Planning Commission Packet 03-12-2026

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CITY OF MUSKEGON
PLANNING COMMISSION MEETING
March 12, 2026 @ 4:00 PM
MUSKEGON CITY COMMISSION CHAMBERS
933 TERRACE STREET, MUSKEGON, MI 49440
☐ CALL TO ORDER:

☐ ROLL CALL:

☐ APPROVAL OF MINUTES:

☐ PUBLIC HEARINGS:
A. Case 2026-05: Staff-initiated request to amend Article II (Definitions) of
the zoning ordinance to create definitions for “Public Access” and
“Waterfront Public Access.” Planning
B. Case 2026-06: Staff-initiated request to amend Sections 403, 702, 802,
902, 1102, 1302, 1402, 1502, 1802, and 1902 and Article XX of the zoning
ordinance to require all Planned Unit Developments and Specific
Development Plans in these zoning districts to include waterfront public
access requirements. Planning
C. Case 2026-07: Staff-initiated request to amend the zoning ordinance by
eliminating B-3, Central Business, and RT, Two-Family Residential districts,
and all other references to these districts in the zoning ordinance.
Planning
D. Case 2026-08: Staff-initiated request to amend Section 404 of the zoning
ordinance to establish maximum lot widths in R, Neighborhood
Residential districts. Planning
E. Case 2026-09: Staff-initiated request to amend Sections 703, 803, and 903
to set minimum density requirements for multi-family housing districts.
Planning
☐ UNFINISHED BUSINESS:
A. 2026 Goal Setting Planning
☐ NEW BUSINESS:

☐ ANY OTHER BUSINESS:

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☐ 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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CITY OF MUSKEGON
PLANNING COMMISSION MEETING
February 12, 2026 @ 4:00 PM
MUSKEGON CITY COMMISSION CHAMBERS
933 TERRACE STREET, MUSKEGON, MI 49440
MINUTES
CALL TO ORDER
L. Willett-Leroi called the meeting to order at 04:03 PM, and a roll call was taken.

ROLL CALL
Members Present: K. Johnson, J. Seyferth, S. Blake, S. Gawron, and L. Willett-LeRoi

Member(s) Absent: L. Simmons II, M. DeLaGarza
Member(s) Excused: D. Keener, B. Mazade
Staff Present: M. Franzak and S. Romine
Others Present:

APPROVAL OF MINUTES

A. Approval of the minutes from the regular meeting on January 15, 2026.
Planning
A motion to approve the Minutes of the regular Planning Commission meeting on
January 15, 2026, was made by Jonathan Seyferth, supported by S. Gawron, and
unanimously approved.

PUBLIC HEARINGS

A. Case 2026-02: Request to amend Section 2321 of the zoning ordinance
to allow wireless communication service facilities (cell towers) as a
special use permitted at a specific location at 1800 Peck St (Marsh Field),
by Vertical Bridge. Planning

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SUMMARY
The zoning ordinance defines a Wireless Communication Support Facilities (WCSF)
as "A monopole, guyed, or lattice type tower designed for the attachment of or as
support for wireless communication antennas or other antennas."

WCSF's are allowed as a special use permitted in eight specific locations
throughout the city. A specific location at Marsh Field (behind the center field fence)
was approved as a location in January 2020. However, a WCSF was never approved
for a special use permit as nobody ever applied.

This proposed amendment will slightly increase the area where a WCSF could be
placed. This will allow for a taller structure than was previously proposed. A taller
structure will accommodate co-location of services.

If this ordinance amendment is approved, a company may apply for a special use
permit for a WCSF at this location. If it is denied, a company could apply for a
special use permit for a WCSF at the already approved location at Marsh Field
(same location, just smaller area).

This request was brought forward by a private company, Verticle Bridge. They will
be hosting an informational meeting at City Hall on February 11 from 4:30-6:30pm. A
Connect Muskegon page has been made for this request and can be viewed at the
link below.

https://muskegon-mi.civilspace.io/en/projects/marsh-field-cell-tower

Please see the attached zoning ordinance excerpt for WCSF's.

STAFF RECOMMENDATION
I move the request to amend Section 2321 of the zoning ordinance to allow wireless
communication service facilities as a special use permitted at the location identified in the
survey, be recommended to the City Commission for approval.

PUBLIC HEARING COMMENCED:
None

CLOSE PUBLIC HEARING - MOTION
A motion to close the public hearing was made by J. Seyferth, supported by K. Johnson, and
unanimously approved.
MOTION PASSED

MOTION
Motion by K. Johnson, seconded by S. Gawron, move that the request to amend Section 2321 of
the zoning ordinance to allow wireless communication service facilities as a special use
permitted at the location identified in the survey, be recommended to the City Commission for
approval.

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ROLL VOTE: Ayes: L. Willett-Leroi, J. Seyferth, K. Johsnon, S. Gawron, and S. Blake.
Nays: None.

MOTION PASSED

B. Case 2026-03: Request to amend the zoning ordinance to define
veterinary clinic and to allow them in several zoning districts (B-2, B-4,
FBC-MS, FBC-NE, FBC-NC, FBC-MSW, LFBC-LC, LFBC-HC). Planning

SUMMARY
An existing veterinary clinic on Sherman Blvd would like to move to another facility,
but they have found limited options because of the current zoning regulations. After
researching the ordinance, staff is recommending to make amendments that would
allow this type of use in more zoning districts.

There currently is not a definition for veterinary clinics in the zoning ordinance,
although they are allowed in limited districts. The ordinance references veterinary
clinics with or without outdoor kennels.

Proposed definition — Veterinary clinic: A facility where animals are given medical
care and the boarding of animals is limited to short-term care incidental to the clinic
use.

There is already a definition for commercial kennel and outdoor kennel in the
zoning ordinance.

Kennel, Commercial: Any premises on which more than three dogs or more than
four cats, older than four months old, are kept or any premises which offers cats
or dogs for sale on a reoccurring basis (more than once per year).

Kennel, Outdoor: Any business that includes outdoor pens where pets are
housed, boarded, bred, or trained.

Veterinary clinics without outdoor kennels are currently allowed as a special use
permitted in B-2 districts and as a permitted use by right in B-4 districts.

Veterinary clinics with outdoor kennels are currently allowed as a use by right in I-1
and I-2 districts.

Commercial kennels are currently a special use permitted in B-4 districts and as a

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permitted use by right in I-1 and I-2 districts.

Within the Form Based Code, veterinary clinics are currently only allowed as a use
by right in "flex buildings" within FBC-Neighborhood Edge and FBC, Neighborhood
Core context areas. They are not allowed at all in the Lakeside Form-Based Code.
Staff believes this type of use would be compatible with more building types and
more context areas.

Staff is proposing to allow veterinary clinics without outdoor kennels in the
following form-based code context areas (P=Permitted, S=Special Use):

FBC, NE - Mixed Use (S), Retail (P), Flex (S), Cottage Retail (P), Live/Work (P)
FBC, NC - Mixed Use (S), Retail (P), Flex (S), Cottage Retail (P), Live/Work (P), L
Multiplex (S)
FBC, MS – Mixed Use (S), Retail (P), Flex (S), Live/Work (P), L Multiplex (S)
FBC, MSW – Mixed Use (S), Retail (P), Flex (S), Live/Work (P), L Multiplex (S)
LFBC, LC – Mixed Use (S), Retail (P)
LFBC, HC – Mixed Use (S), Retail (P)

Please see the attachment on the different building types in the form-based code.

STAFF RECOMMENDATION
I move that the amendments to veterinary clinics be recommended to the City Commission for
approval as proposed.

PUBLIC HEARING COMMENCED
None.

CLOSE PUBLIC HEARING - MOTION
A motion to close the public hearing was made by J. Seyferth, supported by K. Johnson, and
unanimously approved.

MOTION
Motion by J. Seyferth, second by K.Johnson, move that the amendments to veterinary clinics be
recommended to the City Commission for approval as proposed.

ROLL VOTE: Ayes: L.Willett-Leroi, S. Gawron, J. Seyferth, K. Johnson, and S. Blake.
Nays: None.
MOTION PASSED

UNFINISHED BUSINESS
None.

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NEW BUSINESS

A. 2026-04: Request to amend the Planned Unit Development at Hartshorn
Village (0 Boardwalk Cove Dr, parcel #24-427-000-0000-00), by
Hartshorn Village. Planning

SUMMARY
The original PUD was approved in January 2022. It was amended in March 2022 to
replace 17 single-family houses with a condominium building. It was amended again
in January 2023 to reduce the number of single-family houses and to eliminate the
condominium building and replace it with the boat storage building. It was
amended again in July 2024 to add fuel storage tanks outside the boat storage
building.

This request is to alter the walking paths, add two more single-family houses, and
to change the topography.

One walking path that leads to the bike path will be eliminated, and the other will be
repositioned. This will make way for two more residential units, for a total of 22
single-family houses within the development. There were discussions about a
potential 23rd lot to be located within the small traffic island (between the western
ingress/egress points). However, the small size of land would require more details
to explain how it would be developed.

The topography of the lots will also change to a less elevated position. About half
the amount of fill dirt will be brought on site as originally proposed.

Please see the attached currently approved site plan and the proposed site plan.

If the Planning Commission chooses, this case may be approved as a minor request
without the need for a public hearing.

STAFF RECOMMENDATION
I move to approve the amended Hartshorn Village Planned Unit Development as proposed as a
minor amendment.

