site.
Staff Recommendation
Staff do not have a recommendation on whether marihuana establishments should be open longer.
However, the proposed ordinance is well written and could be incorporated into the ordinance
properly. Staff do have some concerns about the applicant's ability to follow the established
guidelines. Staff have had discussions with the applicant for the past couple of years about their
desire to host temporary campground events on-site during special events around the city. That use
type is not allowed in their zoning district (I-1) and would need an amendment for them to proceed.
Staff have discovered that a beach event in August is advertising overflow camping and The Grassy
Knoll.
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
2027 Goal 2: Economic Development Housing and Business
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move that the request to amend Section 2331 of the zoning ordinance to allow marihuana retailers
and provisioning centers with approved drive-thru access to remain open for drive-thru sales only
between 12 a.m. and 2 a.m., be recommended to the City Commission for (approval/denial).
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 5 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-26: Request to amend Section
2005.05 of the Form-Based Code to allow
churches as a permitted use in civic buildings in
the Form-Based Code, Downtown context area,
by Century Club Development, LLC.
Submitted by: Mike Franzak, Planning Director Department: Planning
Brief Summary:
Request to amend Section 2005.05 of the Form-Based Code to allow churches as a permitted use in
civic buildings in the Form-Based Code, Downtown context area, by Century Club Development,
LLC.
Detailed Summary & Background:
Churches are not a permitted use in the Form Based Code, Downtown (FBC-DT) context areas. There
are two building types allowed in the FBC-DT context areas - Mixed-use and Civic buildings. Churches
are allowed in the other FBC context areas, but only in civic buildings. Other uses allowed in civic
buildings include galleries and train stations. This request is to amend the ordinance to allow churches
in civic building types in the FBC, DT context area.
Staff believe that the Century Club can be defined as a civic building. The building was dedicated in
January 1889 for the Muskegon Club and became the Century Club in January 1901. Historically, the
building served as a social club formed by Muskegon’s business leaders; some early Club presidents
included business/community leaders Charles Hackley, John Torrent, Lyman Mason, and A. V. Mann.
The Club included, at one point, over 550 total members and was considered the center of business
life of the community. Closed in 1991, retail activity in the building was introduced in the mid-2000s
following the demolition of the Muskegon Mall.
Staff Recommendation
Staff do not have a recommendation on whether churches should be allowed in the FBC-DT context
area. There currently are not any churches located within any of these designated properties, so it
would not bring any non-conforming churches into conforming status. There are pros and cons to the
request. The pro is that it would activate a specific building that has had a tough time functioning as
retail. The cons would include the elimination of property taxes and potentially reducing the number
of days the buildings would be used, reducing foot traffic and activity in the downtown.
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
Page 6 of 41
2027 Goal 3: Community Connection
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move that the request to amend Section 2005.05 of the Form-Based Code to allow churches as a
permitted use in civic buildings in the Form-Based Code, Downtown context area, be recommended
to the City Commission for (approval/denial).
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 7 of 41
Page 8 of 41
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Page 9 of 41
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CONTEXT AREAS AND USE SECTION 2005
2005.05 DOWNTOWN (DT) CONTEXT AREA
6.0 PERMITTED USES
DOWNTOWN (DT) CONTEXT AREA PERMITTED USES
DETACHED HOUSE
CARRIAGE HOUSE
LARGE MULTI-PLEX
SMALL MULTI-PLEX
COTTAGE RETAIL
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
LIVE / WORK
ROWHOUSE
MIXED USE
Specific Use
DUPLEX
RETAIL
CIVIC
FLEX
Accessory buildings and uses P
Amusement and recreation facility P
Auto service station
Bank P
Business school/private or public school/higher ed. S
Church P
Club, lodge, hall
Gallery/museum P P
Hotel/motel P
Indoor theater/live music concert hall P
Light manufacturing
Machine shop
Micro brewery, distillery, winery under 2500 barrels P
Micro brewery, distillery, winery over 2500 barrels P
Multi-family P*
Office P
Outdoor recreation
Outdoor theater
Parking structure S
Personal service P
Railway terminal P
Research and development
Restaurant, cocktail lounge, brewpub P
Retail P
Shipping, port related activity
P = Permitted Use
P* = Permitted Use on floors two and above
P# = Permitted Use on first floor only
S = Special Land Use (refer to Section 2002.02)
Active uses per the Context Area Map (2005.02) include retail, restaurant/cocktail lounge/brewpub, personal service, and micro brewery/distillery/winery.
Blank cell = Use not permitted in this Context Area
Shaded areas represent Building Types that are not permitted in this Context Area.
5.10 DOWNTOWN FORM BASED CODE CITY OF MUSKEGON
Page 11 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-27: Request for a special use
permit to expand a non-conforming structure by
no more than 30%, at 3211 Edgewater Street.
Submitted by: Mike Franzak, Planning Director Department: Planning
Brief Summary:
Request for a special use permit to expand a non-conforming structure by no more than 30%, at 3211
Edgewater Street.
Detailed Summary & Background:
The applicant would like to finish the attic space in the house and add a dormer. The house is
considered non-conforming because it does not meet the required five-foot side setback on the
west side of the property. Non-conforming structures may be increased up to 30% of the existing size
with the issuance of a special use permit. The house currently measures 1,282 sf., which would allow
up to a 384 sf addition. The proposed addition measures 350 sf. Notice was sent to everyone within
300 feet of the property. At the time of this writing, staff had not received any comments from the
public.
Planning Exercise
Prior to authorization of any Special Land Use, the Planning Commission shall give due regard to the
nature of all adjacent uses and structures. It shall determine the consistency with the adjacent use
and development. In addition, the Planning Commission shall find that the proposed use or activity
would not be offensive, or a nuisance, by reason of increased traffic, noise, vibration, or light. Further,
the Planning Commission shall find that adequate water and sewer infrastructure exists or will be
constructed to service the Special Land Use or activity.
Staff will answer the following questions and ask the Planning Commissioners if they disagree with
each statement at the meeting (Staff answers in italics).
Would the proposed expansion be considered offensive, or a nuisance, because of any of the
following:
1. Increased traffic - No
2. Increased noise - No
3. Increased vibration - No
4. Increased light - No
Does adequate water and sewer infrastructure exist or will it be constructed to service the Special
Land Use or activity? Yes, it currently exists.
Goal/Focus Area/Action Item Addressed:
Page 12 of 41
Key Focus Areas:
Goal/Action Item:
2027 Goal 2: Economic Development Housing and Business
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move to approve the request for a special use permit to expand a non-conforming structure by no
more than 30%, at 3211 Edgewater Street based on the findings of facts in the staff exercise located
in the staff report.
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 13 of 41
Page 14 of 41
Total Square Footage of Building: 1,282 sq ft
Proposed Addition: 14x25, 350 sq ft
30% of Total Square Footage: 384.6 sq ft maximum
Page 15 of 41
Page 16 of 41
Page 17 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-28: This case has been removed.
Submitted by: Department: Planning
Brief Summary:
Detailed Summary & Background:
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
Amount Requested: Budgeted Item:
Yes No N/A
Fund(s) or Account(s): Budget Amendment Needed:
Yes No N/A
Recommended Motion:
Approvals: Guest(s) Invited / Presenting:
Immediate Division
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 18 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-29: Staff-initiated request to
rezone the following properties: 1181 and 1200
Ransom St; 1176, 1196, 1208, 1222, 1250, 1259,
1275, 1299, 1302, 1309, 1314, 1319, 1322, 1334,
1337, 1342, 1347, 1365, 1377, 1391, 1410, 1415,
1422, 1435, 1440, 1443, 1470, 1502, 1516, 1532,
1542, 1562, 1576, 1586, 1596, 1604, 1624, 1625,
1632, 1633, 1640, 1643, 1649, 1652, 1659, 1660,
1669, 1670, 1691, 1705, 1715, 1725, 1735, Peck St.;
19 Irwin Ave, 22 E. Southern Ave, 23 Strong Ave,
24 Morrall Ave, and 32 Iona Ave, from RM-1, Low
Density Multiple-Family Residential to Form Based
Code, Neighborhood Edge; 1765 Peck St, 1781
Peck St, Parcel # 61-24-205-465-0006-10, and 1778
Sanford St, from B4, General Business, to Form
Based Code, Neighborhood Core; 180 E. Laketon
Ave and 1752 Peck St from B-4, General Business
and MC, Medical Care, to Form Based Code,
Neighborhood Edge; and 36 Catherine Ave,
1366, 1378, 1386, 1394 and 1469 Peck St from B-1,
Limited Business, to Form Based Code,
Neighborhood Edge.