MOTION
Motion by J. Seyferth, second by K. Johnson, to approve the amendment to the Hartshorn
Village Planned Unit Development, adding lot 21, as it is a minor amendment.

ROLL VOTE: Ayes: L. Willett-Leroi, S. Gawron, J. Seyferth, S. Blake, and K. Johnson.

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Nays: None.
MOTION PASSED

ANY OTHER BUSINESS

A. Election of Officers Planning
SUMMARY
The board must elect a Chairperson and Vice-Chairperson.

The current Chairperson is Lea Willett-LeRoi, and the Vice-Chairperson is Destinee
Keener.

MOTION
A motion by K. Johnson, seconded by S. Blake, to elect L. Willett-Leroi as
Chairperson and D. Keener as Vice-Chairperson.

ROLL VOTE: Ayes: K. Johnson, J. Seyferth, S. Blake, L. Willett-Leroi, and S. Gawron.
Nays: None.
MOTION PASSED

B. Planning Commission representative on the Zoning Board of Appeals
Planning
SUMMARY
It is required that one Planning Commissioner hold a seat on the Zoning Board of
Appeals. Staff is asking the Planning Commission to discuss who they would like to
represent the Planning Commission on the Zoning Board of Appeals.

MOTION
A motion by K. Johnson, seconded by J. Seyferth, to nominate S. Gawron as the
Planning Commissioner representative on the Zoning Board of Appeals.

ROLL VOTE: Ayes: K. Johnson, J. Seyferth, S. Blake, L. Willett-Leroi, and S. Gawron.
Nays: None.
MOTION PASSED

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C. 2026 Planning Commission Goal Setting Planning
SUMMARY
The Planning Commission will set their goals for the 2026 calendar year. Board
members have been asked to review the attached materials to discuss their
preferences at the meeting.

Discussion continued about the goals that the Planning Commission would like to
set for 2026. Because the full Planning Commission is not present, these discussions
are ongoing.
GENERAL PUBLIC COMMENT
None.

ADJOURNMENT
The Planning Commission meeting adjourned at 5:28 PM.

Respectfully Submitted,

Ann Marie Meisch, MMC City Clerk

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Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: Case 2026-05: Staff-initiated request to
amend Article II (Definitions) of the zoning
ordinance to create definitions for “Public
Access” and “Waterfront Public Access.”

Submitted by: Mike Franzak, Planning Director Department: Planning

Brief Summary:
Staff-initiated request to amend Article II (Definitions) of the zoning ordinance to create definitions for
“Public Access” and “Waterfront Public Access.”

Detailed Summary & Background:
Staff is proposing to create zoning definitions for "public access" and "waterfront public access."
These definitions will be used in the zoning amendment in the following case on the agenda.

Please note that there is already a definition for "common open space," which is defined as "open
space which is held for the collective use and enjoyment of the owners, tenants, or occupants of a
single development."

These two new definitions are intended to differentiate between public access and access provided
to tenants of a particular development.

Goal/Focus Area/Action Item Addressed:

Key Focus Areas:

Goal/Action Item:
2027 Goal 1: Destination Community & Quality of Life

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 the request to amend Article II of the zoning ordinance to create definitions for “Public
Access” and “Waterfront Public Access” be recommended to the Commission for approval.

Approvals: Guest(s) Invited / Presenting:

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Immediate Division X No
Head
Information
Technology
Other Division Heads
Communication
Legal Review

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ARTICLE II – DEFINITIONS

Patio: An uncovered, paved outside area used for several purposes including leisure, social gatherings, etc.
Patios may be attached to a home or a separate area; they may be made from concrete, paving bricks or
created from other similar products.

Planning Commission: The Planning Commission of the City of Muskegon as provided in Act 285 of 1931, as
amended, and appointed pursuant to the City Code of Ordinances.

Planned Unit Development: A tract of land or lot, developed under single ownership or management as a
separate neighborhood or community unit. The development shall be based on an approved site plan which
allows flexibility of design not available under normal zoning district requirements. The plan may contain a
mixture of housing types, commercial and industrial uses, common open space and other land uses as
provided in this Ordinance.

Plat: A map of a subdivision of land recorded with the Register of Deeds pursuant to the Subdivision Control
Act of 1967 or a prior statute.

Porch: A covered entrance to a building, projecting from the wall.

Poultry: Domestic fowl such as chickens, turkeys, ducks, and geese.

Principal Building: The main building on a lot in which the principal use exists or is served by.

Principal Use: The main use to which the premises are devoted and the main purpose for which the premises
exist.

Private Road: A private way or means of approach which meets the requirements of this Ordinance to
provide access to two (2) or more abutting lots, and which is constructed and maintained by the owner or
owners and is not dedicated for general public use.

Prohibited Use: A use of land which is not explicitly permitted within a particular zoning district.

Public Access: The legal right and physical ability for members of the general public to enter, pass through,
and use land, water, buildings, or facilities, either permanently or during specified hours. Public access may
be provided through fee simple dedication, easement, license, covenant, or other legally enforceable
instrument approved by the City.

Public access areas may include, but are not limited to, sidewalks, trails, waterfront walkways, plazas, parks,
open spaces, and publicly accessible interior spaces. Such areas shall be:

1. Open and unobstructed to the general public without discrimination.

2. Clearly marked with signage indicating public availability and hours of operation, where applicable.

3. Maintained in a safe and usable condition by the property owner unless otherwise accepted for public
maintenance.

4. Designed to comply with applicable accessibility laws and building codes.

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ARTICLE II – DEFINITIONS

5. Subject only to reasonable time, place, and manner restrictions necessary to protect public safety and
property.

Public access does not require public ownership unless specifically stated and may remain under private
ownership provided the required access rights are legally recorded and enforceable.

Public Water Course: A stream or creek which may or may not be serving as a drain as defined by Act 40 of
Public Acts of 1956, as amended, being Sections 280.1 to 280.623 of the Compiled Laws of 1948 or successor
act: or any body of water which has definite banks, a bed and visible evidence of a continued flow or
occurrence of water.

Public Service: Public service facilities within the content of this Ordinance shall include such uses and
services as election polling places, pumping stations, fire halls, police stations, public health activities, and
similar uses including essential services.

Public Utility: A person, firm, or corporation, municipal department, board, or commission duly authorized
to furnish, and furnishing under Federal, State, County, or Municipal regulations to the public: gas, steam,
electricity, sewage, disposal, communication, transportation, or water services.

Replacement Cost: Cost of replacing a structure or building at current costs at the time of the loss, identical
to the one that was destroyed, without application of depreciation.

Room: For the purpose of determining lot area requirements and density in a multiple-family district, a room
is a living room, dining room or bedroom, equal to at least eighty (80) square feet in area.

Recreational Vehicle Park: All lands and structures which are owned and operated by private individuals, a
business or corporation which are predominantly intended to accommodate recreational vehicles and
provide for outdoor recreational activities.

Recreational Vehicle: A vehicle primarily designed and used as a temporary living quarters for recreational,
camping, or travel purposes, including a vehicle having its own motor power or a vehicle mounted on or
drawn by another vehicle (Act 96, Michigan Public Acts of 1987, as amended or successor acts).

Repair: The reconstruction or renewal of any part of an existing building for the purpose of maintenance.

Restoration: The reconstruction or replication of an existing building’s original architectural features.

Right-of-Way: A street, alley, or other thoroughfare or easement permanently established for passage of
persons, vehicles, or the location of utilities. The right-of-way is delineated by legally established lines or
boundaries.

Rooming House: A dwelling structure having single rooms for rent and having no common areas except
common places for the taking of meals, or baths, or laundry facilities, and not defined as a tourist home, or
state licensed residential facility.

Rubbish: See Solid Waste.

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ARTICLE II – DEFINITIONS

Triplex: A medium-sized structure designed for occupancy by three families living independently of each
other.

Underground Storage Tank: A tank or combination of tanks, including underground pipes connected to the
tank or tanks or underground ancillary equipment containment systems, if any, which is, was, or may have
been, used to contain an accumulation of regulated substances and the volume of which, including the
volume of the underground pipes connected to the tank or tanks is 10% or more beneath the surface of the
ground.

Trailer (Utility): A vehicle that is not self propelled which is licensed by the State of Michigan and used for
transporting materials in tow with a motor vehicle.

Use: The purpose for which land or a building is arranged, designed or intended, or for which land or a
building is or may be occupied.

Utility Room: A room used primarily for storage, for housing a heating unit, or for laundry purposes.

Variance, Use: A modification of the literal provisions of the zoning ordinance which is authorized by the
Zoning Board of Appeals when strict enforcement of the ordinance would cause unnecessary hardship for
the property owner due to circumstances unique to the property. A use variance permits a use of land that
is otherwise not allowed in that district.

Variance, Nonuse or Dimensional: A modification of the literal provisions of the zoning ordinance granted
when strict enforcement of the zoning ordinance would cause practical difficulty owing to circumstances
unique to the individual property. The crucial points of a nonuse or dimensional variance are practical
difficulty and unique circumstances applying to the property. A nonuse or dimensional variance is not
justified unless both elements are present in the case.

Vintage Shop: A retail establishment which sells vintage merchandise.

Vintage Merchandise: Furniture or clothing; esteemed for its collectability, artistry, beauty or period of
origin; meeting the following criteria.

1. Clothing must be laundered and in like-new, ready to wear condition.

2. Furniture must have been previously restored to like-new condition through the process of
reupholstering or renovation, prior to being brought on-site.