Submitted by: Mike Franzak, Planning Director Department: Planning
Brief Summary:
Staff-initiated request to rezone the following properties: 1181 and 1200 Ransom St; 1176, 1196, 1208,
1222, 1250, 1259, 1275, 1299, 1302, 1309, 1314, 1319, 1322, 1334, 1337, 1342, 1347, 1365, 1377, 1391,
1410, 1415, 1422, 1435, 1440, 1443, 1470, 1502, 1516, 1532, 1542, 1562, 1576, 1586, 1596, 1604, 1624,
1625, 1632, 1633, 1640, 1643, 1649, 1652, 1659, 1660, 1669, 1670, 1691, 1705, 1715, 1725, 1735 Peck St.;
19 Irwin Ave, 22 E. Southern Ave, 23 Strong Ave, 24 Morrall Ave, and 32 Iona Ave, from RM-1, Low
Density Multiple-Family Residential to Form Based Code, Neighborhood Edge; 1765 Peck St, 1781
Peck St, Parcel # 61-24-205-465-0006-10, and 1778 Sanford St, from B4, General Business, to Form
Based Code, Neighborhood Core; 180 E. Laketon Ave and 1752 Peck St from B-4, General Business
and MC, Medical Care, to Form Based Code, Neighborhood Edge; and 36 Catherine Ave, 1366,
1378, 1386, 1394 and 1469 Peck St from B-1, Limited Business, to Form Based Code, Neighborhood
Edge.
Detailed Summary & Background:
This request is being brought forward to properly zone these properties to a district where they will be
considered legally conforming. With the current RM-1 zoning, almost all the properties are considered
legally non-conforming (grandfathered). This is mostly because of the area and bulk requirements of
Page 19 of 41
the RM-1 district (Please see attachments). Almost none of the properties meet the required 125 feet
of lot width, maximum building width or side setbacks.
Staff are proposing to rezone four properties (1781 Peck, 1765 Peck, 1778 Sanford, Parcel #24-205-
465-0006-10) to Form Based Code, Neighborhood Core because these are larger parcels near the
Laketon Ave corridor. This zoning designation would allow commercial buildings up to five stories tall,
compared to the three stories allowed in Form Based Code, Neighborhood Edge.
Staff are proposing to rezone all the other mentioned properties to Form Based Code, Neighborhood
Edge. This would help bring the properties into legal conforming status, while still keeping the single-
family and duplex buildings to two stories. Mixed-use and commercial buildings would be allowed up
to three stories tall.
A focus group was held in May with the properties. There were 12 participants in the focus group, all
of whom agreed that these rezoning would be in their best interest, and they agreed to support the
initiative.
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
2027 Goal 2: Economic Development Housing and Business
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move that the request to rezone the properties as presented is recommended to the City
Commission for approval.
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 20 of 41
URBAN RESIDENTIAL NEIGHBORHOOD RESIDENTIAL LIMITED BUSINESS OPEN SPACE RECREATION
NEIGHBORHOOD EDGE LOW DENSITY MULTI-FAMILY MEDICAL CARE 1576 PARCEL TO BE REZONED
1133 1129
1130 1129 89
1140
1135 1134 1140
1141
1138 1132
1137
80 1143
1148
1144
1152
MONROE AVENUE
UE
1150 1149
32 126 N
VE
1154 1160 55
1164
139 87 79
1161
E A
AR
1160 1163 1160
1164 1167
1163
L AW
1168
D E
PECK STREET
1173 1170 119
1174 1173 1165
1176
1178
1179
1181 1176 1182
1182 1184 1181
1185
1186 74 1183
1192 1189 1200
1192 1191
1187 1194
92
1189
MERRILL AVENUE 1196
1193
1197
1201 77
1209 1208 31 25 1201
SANFORD STREET
1205
1218 1205
1221 1218
1218 1222
1225 112
1226 1219
1229
1231 1223
1232 98
17 1227
0
1240 1239 11 1244
1241 105
1237
R
1247
1172 97
1248 1249
1245 1251
1243
1255
1253 1260 1258 1262
1259 1259 1250 52
1257 34
RA
44
1259 1268
STRONG AVENUE 1261
NS
38
32 53
1274
OM
1267
114 29 23 45 124
1280
AV
116
39 1275 1284
E
1275
NU
1292 31
119
1296 1285
E
19 115
1299
1302 1302
1299
AR
1302
1305 74
1312 1309
TH
1316 1303 1312
66
UR
1311 81
1316 1319 1318
1314 58 75 1311
ST
1319 1320
RE
67 1315 1326
1322
ET
1332 1327
1337 1321
34
1338 1336 1338
26 1327
1334 22
1350
1342 106
1356 1347 104
1337
21 1354 94
1349
17 125
115
MORRALL AVENUE 13 1364
84
5 1357
1366
27 1365
115 1370
1366
1376
54
1380 1377 1378
50
46 1379
1386
1391 1391 36
1394
1388
62
1403
1415
1413 19 29 41
1412 1410 59 69 77 83 91 109
130
1418
1422 1423 1420
1423
1422
1428
1433
1434 1437 1432
1436
1435 1440
1441 1440
1440
1443 1443
1449 1450 1448
1449
1452
1461 1460 1459 1458
1469
1470 1465 1464
1467 1468 1468
1472
1471
30 38 58 72 80
112
GRAND AVENUE
1497
37
CLINTON STREET
1500 83
111
1502 1497 137
1507
JIROCH STREET
1503
1508
1515
1515 1510
1500 1519 1516
1521 1522 1518
1516
1523 1526
1528
1533 1532 1533
1534 1536
80
1542 1541 1537
1542
1541 1542 1543 1544
22 1541 84 122 130
R
SOUTHERN AVENUE
EXISTING ZONING (NORTH) Page 21 of 41
URBAN RESIDENTIAL NEIGHBORHOOD RESIDENTIAL LIMITED BUSINESS OPEN SPACE RECREATION
NEIGHBORHOOD EDGE LOW DENSITY MULTI-FAMILY MEDICAL CARE 1576 PARCEL TO BE REZONED
1133 1129
1130 1129 89
1140
1135 1134 1140
1141
1138 1132
1137
80 1143
1148
1144
1152
MONROE AVENUE
UE
1150 1149
32 126 N
VE
1154 1160 55
1164
139 87 79
1161
E A
AR
1160 1163 1160
1164 1167
1163
L AW
1168
D E
PECK STREET
1173 1170 119
1174 1173 1165
1176
1178
1179
1181 1176 1182
1182 1184 1181
1185
1186 74 1183
1192 1189 1200
1192 1191
1187 1194
92
1189
MERRILL AVENUE 1196
1193
1197
1201 77
1209 1208 31 25 1201
SANFORD STREET
1205
1218 1205
1221 1218
1218 1222
1225 112
1226 1219
1229
1231 1223
1232 98
0 17 1227
1240 1239 11 1244 105
1241 R
1237 1247
1172 97
1251 1248 1249
1245 1243
1255
1253 1260 1258 1262
1259 1259 1250 52
1257 34
RA
44
1259 1268
STRONG AVENUE 1261
NS
38
32 53
1274
OM
1267
114 29 23 45 124
1280
AV
116
39 1275 1284
E
1275
NU
1292 31
119
1296 1285
E
19 115
1299
1302 1302
1299
AR
1302
1305 74
1312 1309
TH
1316 1303 1312
66
UR
1311 81
1316 1319 1318
1314 58 75 1311
ST
1319 1320
RE
67 1315 1326
1322
ET
1332 1327
1337 1321
34
1338 1336 1338
26 1327
1334 22
1350
1342 106
1356 1347 104
1337
21 1354 94
1349
17
125
115
MORRALL AVENUE 13 1364
84
5 1357
1366
27 1365
115 1370
1366
1376
54
1380 1377 1378
50
46 1379
1386
1391 1391 36
1394
1388
62
1403
1415
1413 19 29 41
1412 1410 59 69 77 83 91 109
130
1418
1422 1423 1420
1423
1422
1428
1433
1434 1437 1432
1436
1435 1440
1441 1440
1440
1443 1443
1449 1450 1448
1449
1452
1461 1460 1459 1458
1469
1470 1465 1464
1467 1468 1468
1472
1471
30 38 58 72 80
112
GRAND AVENUE
1497
37
CLINTON STREET
1500 83
111
1502 1497 137
1507
JIROCH STREET
1503
1508
1515
1515 1510
1500 1519 1516