Walls, Obscuring: An obscuring barrier (not associated with a building) of definite height and location
constructed of wood, masonry, concrete, or similar material, and which provides one hundred (100) percent
opacity.

Waterfront Public Access: A publicly accessible area located along or immediately adjacent to a natural or
man-made body of water, that is designed and maintained to provide the general public with physical and/or
visual access to the water.

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ARTICLE II – DEFINITIONS

Waterfront Public Access areas may include, but are not limited to, pedestrian walkways, esplanades,
promenades, overlooks, boardwalks, piers (where authorized), seating areas, landscaped open space,
beaches, playgrounds and related improvements that facilitate safe and convenient public use.

Such access shall be provided in a manner that:

1. Ensures reasonably connected pedestrian circulation along the shoreline where practicable;

2. Is open to the general public without charge, except where specifically authorized by the city;

3. Is protected by a recorded public access easement, dedication, or other legally enforceable mechanism
acceptable to the city; and

4. Is maintained in a safe, unobstructed, and usable condition by the property owner or other responsible
party.

Waterfront Public Access shall not include private docks, private open space, or restricted areas not legally
available for public use.

Wild Animal: Any living member of the animal kingdom, including those born or raised in captivity, except
the following:

1. Domestic dogs (excluding hybrids with wolves, coyotes, or jackals)

2. Domestic cats (excluding hybrids with ocelots or margays)

3. Ferrets

4. Rodents

5. Caged, nonvenomous snakes

6. Captive-bred species of common cage birds.

Wind Turbine: A rotating machine which converts the kinetic energy in wind into mechanical energy. For the
purpose of this ordinance, an anemometer is not classified as a wind turbine.

Wind Turbine Facility: An electric generating facility, whose main purpose is to supply electricity to sell to
the grid, consisting of more than one wind turbine and other accessory structures and buildings.

Wireless Communication Antenna (WCA): Any antenna used for the transmission or reception of wireless
communication signals excluding those used exclusively for dispatch communications by public emergency
agencies, amateur radio antennas, satellite antennas, those which receive video programming services via
multipoint distribution services which are one meter (39 inches) or less in diameter and those which receive
television broadcast signals.

Wireless Communication Equipment Shelter: The structure, shelter, cabinet or vault in which the electronic
receiving and relay equipment necessary for processing wireless telecommunications is housed together

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Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: Case 2026-06: Staff-initiated request to
amend Sections 403, 702, 802, 902, 1102, 1302,
1402, 1502, 1802, and 1902 and Article XX of the
zoning ordinance to require all Planned Unit
Developments and Specific Development Plans
in these zoning districts to include waterfront
public access requirements.

Submitted by: Mike Franzak, Planning Director Department: Planning

Brief Summary:
Staff-initiated request to amend Sections 403, 702, 802, 902, 1102, 1302, 1402, 1502, 1802, and 1902
and Article XX of the zoning ordinance to require all Planned Unit Developments and Specific
Development Plans in these zoning districts to include waterfront public access requirements.

Detailed Summary & Background:
In the city's zoning ordinance, every zoning designation has an option for a Planned Unit
Development (PUD). In the R, Neighborhood zoning district, there is a requirement that any PUD that
abuts water, at least 50% of the shoreline, as well as reasonable access to it, shall be part of the
common open space land.

Common open space is defined as "open space which is held for the collective use and enjoyment
of the owners, tenants, or occupants of a single development."

Staff is proposing to amend the ordinance to require "waterfront public access" rather than "common
open space." Staff is also proposing to place this as a requirement for PUDs with other underlying
zoning designations, including RM-1, RM-2, RM-3, B-2, B-4, I-1, I-2, LR, WM, and FBC.

The Housing & Neighborhoods section of the master plan calls for new developments to provide
public amenities for existing and future residents, including waterfront public access when
applicable. This can be viewed on page 15 of the following link. Housing & Neighborhoods_Master
Plan

A similar case to this was presented at the February 2025 Planning Commission meeting. That case
was tabled and staff was asked to clarify the meaning of public access to the waterfront.

Goal/Focus Area/Action Item Addressed:

Key Focus Areas:

Goal/Action Item:

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2027 Goal 1: Destination Community & Quality of Life

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 the request to amend Sections 403, 702, 802, 902, 1102, 1302, 1402, 1502, 1802, and 1902 and
Article XX of the zoning ordinance to require all Planned Unit Developments and Specific
Development Plans in these zoning districts to include waterfront public access requirements be
recommended to the City Commission for approval.

Approvals: Guest(s) Invited / Presenting:
Immediate Division X No
Head
Information
Technology
Other Division Heads
Communication
Legal Review

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ARTICLE XV – I-2 GENERAL INDUSTRIAL DISTRICTS

3. Bulk storage or the production of acetylene, natural gas, and oxygen or other highly explosive or toxic
gases. The storage of such gases for use in a production process or of an industry, business, or health
care facility shall not be considered bulk storage.

4. Chemical plants whose manufacturing process produce products which are hazardous materials as
defined in the Fire Code.

5. Wind turbine Facilities.

6. Marihuana microbusinesses, designated consumption establishments, class B recreational grows,
marihuana processing facilities without extraction methods classified as hazardous under the Michigan
Building Code, and temporary marihuana events.

7. Uses similar to the above Special Land Uses Permitted.

SECTION 1502: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the I-2 General Industrial District is to allow mixed land uses,
which are compatible to each other. Where a development abuts a body of water, public access to the
waterfront must be provided. The minimum threshold for this public access must be 50% of the shoreline. This
percentage may be reduced with the addition of quality waterfront public access amenities as approved by the
City Commission.

SECTION 1503: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 43,560 sq. feet.

2. Maximum lot coverage:

Buildings: 85%
Pavement: 25%

3. Lot width: 150 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

4. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

5. Height limit: 3 stories or 50 feet

Height measurement: In the case of a principal building, the vertical distance measured from the average
finished grade to the highest point of the roof surface where the building line abuts the front yard, except
as follows: to the deck line of mansard roofs, and the average height between eaves and the ridge of
gable, hip, and gambrel roofs (see Figure 2-2). If the ground is not entirely level, the grade shall be
determined by averaging the elevation of the ground for each face of the building (see Figure 2-3).

6. Front Setbacks:

123

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ARTICLE XVIII – LR LAKEFRONT RECREATION DISTRICTS

ARTICLE XVIII – LR LAKEFRONT RECREATION DISTRICTS

PREAMBLE

The primary intent of the LR Lakefront Recreation District is to provide for areas abutting Muskegon Lake
including Muskegon River and Lake Michigan to be utilized for both public and private recreational and
recreation-oriented facilities. It is intended that any commercial facilities be limited to water related recreation
activities.

SECTION 1800: PRINCIPAL USED PERMITTED

In the LR Lakefront Recreation District, no building or land shall be used and no building shall be erected,
structurally altered, or occupied except for one (1) or more of the following specified uses, unless otherwise
provided in this Ordinance.

1. Marinas for the berthing and servicing of boats, but without major repair or storage facilities.

2. Restaurants and cocktail lounges.

3. Hotels and motels.

4. Accessory buildings and accessory uses customarily incidental to the above Principal Uses Permitted.

5. Uses similar to the above Principal Uses Permitted.

SECTION 1801: SPECIAL LAND USES PERMITTED

The following uses, and their accessory buildings and accessory uses, shall be permitted under the purview of
Section 2332 after review and approval of the use (and a site plan, if required) by the Planning Commission,
after Public Hearing, subject to the applicable conditions, and any other reasonable conditions imposed by the
Planning Commission:

1. Residential development projects.

2. Private clubs, lodge halls, social, or recreational uses.

3. Accessory buildings and accessory uses customarily incidental to the above Special Land Use Permitted.

4. Seasonal, recreational, camper and trailer parks, and facilities.

5. Uses similar to the above Special Land Uses Permitted.

SECTION 1802: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the LR Lakefront Recreation Districts is to allow mixed land
uses, which are compatible to each other, while prohibiting nonresidential uses which would not be compatible
or harmonious with lakefront recreation activities, or residential dwellings. Where a development abuts a body
of water, public access to the waterfront must be provided. The minimum threshold for this public access must
136

Page 19 of 77
ARTICLE XVIII – LR LAKEFRONT RECREATION DISTRICTS

be 50% of the shoreline. This percentage may be reduced with the addition of quality waterfront public access
amenities as approved by the City Commission.

SECTION 1803: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 21,780 sq. feet.

2. Dedicated open space requirement: 15%

3. Maximum lot coverage:

Buildings: 60%
Pavement: 15%

4. Lot width: 150 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

5. Maximum building width: 50% (as a portion of the lot width).

6. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

7. Height limit: 4 stories or 60 feet.

8. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 20 feet
Minor Street: 10 feet

9. Rear setback: 10 feet

10. Setback from the ordinary high-water mark or wetland: 75 feet (principal structures only).

11. Side setbacks:

1-story: 8 feet and 12 feet
2-story: 10 feet and 14 feet
3-story: 12 feet and 16 feet
4-story: 16 feet and 20 feet

137

Page 20 of 77
ARTICLE XIX – WM WATERFRONT MARINE DISTRICTS

7. Uses similar to the above Special Land Uses Permitted.

SECTION 1902: PLANNED UNIT DEVELOPMENTS
Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the WM Waterfront Marine Districts is to allow mixed land
uses, which are compatible to each other, while prohibiting uses which would not be compatible or harmonious
with permitted uses. Where a development abuts a body of water, public access to the waterfront must be
provided. The minimum threshold for this public access must be 50% of the shoreline. This percentage may be
reduced with the addition of quality waterfront public access amenities as approved by the City Commission.