1521 1522 1518
1516
1523 1526
1528
1533 1532 1533
1534 1536
80
1542 1541 1537
1542
1541 1542 1543 1544
22 1541
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R
SOUTHERN AVENUE
PROPOSED ZONING (NORTH) Page 22 of 41
URBAN RESIDENTIAL NEIGHBORHOOD RESIDENTIAL GENERAL BUSINESS OPEN SPACE RECREATION
NEIGHBORHOOD EDGE LOW DENSITY MULTI-FAMILY MEDICAL CARE 1576 PARCEL TO BE REZONED
22 1541 1543
84 122 130
SOUTHERN AVENUE
1563 85 31
71 1562 1561 27
JEFFERSON STREET 1562 1561
JIROCH ST (VACATED)
1572 1568 1567
1573 1569
SANFORD STREET
PECK STREET
1579
1578 1575 1576
1583 1577
1586
1587 1586 1587
1593 1586
1593 1593
1596
1596
1605 1597
1604 1605
1604 1603 1604
32 28 32
1550
1627 1624 77 1621 43 35 1625
FOREST AVENUE (VACATED)
1624
35
1631
1632 1633 1632 1633
1641 1642
1641 1640 1643 1640
1641
1648
1652 1651
1649
1652 1653
1665 1658
1659
1668 1660 1661
82 74 1669
66 1670 1669
34
63 1675
1693 73 1690
1694
CLINTON ST (VACATED)
1691
1699 1698
1701
1710 1709 1706 1705
1715
1713
1715
1720
1721 1722
1727 1725
1728
90 1734 1735
64
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LARCH AVENUE LARCH AVENUE (VACATED)
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CLINTON STREET
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31 39
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LARCH CT. (VAC.)
JIROCH ST. (VAC.)
1763 1761
1772 1771
1771 1768
1777 1778 0
1782 1781 1774
1779
1783
1790
180
1811
1810
65
LAKETON AVENUE
43
1817 1816 137
1801 109
1822
1823
1815
1828 1825
1822 1821
1836
1830 1829
1842 1841
1839 1838
1848 1846 1837
1847 1800
1854 1853 1845
1846
OSR
1853
1860 1859
1872 1871 1872 1871
1868 1869
JEFFERSON STREET
1880
1877 1880
SANFORD STREET
1877 1876 1877
1888
1885
PECK STREET
1884
1881
1896
1895
1890 1889
1902 1916
1901
1910 1921
1910 1907
1918 1907 1908 121 1907
1904
1916 1915
1915 1915
1916
1922
CLINTON STREET
1922 1921
1923 1924 1925
JIROCH STREET
1932
1928 1930 1931
LEAHY STREET
1931 1932 1932 1933
1944 1934 1929
1938 1937
1931 1936 1938 1937
1956 1938 1946
1939 1947
1946 1945
1947
1952
1954 1953
1955 1954 1953
1972 1960 1961
1965 1961
1965 1961 1960
1960 1968 1967
1969 1968 1967
EXISTING ZONING (SOUTH) Page 23 of 41
URBAN RESIDENTIAL NEIGHBORHOOD RESIDENTIAL GENERAL BUSINESS OPEN SPACE RECREATION
NEIGHBORHOOD EDGE LOW DENSITY MULTI-FAMILY MEDICAL CARE 1576 PARCEL TO BE REZONED
22 1541 1543
84 122 130
SOUTHERN AVENUE
1563 85 31
71 1562 1561 27
JEFFERSON STREET 1562 1561
JIROCH ST (VACATED)
1572 1568 1567
1573 1569
SANFORD STREET
PECK STREET
1579
1578 1575 1576
1583 1577
1586
1587 1586 1587
1593 1586
1593 1593
1596
1596
1605 1597
1604 1605
1604 1603 1604
32 28 32
1550
1627 1624 77 1621 43 35 1625
FOREST AVENUE (VACATED)
1624
35
1631
1632 1633 1632 1633
1641 1642
1641 1640 1643 1640
1641
1648
1652 1651
1649
1652 1653
1665 1658
1659
1668 1660 1661
82 74 1669
66 1670 1669
34
63 1675
1693 73 1690
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1691
1699 1698
1701
1710 1709 1706 1705
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1713
1715
1720
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CLINTON STREET
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31 39
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JIROCH ST. (VAC.)