SECTION 1903: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 21,780 sq. feet.

2. Density (see definition in Article II): 24 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 60%
Pavement: 25%

5. Lot width: 150 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 4 stories or 60 feet

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 20 feet
Minor Street: 10 feet

10. Rear setback: 10 feet
140

Page 21 of 77
SECTION 2002 APPLICABILITY AND PROCEDURES

2002.00 APPLICABILITY 2002.01 SITE PLAN / PLOT PLAN PROCEDURES
The City of Muskegon Form Based Code shall apply to A. Full Site plan/plot plan. To expedite the
development within the boundaries of the Form Based development process, development within the
Code District depicted on the City of Muskegon official City of Muskegon Form Based Code that complies
Zoning Map. Development shall include the following: with the provisions of this Code shall require full
A. New development. site plan or plot plan review and approval by the
City’s Zoning Administrator or Building Official.
B. Modifications to existing buildings: 1. Section 2303 in the City of Muskegon
1. Building Footprint. Increasing or Zoning Ordinance shall govern the type
decreasing a building footprint by of submittal required, being either a full
twenty-five percent (25%) or greater in site plan or plot plan.
area or when the cost of the addition 2. Review and approval shall be
is greater than or equal to fifty percent conducted by the City’s Building Official
(50%) of the current assessed value of the for single-family detached dwellings and
building or structure. Phased construction modifications to comply with accessibility
to avoid compliance with this standard requirements.
or breaking up construction such that 3. All other development activities outlined
the thresholds are avoided shall be in Section 2303 shall require review
prohibited. and approval of the City’s Zoning
2. Building Facade. Administrator.
i. Increasing or decreasing the
building façade transparency B. Site Plan review procedures and requirements.
by more than fifty percent (50%). Site plan submittal and review shall follow the
Phased construction to avoid processes set forth in Sections 2303 of the City of
compliance with this standard or Muskegon Zoning Ordinance. Site plan required
breaking up construction such that data shall adhere to Section 2303 of the City of
the 50% threshold is avoided shall Muskegon Zoning Ordinance, unless waived or
be prohibited. required by the City’s Zoning Administrator per
ii. Building facades over 50 years are Section 2303, 8.
exempt from the City of Muskegon
Form Based Code, except existing C. Planning Commission review. Full site plan
window and door openings shall review by the Planning Commission shall be
remain, in addition to existing required for any Special Land Use or Specific
building materials, unless the Development Plan. Review standards are
Planning Commission deems the included in Section 2303, 11 of the City of
frontage as not having historic Muskegon Zoning Ordinance. Special Land Use
value. standards specific to special uses regulated in
iii. For properties listed in the State or this Form Based Code are included in Section
National Register of Historic Places 2005.
or are located within a Local
Historic District, the Secretary of D. Specific Development Plan. A Specific
Interior Standards for Rehabilitation Development Plan is intended to allow
shall supercede this Form Based applicants development flexibility to address
Code. market conditions and opportunities, including
the master planning of large lots exceeding
C. Any change in land use impacting parking the maximum block dimensions as outlined in
requirements. Section 2004, as well as the consolidation of
multiple properties to create predictable and
D. The Planning Commission may, at the request market responsive development for the area.
of the applicant, waive the applicability of this Specific Development Plans shall be required
Code upon a finding that adhering to the Code for any Major Departure as outlined in this
would place undo hardship on the applicant. Section 2002.03 (form based code departures).
Should the Planning Commission waive the 1. Specific Development Plan requirements.
applicability of the Form Based Code, the A Specific Development Plan shall
underlying district provisions shall apply. include a full site plan and required data
as outlined in Section 2303, 11.

CITY OF MUSKEGON DOWNTOWN FORM BASED CODE 2.1
Page 22 of 77
APPLICABILITY AND PROCEDURES SECTION 2002

2. Additional requirements include: A plan or applicant, waive certain major deviations
depicting the proposed Context Areas to context area boundaries, building frontage
for the subject site(s) if major departures standards and building type standards.
from the Context Area boundaries Table 2002.03b provides a summary of major
are requested. Where a development departures.
abuts a body of water, public access
to the waterfront must be provided.
The minimum threshold for this public
access must be 50% of the shoreline. C. Findings for Code Departures. The applicable
This percentage may be reduced with reviewing body shall find that a departure to the
the addition of quality waterfront public Form Based Code:
access amenities as approved by the 1. Does not materially change the circulation
City Commission and building location on the site;
3. Public Hearing: The applicant and/or
2002.03a MINOR DEPARTURES
Planning Commission may request a
public hearing for a Specific Development TYPE MODIFICATION FINDINGS
Plan. A public hearing, pursuant to the Area or No more than When possible,
boundary of 15% increase or boundaries shall
Michigan Zoning Enabling Act, shall be

CONTEXT
context area decrease in area follow parcel

AREA
required for a major departure of Context lines
Area boundary.
4. Planning Commission action: The
Planning Commission shall review and
approve, with or without conditions, the Location No more than Constraints
requirement, 1’ deviation in related to
FRONTAGE
full site plan upon the following findings:
BUILDING

including standard topography,
i. The Context Areas provide a required building pattern of
line existing adjacent
seamless transition from adjacent, facades, or lot
existing districts and uses to the dimensions
proposed subject site(s).
ii. Internal circulation and layout of Size and massing No more than Constraints
5% deviation in related to
BUILDING

lots fosters a walkable, urban area Entrance standard topography,
TYPE

by adhering to the maximum block intervals pattern of
existing adjacent
lengths as outlined in Section 2004. Story height facades, or lot
iii. Roadways are interconnected dimensions

and provide safe areas for walking
and biking.
2002.03b MAJOR DEPARTURES
2002.02 SPECIAL LAND USES TYPE MODIFICATION FINDINGS
A. Special Land Uses. As per Section 2005 of the City Area or No more than When possible,
boundary of 30% increase or boundaries shall
of Muskegon Form Based Code, certain uses
CONTEXT

context area decrease follow parcel
AREA

require special land use review and approval lines
by the Planning Commission. The special land
use review and approval process shall adhere
to Section 2332 of the City of Muskegon Zoning
Ordinance. Specific standards for special land Location More than 1’ Constraints
requirement,
FRONTAGE

and less than related to
uses are determined by Context Area and Use,
BUILDING

including 2’ deviation in topography,
refer to Section 2005. required building standard pattern of
line existing adjacent
facades, or lot
2002.03 FORM BASED CODE DEPARTURES dimensions
A. Minor Departures. The Zoning Administrator may,
at the request of an applicant, waive certain Size and massing No more than Constraints
10% deviation in related to
BUILDING

minor adjustments to context area boundaries, Entrance standard topography,
TYPE

building frontage standards and building type intervals pattern of
existing adjacent
standards as outlined in Table 2002.03a. Story height facades, or lot
dimensions

B. Major Departures. The Planning Commission
may, at the request of the Zoning Administrator

2.2 DOWNTOWN FORM BASED CODE CITY OF MUSKEGON
Page 23 of 77
ARTICLE IV – R NEIGHBORHOOD RESIDENTIAL DISTRICTS

SECTION 402: [RESERVED]

SECTION 403: PLANNED UNIT DEVELOPMENT OPTION

Planned Unit Developments (PUDs) may be allowed by the Planning Commission under the procedural
guidelines of Section 2101. The intent of Planned Unit Developments in the Neighborhood Residential district is
to allow for flexibility in the design of housing developments, including but not limited to condominium
developments and cluster subdivisions, to allow for the preservation of open space; allow for economies in the
provision of utilities and public services; allow for limited business options that serve the neighborhood; provide
recreational opportunities; and protect important natural features from the adverse impacts of development.

1. Determination: The Planning Commission, in reviewing and approving a proposed PUD may allow lots
within the PUD to be reduced in area and width and setbacks below the minimum normally required by
this ordinance in return for common open space where it is determined that the benefits of the cluster
approach will decrease development costs, increase recreational opportunities, or prevent the loss of
natural features. The Planning Commission, in its determination, shall consider the densities permitted
in the Zoning Ordinance and, if applicable, the land’s capability to bear the higher density.

2. Basic Requirements:

a. The net residential acreage including improvements and occupied land shall be calculated by
taking the total area of the tract and subtracting, in order, the following:

i. Portions of the parcel(s) shown to be in a floodplain.

ii. Portions of the parcel(s) which are unsuitable for development in their natural state due
to topographical, drainage or subsoil conditions such as, but not limited to; slopes greater
than 15%; organic, poorly drained soils, and wetlands.

iii. Portions of the parcel(s) covered by surface waters.

iv. Portions of the tract utilized for storm water management facilities.

b. Undevelopable areas may be used for common open and recreational areas.

c. No building shall be sited on slopes steeper than 15%, within 100 feet of any ordinary high-water
mark, wetland, or on soil classified as being very poorly drained.

3. Density determination: To determine the maximum number of dwelling units permitted on the parcel(s)
of land, the net residential acreage shall be divided by the minimum lot size required by the zoning
ordinance.

4. Open space requirement: At least 15% of the site shall be set aside as dedicated common open space.
At least one third (1/3) of the common open space shall be usable open space. The open space and
access to it shall be permanently marked and designed so individuals in the development are not forced
to trespass to reach such recreational or common open spaces.

Page 24 of 77
ARTICLE IV – R NEIGHBORHOOD RESIDENTIAL DISTRICTS

5. Spacing: The distance between buildings shall not be less than 10 feet and front setbacks shall not be
less than 10 feet.

6. Waterfront: Where a development abuts a body of water, public access to the waterfront must be
provided. The minimum threshold for this public access must be 50% of the shoreline. This percentage
may be reduced with the addition of quality waterfront public access amenities as approved by the City
Commission.Where a cluster development abuts a body of water, at least 50% of the shoreline, as well
as reasonable access to it, shall be a part of the common open space land.

7. Utility of common open space: Common open space in any one residential cluster shall be laid out, to
the maximum extent feasible, to connect with other open space existing or proposed.

8. Size: Minimum parent parcel size is 21,780 square feet (one-half acre).

9. Bonus units: Where the developer provides additional open space or amenities within the development,
additional density may be granted. A maximum of a 10% unit bonus may be granted to the development
for additional amenities such as: public trail easements, additional open space, additional common
waterfront area, and additional landscaping.

SECTION 404: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 3,000 sq. feet.

2. Maximum lot coverage:

Buildings: 70%
Pavement 20%

*When a lot is covered over 80% by the combination of buildings and pavement, the remaining
amount of pavement allowed must be pervious.

3. Lot width: 30 feet (Shall be measured at road frontage unless a cul-de-sac, then measured from setback).

4. Height limit: 2 stories or 35 feet. Exception: Homes located in an established Historic District may be up
to 3 stories or 45 feet, if found to be compatible with other homes within 600 feet.

5. Front Setbacks:

Minimum: 10 feet
Maximum: 30 feet

Page 25 of 77
ARTICLE VII – RM-1 LOW-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

SECTION 702: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Development in the RM-1 Low-Density Multiple-Family Residential District is
to allow mixed land uses, which are compatible to each other, while prohibiting nonresidential uses which would
not be compatible or harmonious with residential dwellings. Where a development abuts a body of water, public
access to the waterfront must be provided. The minimum threshold for this public access must be 50% of the
shoreline. This percentage may be reduced with the addition of quality waterfront public access amenities as
approved by the City Commission.

SECTION 703: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 10,890 sq. feet.

2. Density (see definition in Article II): 16 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 60%
Pavement: 20%

5. Lot width: 100 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 3 stories or 50 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
Minor Street: 20 feet

10. Rear setback: 30 feet

Page 26 of 77
ARTICLE VIII – RM-2 MEDIUM-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

SECTION 802: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the RM-2 Medium Density Multiple Family Residential District
is to allow mixed land uses, which are compatible to each other, while prohibiting nonresidential uses which
would not be compatible or harmonious with residential dwellings. Where a development abuts a body of
water, public access to the waterfront must be provided. The minimum threshold for this public access must be
50% of the shoreline. This percentage may be reduced with the addition of quality waterfront public access
amenities as approved by the City Commission.

SECTION 803: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 14,520 sq. feet.

2. Density (see definition in Article II): 24 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 70%
Pavement: 20%

5. Lot width: 125 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 4 stories or 60 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
Minor Street: 20 feet

10. Rear setback: 30 feet

Page 27 of 77
ARTICLE IX – RM-3 HIGH-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

2. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

3. Uses similar to the above Special Land Uses Permitted.

SECTION 902: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the RM-3 High Density Multiple Family Residential District is
to allow mixed land uses, which are compatible to each other, while prohibiting nonresidential uses which would
not be compatible or harmonious with residential dwellings. Where a development abuts a body of water, public
access to the waterfront must be provided. The minimum threshold for this public access must be 50% of the
shoreline. This percentage may be reduced with the addition of quality waterfront public access amenities as
approved by the City Commission.

SECTION 903: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 21,780 sq. feet.

2. Density (see definition in Article II): 48 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 70%
Pavement: 20%

5. Lot width: 150 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 5 stories or 80 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
83

Page 28 of 77
ARTICLE XI – B-2 CONVENIENCE AND COMPARISON BUSINESS DISTRICTS

b. Limited to cats (felines) only.

c. Capacity: The establishment must provide 62 square feet per one (1) cat and no more than 15
on-site at any one time.

d. The cats shall always be kept separate from food preparation areas.

e. The boarding of cats shall take place entirely indoors.

f. Any cats leaving the establishment must be in a carrier.

g. A sign indicating a 24-hour emergency phone number shall be kept current and posted on the
site in a place clearly visible from the exterior.

16. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

17. Uses similar to the above Special Land Uses Permitted.

SECTION 1102: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the B-2 Convenience and Comparison Business Districts is to
allow mixed land uses which are compatible to each other, while prohibiting nonresidential uses which would
not be compatible or harmonious with residential dwellings. Where a development abuts a body of water, public
access to the waterfront must be provided. The minimum threshold for this public access must be 50% of the
shoreline. This percentage may be reduced with the addition of quality waterfront public access amenities as
approved by the City Commission.

SECTION 1103: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 10,890 sq. feet.

2. Maximum lot coverage:

Buildings: 70%
Pavement: 25%

3. Lot width: 100 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

4. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

5. Height Limit:

Maximum height: 2 stories or 35 feet
Minimum height: 2 stories or 35 feet

Page 29 of 77
ARTICLE XIII – B-4 GENERAL BUSINESS DISTRICTS

16. Cat Cafés, under the following conditions:

a. Keeping of domestic animals shall be consistent with the provisions of Chapter 26, noise, and
Chapter 70, nuisances/littering of the City’s Code of Ordinances.

b. Limited to cats (felines) only.

c. Capacity: The establishment must provide 62 square feet per one (1) cat and no more than 15
on-site at any one time.

d. The cats shall always be kept separate from food preparation areas.

e. The boarding of cats shall take place entirely indoors.

f. Any cats leaving the establishment must be in a carrier.

g. A sign indicating a 24-hour emergency phone number shall be kept current and posted on the
site in a place clearly visible from the exterior.

17. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

18. Uses similar to the above Special Land Uses Permitted.

SECTION 1302: PLANNED UNIT DEVELOPMENTS

Planned Developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the B-4 General Business Districts is to allow mixed land uses,
which are compatible to each other, while prohibiting nonresidential uses which would not be compatible or
harmonious with residential dwellings or permitted commercial uses. Where a development abuts a body of
water, public access to the waterfront must be provided. The minimum threshold for this public access must be
50% of the shoreline. This percentage may be reduced with the addition of quality waterfront public access
amenities as approved by the City Commission.

SECTION 1303: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 10,890 sq. feet.

2. Maximum lot coverage:

Buildings: 70%
Pavement: 25%

3. Lot width: 100 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

4. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

5. Height Limit:
109

Page 30 of 77
ARTICLE XIV – I-1 LIGHT INDUSTRIAL DISTRICTS

the signers of such petition are persons owning property within one thousand (1,000) feet of the
premises mentioned in said petition. Such petition shall also comply with other rules and
regulations as may be promulgated by the City Commission.

6. Wind turbine Facilities.

7. Marihuana microbusinesses, designated consumption establishments, class B recreational grows,
marihuana processing facilities without extraction methods classified as hazardous under the Michigan
Building Code, and temporary marihuana events.

8. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

9. Uses similar to the above Special Land Uses Permitted.

SECTION 1402: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the I-1 Light Industrial Districts is to allow mixed land uses,
which are compatible to each other, while prohibiting uses which would not be compatible or harmonious with
other uses permitted in the I-1 District. Where a development abuts a body of water, public access to the
waterfront must be provided. The minimum threshold for this public access must be 50% of the shoreline. This
percentage may be reduced with the addition of quality waterfront public access amenities as approved by the
City Commission.

SECTION 1403: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 21,780 sq. feet.

2. Maximum lot coverage:

Buildings: 85%
Pavement: 25%

3. Lot width: 100 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

4. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

5. Height limit: 3 stories or 50 feet

6. Front Setbacks:

119

Page 31 of 77
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: Case 2026-07: Staff-initiated request to
amend the zoning ordinance by eliminating B-3,
Central Business, and RT, Two-Family Residential
districts, and all other references to these districts
in the zoning ordinance.

Submitted by: Mike Franzak, Planning Director Department: Planning

Brief Summary:
Staff-initiated request to amend the zoning ordinance by eliminating B-3, Central Business, and RT,
Two-Family Residential districts, and all other references to these districts in the zoning ordinance.

Detailed Summary & Background:
The B-3, Central Business District has been replaced by the Form Based Code (FBC). All properties that
were zoned B-3 were rezoned to FBC in 2015 and there would be no reason to rezone any new
parcels to B-3. Once removed, Section 1200 (B-3) will be reserved for future use in the zoning
ordinance.

In 2025, all properties zoned RT, Two-Family residential were rezoned to R, Residential. The RT district is
no longer needed since zoning reform was passed in 2024. Duplexes may now be built in R districts.
Section 600 (RT) will be reserved for future use in the zoning ordinance.

Please see the attached files that show the removal of these references throughout the zoning
ordinance.

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 the request to amend the zoning ordinance by eliminating B-3, Central Business, and RT, Two-

Page 32 of 77
Family Residential districts, and all other references to these districts be recommended to the City
Commission for approval.