1763 1761
1772 1771
1771 1768
1777 1778 0
1782 1781 1774
1779
1783
1790
180
1811
1810
65
LAKETON AVENUE
43
1817 1816 137
1801 109
1822
1823
1815
1828 1825
1822 1821
1836
1830 1829
1842 1841
1839 1838
1848 1846 1837
1847 1800
1854 1853 1845
1846
OSR
1853
1860 1859
1872 1871 1872 1871
1868 1869
JEFFERSON STREET
1880
1877 1880
SANFORD STREET
1877 1876 1877
1888
1885
PECK STREET
1884
1881
1896
1895
1890 1889
1902 1916
1901
1910 1921
1910 1907
1918 1907 1908 121 1907
1904
1916 1915
1915 1915
1916
1922
CLINTON STREET
1922 1921
1923 1924 1925
JIROCH STREET
1932
1928 1930 1931
LEAHY STREET
1931 1932 1932 1933
1944 1934 1929
1938 1937
1931 1936 1938 1937
1956 1938 1946
1939 1947
1946 1945
1947
1952
1954 1953
1955 1954 1953
1972 1960 1961
1965 1961
1965 1961 1960
1960 1968 1967
1969 1968 1967
PROPOSED ZONING (SOUTH) Page 24 of 41
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-30: Staff-initiated request to
amend the zoning ordinance to allow marinas as
a permitted use in Form-Based Code, Lakeside
Mixed Residential districts.
Submitted by: Mike Franzak, Planning Director Department: Planning
Brief Summary:
Staff-initiated request to amend the zoning ordinance to allow marinas as a permitted use in Form-
Based Code, Lakeside Mixed Residential districts.
Detailed Summary & Background:
This request, along with the next request (rezoning), were brought about after staff had contact with
a couple of property owners about land use issues on their properties.
The owner at 2984 Lakeshore Dr wanted to demo and rebuild his house. However, residential uses are
not allowed in the Waterfront Marine (WM) district and the existing house was considered legally non-
conforming (grandfathered). The owner was forced to seek a variance to rebuild the house and the
request was eventually approved. The new house plans were approved, but the new house would
have to meet the existing setbacks in WM, which is 10/14 (side setback requirement) for a two-story
house. Residential setbacks are usually much smaller, such as five feet in many districts. There are
eight houses located in the WM district, all of which are considered legally non-conforming. With this
current zoning, all property owners will have difficulty rebuilding, putting on additions and possibly
even refinancing.
The owner at 3092 Lakeshore Dr. demoed the existing house on site and wants to build a multi-family
house, between 6-8 units. This is not allowed since residential is not a permitted use in the WM district.
Staff are not exactly sure why the entire area was zoned WM, but it has been that way since at least
1986. Were these residential properties hoping to have marinas added to their properties? Was it
zoned in an effort to transform this area into strictly marina and phase out residential? Without having
a clear answer, staff decided to hold a focus group among the property owners to see what their
vision was for their properties moving forward. At the meeting, it was discovered that most of the
homeowners wanted to continue to stay strictly residential. A couple of the homeowners wanted to
stay residential, but add a marina to the property. All the homeowners stated that they did not have
an objection to allowing residential with a higher density than single-family.
After the focus group meeting, it was clear that the best path forward would be to allow multi-family
residential and marinas on these properties. The Form Based Code, Lakeside Mixed Residential (FBC-
LMR) district allows for small multiplexes (up to six units) but it does not allow for marinas. Staff are
proposing to amend the ordinance to make marinas a permitted use in this context, then to rezone
these eight properties to FBC-LMR. A clause was added to the amendment that states "marinas are a
Page 25 of 41
permitted use on properties with Muskegon Lake waterfront frontage." This will eliminate the possibility
of any FBC-LMR properties without lake frontage to storage boats on their properties. The master plan
supports both WM and FBC-LMR as they both fit the description of a lakeshore that allows for mixed-
uses.
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
2027 Goal 2: Economic Development Housing and Business
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move that the request to amend the zoning ordinance to allow marinas as a permitted use in Form-
Based Code, Lakeside Mixed Residential districts be recommended to the City Commission for
approval.
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
Information
Technology
Other Division Heads
Communication
Legal Review
Page 26 of 41
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Page 28 of 41
CONTEXT AREAS AND USE SECTION 2005
2005.07 LAKESIDE MIXED RESIDENTIAL (LMR) CONTEXT AREA
6.0 PERMITTED USES
LAKESIDE MIXED RESIDENTIAL (LMR) CONTEXT AREA PERMITTED USES
DETACHED HOUSE
CARRIAGE HOUSE
LARGE MULTI-PLEX
SMALL MULTI-PLEX
COTTAGE RETAIL
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
LIVE / WORK
ROWHOUSE
MIXED USE
Specific Use
DUPLEX
RETAIL
CIVIC
FLEX
Accessory buildings and uses P P P P P P
Amusement and recreation facility
Auto service station S
Bank
Business school/private or public school/higher ed.