Approvals: Guest(s) Invited / Presenting:
Immediate Division X No
Head
Information
Technology
Other Division Heads
Communication
Legal Review

Page 33 of 77
ARTICLE XXIII – GENERAL PROVISIONS

approval of WSCF in the past, current FCC license holders, and any other entities requesting to be
included on the list. Copies of the notice letters shall be provided to the City at the time the application
is filed. If, during a period of 30 days after the notice letters are sent to potential users, a user or users
request, in writing, to co-locate on the new WCSF, the applicant shall accommodate the request(s),
unless co-location is not reasonably possible based on the criteria of this subsection.

Removal of Abandoned WCSFs:

All providers owning a wireless telecommunications support facility shall notify the zoning administrator when
the use of said tower located in the municipality will be discontinued and the date it will cease. Any WCSF which
is abandoned shall be removed or demolished within 90 days of abandonment. For the purposes of this section,
abandoned shall mean that no WCA or other commercial antenna has been operational and located on the
WCSF for 180 days or more.

Where a WCSF is abandoned but not removed or demolished as required, the City may remove or secure the
removal of the facility or required portions thereof, with its actual cost and reasonable administrative charge to
be placed on the property. A lien on the property shall be superior to all other liens except taxes.

SECTION 2322: DAY CARE/CHILD CARE FACILITIES

Foster Family Homes, Foster Family Group Homes, Family Day Care Homes, and Group Day Care Homes shall be
allowed as Principal Uses in the R, RT, RM-1, RM-2, and MC districts subject to the following provisions:

1. Such uses shall be duly licensed or registered by the State Department of Consumer and Industry
Services.

2. Buildings and lots so used shall conform to all State and local code requirements.

3. A minimum of 400 square feet of outdoor play area is available on the premises or within 500 feet of the
property.

Child Care Centers and Day Care Centers shall be allowed as Special Uses, subject to the provisions of Section
2332 in the R, RT, RM-1, RM-2, RM-3, B-1, OSR, LR, and WM districts. They shall also be allowed as Principal
Uses separately or as part of a building in the MC, B-2, B-3, B-4, I-1, and I-2 districts. Child Care Centers and Day
Care Centers, whether they fall under the Special Use of Principal Use category shall be subject to the following
provisions:

1. Such uses shall be duly licensed by the State Department of Consumer and Industry Services.

2. Buildings and lots so used shall conform to all State and local code requirements.

3. A minimum of 35 square feet of indoor play area shall be provided for each child. Play area shall be
computed exclusively of hallways, bathrooms, reception and office areas, kitchens, storage areas and
closets, and areas used exclusively for rest or sleep.

4. A minimum area of 1,200 square feet of outdoor play area shall be provided either on the premises or
at parks or other outdoor facilities that are easily accessible by walking or by transportation. Play area
shall not be hard-surfaced.
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ARTICLE XXIII – GENERAL PROVISIONS

SECTION 2332: SPECIAL LAND USES AND PLANNED UNIT DEVELOPMENTS

1. The Planning Commission shall have the power to review and in some cases approve applications as
authorized by State law or the following sections of this ordinance: Sections 401, 403, 515, 601, 602,
701, 702, 801, 802, 901, 902, 1001, 1002, 1101, 1102, 1201, 1202, 1301, 1302, 1401, 1402, 1501, 1502,
1601, 1602, 1701, 1702, 1801, 1802, 1901, 1902, 2001, 2002, 2101, 2317. A best faith effort shall be
made by the Planning Commission to process petitions for Special Uses and preliminary Planned Unit
Developments within 60 days. In the case of final Planned Unit Development plans, the City Commission,
after receiving a recommendation from the Planning Commission, shall approve, deny or approve with
conditions the petition within 60 days.

2. Applications, Filing Procedures, Fees

An application shall be filed with the Zoning Administrator who shall, in the case of Planned Unit
Developments, contain a statement of the cost thereof, who shall transmit the same, together with
plans, specification and other papers pertaining to the application to the Planning Commission.

Such application shall be heard within a reasonable time as prescribed by the rules and regulations of
the Planning Commission and State law.

The Zoning Administrator shall not receive any application without payment by the applicant to the City
Treasurer of the applicable fees as specified in the City’s Master Fee Schedule as adopted by a resolution
of the City Commission and in effect at the time of applications.

3. Hearings and Notices

After receipt of an application for a Special Land Use or PUD, a notice shall be published in a newspaper
of general circulation. In addition to such notice, a notice shall also be served personally or by mail to all
owners of real property of all structures within three hundred (300) feet of the property in question.
Such notice shall be given fifteen days prior to the hearing. If the owner is not known, the term occupant
may be used in making notification. The notice shall include:

a. The nature of the Special Land Use request.

b. A description of the property which is the subject of the Special Land Use request.

c. The location and date of the hearing.

d. Where and when written comments will be received.

Any party may appear at such hearing in person or by agent or attorney.

4. Discretionary decisions, standards, and conditions

Consistent with the City or Village Zoning Enabling Act (PA, 207, 1921, and amended), the Planning
Commission shall approve, deny or approve with conditions applications for Special Use or activities. The
standards upon which decisions are made shall be consistent with, and promote the intent and purpose
of the Zoning Ordinance, and insure that the land use or activity authorized shall be compatible with

208

Page 35 of 77
ARTICLE XXIII – GENERAL PROVISIONS

e. Changeable copy or message boards shall be part of a fixed, permanent sign and shall have rigid
letters.

f. Electronic message boards shall be permitted for all churches and businesses granted a special
use permit to operate in a residential district, provided:

i. One electronic message board shall be permitted per premise.

ii. Electronic message boards shall be dimmed at dusk.

iii. Electronic message boards shall not be permitted for home businesses.

7. Permitted signs in the MC, B-2, B-3, B-4, B-5, I-1, and I-2 zones:

a. Scope: Signs shall pertain exclusively to the business carried on within the building.

b. Lighting: Signs may be illuminated, but no flashing or moving illumination shall be permitted.

c. Number: One monument, or pole sign is permitted per property, regardless of the number of
businesses there, except that one additional freestanding sign may be erected per road frontage
when the development has parallel frontage on at least one major street or corner frontages on
at least one major street, totaling over 500 linear feet. Properties with frontage on Muskegon
Lake are permitted an additional monument or pole sign on the water frontage only.

d. Wall, Awning or Braquet Signs, Size: Signs shall not exceed ten (10) percent of the surface area
of the commercial portion of the front building face and may be placed on any wall. In the case
where the building is over one hundred feet (100’) from the road, this allotment may be 15% of
the front face of the storefront. In the case where the building is over 300 feet from the road,
this allotment may be 20% of the front face of the storefront. In the case where the property has
parallel frontage on at least one major street or corner frontage on at least one major street, this
allotment may be 15% of the front face of the storefront.

e. Wall, Awning or Braquet Signs, Placement: Signs shall be placed against the principal building or
on a canopy. Signs shall not project above the roof line or cornice. No wall sign shall interrupt or
conceal the architectural details of a building. A sign attached to a mansard shall be considered
a wall sign.

f. Changeable copy or electronic message boards: Shall be permitted provided:

i. One changeable or electronic message board shall be permitted per premise.

ii. Changeable copy boards shall be part of a fixed, permanent sign and shall have rigid
letters.

iii. Electronic message boards shall be dimmed at dusk.

iv. Electronic message board supports shall be at least seventy-five (75) feet from any
residential use or zone.

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ARTICLE XXIII – GENERAL PROVISIONS

TABLE IB: PARKING STANDARDS
NUMBER OF MINIMUM PARKING SPACES PER UNIT
USE
OF MEASURE
RESIDENTIAL & RELATED USES
One (1) space for each sleeping room, plus two (2)
Bed and breakfast operations
spaces for permanent residents.
One (1) space for each bedroom or each two (2)
Boarding houses, fraternities, sororities
occupants of the structure, whichever is greater.
Community residential care facilities < 6 persons Four (4) spaces.
One (1) space for each four (4) beds, plus one (1)
Convalescent homes, convents or similar uses
space for every three (3) employees.
Two (2) spaces for each mobile home site, plus one (1)
Mobile home parks
space for each mobile home park employee.
Multiple familyResidential dwellings One (1) space for each dwelling unit.
Single and two family dwellings One (1) space for each dwelling unit.
CIVIC, NONPROFIT, INSTITUTIONAL, PUBLIC & PRIVATE RECREATION & RELATED USES
Educational and social institutions:
 Auditoriums and gyms (incidental to) schools,
One (1) space for each six (6) seats, plus one (1) space
churches, & institutional buildings of similar
for every two (2) employees.
use with fixed seats
 Auditoriums (other than incidental to schools
and churches), lodge halls, fraternal One (1) space for every six (6) persons of legal
organizations, private clubs, public meeting capacity as established by fire, building or health
halls, community centers, or buildings of codes.
similar use without fixed seats
One (1) space for each four hundred (400) sq. ft. of
 Charitable or philanthropic organizations
usable floor area.
Two (2) per classroom, plus separate parking where
 Elementary and junior high schools the school contains an auditorium and/or stadium or
gym.
One (1) space for every employee, plus one (1) space
 High schools and colleges
for each five (5) students.
One (1) space for each three (3) patient beds, plus one
 Hospitals, sanitariums
(1) space for each three (3) employees.
 Orphanages One (1) per employee and one (1) per six (6) beds.
One (1) space for every eight hundred (800) sq. ft. of
Libraries, museums, post offices usable floor area, plus one (1) space for every four (4)
employees.
Nursery school, home day care or child care One (1) space for each four hundred (400) sq. ft. of
centers usable floor area.
One (1) space for every two (2) member families or
Private golf clubs, swimming pool clubs, tennis
individuals, plus spaces required for each accessory
clubs, lodges or other similar uses
use, such as a restaurant or bar.

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ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

PREAMBLE

The RT Two-Family Residential Districts are designed to be compatible with one (1) family residential densities,
and to be located along major thoroughfares so as to provide transition between the thoroughfare and one (1)
family district. The RT zones of transition between higher density RM and MHP Districts, or nonresidential
districts, and low density one (1) family residential districts.

SECTION 600: PRINCIPAL USES PERMITTED

In an RT Two-Family Residential District, no building or land shall be used and no building shall be erected,
structurally altered, or occupied except for one (1) or more of the following specified uses, unless otherwise
provided in this Ordinance:

1. One and two family detached dwellings.

2. Municipal, county, state, or federal buildings or properties of public service types, not including storage
yards, warehouses, or garages, provided that no such building shall be located less than thirty (30) feet
from any other lot in a residential district.

3. Cemeteries adjacent to, or an extension of, existing cemeteries.

4. Home occupations of a non-industrial nature may be permitted. Permissible home occupations include,
but are not limited to the following:

a. Art and craft studios, lessons may be given to one client at a time

b. Hair and nail salons, limited to one client at a time

c. Dressmaking and tailoring

d. Tutoring, limited to one student at a time

e. Typing or clerical services

f. Teaching of music or dancing or similar instruction, limited to one client at a time

g. Offices located within the dwelling for a writer, consultant, member of the clergy, lawyer,
physician, architect, engineer or accountant, limited to one client/family at a time.

h. All home occupations are subject to the following:

i. The businessperson operating the home occupation shall reside in the dwelling and only
members of the immediate family residing on the premises may be employed.

ii. The business shall have a local business license and any other appropriate licensing or
registrations required by local, state or federal law.

Page 38 of 77
ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

iii. No equipment or process shall be used in home occupations which creates noise,
vibration, glare, fumes, odor, or electrical interference detectable to the normal senses
of persons off the lot. In the case of electrical interference, no equipment or process shall
be used which creates visual or audible interference with any radio or television receivers
off the premises or causes fluctuations in the line voltage off the premises.

iv. Explosives, flammable liquids or combustible liquids shall only be used in compliance with
the applicable fire and building codes.

v. Activities involving kilns or welding equipment shall comply with the applicable fire and
building codes.

vi. The outside appearance of the premises shall have no visible evidence of the conduct of
a home occupation.

vii. Home occupations may not serve as headquarters or dispatch centers where employees
come to the site and are dispatched to other locations.

viii. All activity must be conducted within a preexisting structure. The home occupation shall
not require internal or external alterations or involve construction features not
customarily found in dwellings.

ix. There shall be no exterior display or signage other than that signage allowed for home
occupations under the sign requirements of this ordinance.

x. No goods shall be kept, or sold which are made or assembled off-site, except as incidental
to services rendered.

xi. The primary function of the premises shall be that of the residence of the family, and the
occupation shall not exceed twenty-five (25) percent of the principal building.

xii. There shall be no outside storage or processing.

xiii. The home occupation shall not involve the routine use of commercial vehicles for delivery
of materials to and from the premises. There shall be no commercial vehicles associated
with the home occupation, nor parking of more than one (1) business car, pickup truck or
small van on the premises.

xiv. Activities specifically prohibited (but not limited to) include:

(1) A service or repair of motor vehicles, appliances and other large equipment

(2) A service or manufacturing process which would normally require industrial
zoning

(3) A commercial food service requiring a license

(4) A limousine service

Page 39 of 77
ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

(5) A lodging service including but not limited to, a tourist home, motel or hotel

(6) A tattoo parlor

(7) An animal hospital or kennel

(8) A lawn service

xv. No activity legally excluded by any deed restriction or other tenant or owner restrictions
shall be permitted.

5. Adult Foster Care Family Homes, provided that such facility shall be at least one thousand five hundred
(1,500) feet from any other similar facility.

6. Accessory buildings and accessory uses customarily incidental to the above Principal Uses Permitted.

7. Uses similar to the above Principal Uses Permitted.

SECTION 601: SPECIAL LAND USES PERMITTED

1. Accredited fraternity or sorority houses, when located not less than twenty (20) feet from any other lot
in any R District.

2. Access driveway or walk connecting premises in a B or I District with one or more public streets provided
no part of such driveway shall be located at a distance greater than thirty (30) feet from any boundary
line of any said districts nor at a distance less than ten (10) feet of the side lot line of an adjoining lot,
which lot is in any residential district, and provided that between such driveway and any such side lot
line, but not within ten (10) feet of the front lot line, there shall be maintained a solid wall or front fence,
or a compact evergreen hedge not less than five (5) feet high.

3. Tourist homes having not more than two (2) guest rooms, provided the premises front on a street which
is officially designated as a major thoroughfare or collector thoroughfare.

4. Schools and colleges for academic instruction, provided that no principal building shall be located less
than thirty (30) feet from any other lot in an R District.

5. Private noncommercial recreation areas, institutional or community recreation centers provided that
any principal building used therefor shall be located not less than thirty (30) feet from any other lot in
any R District, subject to provisions of Section 401 - 1 (a through f).

6. Churches and other facilities normally incidental thereto subject to the following conditions:

a. The site shall be so located as to provide for ingress and egress from said site directly onto a
major or secondary thoroughfare.
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ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

b. The principal buildings on the site shall be set back from abutting properties zoned for residential
use not less than thirty (30) feet.

c. Buildings of greater than the maximum height allowed in Section 2100, may be allowed provided
front, side, and rear yards are increased above the minimum requirements by one (1) foot for
each foot of building that exceeds the maximum height allowed.

7. Adult Foster Care Small Group Homes, provided that such facility shall be at least one thousand five
hundred (1,500) feet from any other similar facility.

8. Previously existing or established commercial uses not already converted to a residential use may be
authorized under Special Use Permit for the following:

a. Retail and/or service establishments meeting the intent of the neighborhood Limited Business
Zone (B-1) dealing directly with consumers including:

i. Any generally recognized retail business which supplies new commodities on the
premises for persons residing in adjacent residential areas such as: groceries, meats, dairy
products, baked goods or other foods, drugs, dry goods, and notions or hardware.

ii. Any personal service establishment which performs services on the premises for persons
residing in adjacent residential areas, such as: shoe repair, drop-off dry cleaning shops,
tailor shops, beauty parlors, barber shops, dressmaker, tailor, pharmacist, or an
establishment doing radio, television, or home appliance repair, and similar
establishments that require a retail character no more objectionable than the
aforementioned, subject to the provision that no more than five (5) persons shall be
employed at any time in the sale, repair, or other processing of goods.

iii. Professional offices of doctors, lawyers, dentists, chiropractors, osteopaths, architects,
engineers, accountants, and similar or allied professions.

iv. Restaurants, or other places serving food, except drive-in or drive-through restaurants.

b. Prohibited uses: Activities specifically prohibited include repair or service of motor vehicles and
other large equipment; manufacturing processes which would normally require industrial zoning;
any activity which may become a nuisance due to noise, unsightliness or odor; and any activity
which may adversely affect surrounding property.

c. Conditions:

i. Outdoor storage is prohibited.

ii. The area devoted to approved uses shall not exceed 2,500 square feet.

iii. All goods produced on the premises shall be sold at retail on the premises where
produced.

Page 41 of 77
ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

iv. All business, servicing, or processing shall be conducted within a completely enclosed
building, or in an area specifically approved by the Planning Commission.

v. Parking shall be accommodated on site or with limited street parking.

vi. Hours of operation may be limited by the Planning Commission.

vii. Signs must comply with those set forth for the residential zoning district.

viii. The Planning Commission may allow a use to sell alcohol, however the Commission may
limit the type of license applied for or obtained for the sale of alcohol to an SDM, hours
of operation, and any other restrictions intended to stabilize, protect, and encourage the
residential character of the area. The use must gain approval from the Michigan Liquor
Control Commission before alcohol can be sold.

9. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

10. Uses similar to the above Special Land Uses Permitted.

SECTION 602: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the Two-Family Residential districts is to allow mixed land
uses which are compatible to each other, while prohibiting nonresidential uses which would not be compatible
or harmonious with residential dwellings.

SECTION 603: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 8,712 sq. feet.

2. Density (see definition in Article II): 10 dwelling units per buildable acre.

3. Maximum lot coverage:

Buildings: 50%
Pavement 10%

4. Lot width: 75 feet (shall be measured at road frontage unless a cul-de-sac, then measured from setback).

5. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

6. Height limit: 2 stories or 35 feet.

Page 42 of 77
ARTICLE VI – RT TWO-FAMILY RESIDENTIAL DISTRICTS[RESERVED]

7. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
Minor Street: 15 feet

Note: For minimum front setbacks new principal structures on minor streets may align with existing
principal structures in the immediate area even if the setback is below the minimum required.

8. Rear setback: 30 feet

9. Setback from the ordinary high-water mark or wetland: 40 feet (principal structures only).

10. Side setbacks:

1-story: 8 feet and 12 feet
2-story: 10 feet and 14 feet

Note, setback measurement: All required setbacks shall be measured from the right-of-way line to the
nearest point of the determined drip line of buildings.