Church P
Club, lodge, hall S* S* S* S* S* S*
Gallery/museum P P P P P P P
Hotel/motel
Indoor theater/live music concert hall
Light manufacturing
Machine shop
Marina P** P** P** P** P**
Micro brewery, distillery, winery under 2500 barrels P
Micro brewery, distillery, winery over 2500 barrels
Multi-family P
Office P
Outdoor recreation
Outdoor theater
Parking structure
Personal service P
Railway terminal P
Research and development
Restaurant, cocktail lounge, brewpub P
Retail P
P = Permitted Use
P* = Permitted Use on floors two and above
P** = Permitted Use on properties with Muskegon Lake waterfront frontage
P# = Permitted Use on first floor only
S = Special Land Use (refer to Section 2002.02)
S* = Special Land Use requires minimum 200 feet of frontage on one street
Blank cell = Use not permitted in this Context Area
Shaded areas represent Building Types that are not permitted in this Context Area.
.23 LAKESIDE FORM BASED CODE CITY OF MUSKEGON
Page 29 of 41
SECTION 2005 CONTEXT AREAS AND USE
2005.07 LAKESIDE MIXED RESIDENTIAL (LMR) CONTEXT AREA
6.0 PERMITTED USES (continued)
LAKESIDE MIXED RESIDENTIAL (LMR) CONTEXT AREA PERMITTED USES
DETACHED HOUSE
CARRIAGE HOUSE
LARGE MULTI-PLEX
SMALL MULTI-PLEX
COTTAGE RETAIL
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
BUILDING TYPE
LIVE / WORK
ROWHOUSE
MIXED USE
Specific Use
DUPLEX
RETAIL
CIVIC
FLEX
Shipping, port related activity
Shared/Co-op housing P
Single-family residential P* P P P*
Taxi/limo service P
Two-family residential P
Uses similar to permitted uses P P P P P P
Uses similar to special uses P P P P P P
Veterinary and kennel
Warehousing
Wind turbine
P = Permitted Use
P* = Permitted Use on floors two and above
P** = Permitted Use on properties with Muskegon Lake waterfront frontage
P# = Permitted Use on first floor only
S = Special Land Use (refer to Section 2002.02)
S* = Special Land Use requires minimum 200 feet of frontage on one street
Blank cell = Use not permitted in this Context Area
Shaded areas represent Building Types that are not permitted in this Context Area.
CITY OF MUSKEGON LAKESIDE FORM BASED CODE .24
Page 30 of 41
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Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: July 10, 2025 Title: Case 2025-31: Staff-initiated request to
rezone 3172 and 3182 Edgewater St; 2976, 2984,
2986, 3002, 3088, and 3092, from WM, Waterfront
Marine to Form Based Code, Lakeside Mixed
Residential.
Submitted by: Department: Planning
Brief Summary:
Staff-initiated request to rezone 3172 and 3182 Edgewater St; 2976, 2984, 2986, 3002, 3088, and 3092,
from WM, Waterfront Marine to Form Based Code, Lakeside Mixed Residential.
Detailed Summary & Background:
As described in the previous case, staff are proposing to rezone these properties to Form Based
Code, Lakeside Mixed Residential, as long as the amendment to allow marinas is also approved. This
will allow the property owners to have residential uses (up to six units) and marinas on their properties
as long as the property has frontage on Muskegon Lake.
Goal/Focus Area/Action Item Addressed:
Key Focus Areas:
Goal/Action Item:
2027 Goal 2: Economic Development Housing and Business
Amount Requested: Budgeted Item:
N/A Yes No N/A X
Fund(s) or Account(s): Budget Amendment Needed:
N/A Yes No N/A X
Recommended Motion:
I move that the request to rezone 3172 and 3182 Edgewater St; 2976, 2984, 2986, 3002, 3088, and
3092, from WM, Waterfront Marine to Form Based Code, Lakeside Mixed Residential be
recommended to the City Commission for approval.
Approvals: Guest(s) Invited / Presenting:
Immediate Division X
Head No
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