11. Zero lot line option: New principal buildings may be erected on the rear lot line and/or one side lot line
provided:

a. The building has an approved fire rating for zero-lot line development under the building code.

b. The building has adequate fire access preserved pursuant to fire code requirements.

c. The zero lot line side is not adjacent to a street.

d. A maintenance access easement is granted by the adjacent property owner and recorded with
the County Register of Deeds and provided to the zoning administrator with the site plan or plot
plan.

e. It is not adjacent to wetlands, or waterfront.

12.1. The dwelling shall have a storage area in a basement located under the dwelling, in an attic area,
in closet areas, or in a separate structure of standard construction similar to or of better quality than the
principal dwelling, which storage area shall be equal to at least ten percent (10%) of the square footage
of the dwelling or one hundred (100) square feet, whichever shall be more, exclusive of storage space
for automobiles.

Page 43 of 77
ARTICLE VII – RM-1 LOW-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

ARTICLE VII – RM-1 LOW-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

PREAMBLE

The RM-1 Low-Density Multiple-Family Residential Districts are designed to provide sites for multiple family
dwelling structures, and related uses, which will generally serve as zones of transition between the
nonresidential districts and the lower density Neighborhood Residential and Two-Family Residential Districts,
and MHP Mobile Home Park Districts.

SECTION 700: PRINCIPAL USES PERMITTED

In an RM-1 Low-Density Multiple-Family Residential District no building or land shall be used and no building
shall be erected, structurally altered, or occupied except for one (1) or more of the following specified uses,
unless otherwise provided for in this Ordinance:

1. All Principal Uses Permitted in the R Neighborhood Residential and RT Two-Family Residential Districts
with the lot area, yard, and floor area requirements for one (1) and two (2) family dwellings equal to at
least the requirements of the immediately abutting residential district.

2. Multiple dwellings and row houses for any number of families.

3. Accredited fraternity and sorority houses when located not less than twenty (20) feet from any other lot
in any residential district.

4. Bed & Breakfast facilities, under the following conditions:

a. The owner or operator of the tourist home shall live full-time on the premises.

b. No structural additions or enlargements shall be made to accommodate the tourist home use
and no exterior alterations to the structure shall be made which will change the residential
appearance of the structure.

c. Breakfast may be served on the premises, only for guests of the facility, and no other meals shall
be provided to guests.

d. No long-term rental of rooms for more than fourteen (14) consecutive days shall be permitted.
No guest may stay for more than twenty-eight (28) nights in any given year.

e. There shall be a maximum of five (5) guestrooms. No more than two (2) adults are permitted to
stay in any guestroom.

f. Signage shall conform to that which is permitted for home occupation businesses only.

g. Rental of the tourist home for special gatherings such as wedding receptions and parties shall be
prohibited.

h. The property shall meet all local and state code requirements regarding bed and breakfast
facilities.

Page 44 of 77
ARTICLE VIII – RM-2 MEDIUM-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

ARTICLE VIII – RM-2 MEDIUM-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

PREAMBLE

The RM-2 Medium-Density Multiple-Family Residential Districts are intended to be selectively planned at
locations in the city so as to provide transition between nonresidential areas and One- and Two-FamilyR
Neighborhood Residential Districts, and between nonresidential areas and RM-1 Low-Density Multiple-Family
Residential Districts.

SECTION 800: PRINCIPAL USES PERMITTED

In an RM-2 Medium-Density Multiple-Family Residential District no building or land shall be used and no building
shall be erected, structurally altered, or occupied except for one (1) or more of the following specified uses,
unless otherwise provided for in this Ordinance:

1. All Principal Uses Permitted in the R Neighborhood Residential Districts, RT Two-Family Residential
Districts, and RM-1 Low-Density Multiple-Family Residential Districts, subject to the applicable
regulations of this District.

2. Accessory buildings and accessory uses customarily incidental to the above Principal Uses Permitted.

3. Adult Foster Care Large Group Homes.

4. Uses similar to the above Principal Uses Permitted.

SECTION 801: SPECIAL LAND USES PERMITTED

1. All Section 601 401 and 701 Special Land Uses Permitted in the RT Two-FamilyR Neighborhood
Residential Districts and RM-1 Low-Density Multiple Family Residential Districts, subject to the applicable
regulations of this District.

2. Adult Foster Care Congregate Facilities, provided that such facility shall be at least one thousand five
hundred (1,500) feet from any other similar facility.

3. Previously existing or established commercial uses not already converted to a residential use may be
authorized under Special Use Permit for the following:

a. Retail and/or service establishments meeting the intent of the neighborhood Limited Business
Zone (B-1) dealing directly with consumers including:

Page 45 of 77
ARTICLE X – B-1 LIMITED BUSINESS DISTRICTS

ARTICLE X – B-1 LIMITED BUSINESS DISTRICTS

PREAMBLE

The B-1 Limited Business Districts are designed primarily for the convenience of persons residing in adjacent
residential areas or neighborhoods, and to permit only such uses as are necessary to satisfy those limited basic,
daily shopping and/or service needs, which by their very nature are not similar to the shopping patterns of the
B-2 convenience and Comparison, B-3 Central Business District, and B-4 General Business Districts. B-1 Districts
are also intended to be utilized at planned locations in the city as zones of transition between major
thoroughfares and residential areas, and between intensive nonresidential areas and residential areas. In the B-
1 District all business establishments shall be retail and/or service establishments dealing directly with
consumers. All goods produced on the premises shall be sold at retail on the premises where produced. All
business, servicing or processing, except off-street parking or loading, shall be conducted within a completely
enclosed building, or in an area specifically approved by the City.

SECTION 1000: PRINCIPAL USES PERMITTED

In a B-1 Limited Business District no building or land shall be used and no building shall be erected, structurally
altered, or occupied except for one (1) or more of the following specified uses, unless otherwise provided for in
this Ordinance:

1. Any generally recognized retail business which supplies new commodities on the premises for persons
residing in adjacent residential areas such as: groceries, meats, dairy products, baked goods or other
foods, drugs, dry goods, and notions or hardware. No individual uses, either freestanding or in a group
of uses, shall exceed two thousand five hundred (2,500) square feet in area.

2. Any personal service establishment which performs services on the premises for persons residing in
adjacent residential areas, such as: Shoe repair, dry cleaning shops, tailor shops, beauty parlors, barber
shops, dressmaker, tailor, pharmacist, or an establishment doing radio, television, or home appliance
repair, and similar establishments that require a retail character no more objectionable than the
aforementioned, subject to the provision that no more than five (5) persons shall be employed at any
time in the sale, repair, or other processing of goods.

3. Professional offices of doctors, lawyers, dentists, chiropractors, osteopaths, architects, engineers,
accountants, and similar or allied professions. No individual use shall exceed two thousand five hundred
(2,500) square feet in area.

4. Office buildings for any of the following types of occupations: executive, administrative and professional.
No individual use shall exceed two thousand five hundred (2,500) square feet in area.

5. Residential uses as part of a building in this zone shall be allowed upon issuance of a Certificate of
Occupancy from the Department of Inspections, provided that the minimum lot area requirements of
the RM-1 District are met.

6. Accessory buildings and accessory uses customarily incidental to the above Principal Uses Permitted.

7. Uses similar to the above Principal Uses Permitted.

Page 46 of 77
ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

PREAMBLE

The City of Muskegon B-3 Central Business District is designed and intended to provide for and regulate land
and building uses so as to continue to create a shopping, living, cultural, governmental, office, heritage, and
institutional focal point for the City of Muskegon and the Muskegon Area. The District is designed to provide
flexibility to encourage a diversity of uses, yet provide regulatory standards to create and maintain a safe and
aesthetic environment.

SECTION 1200: PRINCIPAL USES PERMITTED

In the B-3 Central Business District, no building or land shall be used and no building shall be erected, structurally
altered, or occupied except for one (1) or more of the following specified uses, unless otherwise provided in this
Ordinance.

1. Retail sales of new merchandise and commodities provided that all sales are made from a completely
enclosed building except that this section shall not prohibit the sales of antique collector items, this
section shall prohibit the operation of a store whose primary sales are previously used products, except
as further regulated.

2. Professional and personal services of any type where any repair work done on the premises is incidental
to the service rendered.

3. Banks, including those with drive-in windows, and other financial institutions.

4. Restaurants, cocktail lounges and brewpubs.

5. Business schools, or private schools operated for profit. Examples of private schools permitted herein
include, but are not limited to, the following: dance schools, music and voice schools, and art studios.

6. Offices of business, government, and the professions.

7. Hotels and motels.

8. Indoor theaters.

9. Microbreweries, small wineries and small distilleries, as long as the brewing area is less than 2,500
square feet.

10. Residential uses as part of a building in this business zone shall be allowed upon issuance of Certificate
of Occupancy from the Department of Inspections.

11. Medical marijuana caregiver facilities to the extent licensed pursuant to City Code Sections 34-101
through 34-107.

12. Accessory buildings and accessory uses customarily incidental to the above Principal Uses Permitted.

13. Uses similar to the above Principal Uses Permitted.
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ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

SECTION 1201: SPECIAL LAND USES PERMITTED

The following uses, and their accessory buildings and accessory uses, shall be permitted under the purview of
Section 2332 after review and approval of the use (and a site plan, if required) by the Planning Commission,
after Public Hearing, subject to the applicable conditions and any other reasonable conditions imposed by the
Planning Commission.

1. Automobile service stations for the sale of gasoline, oil, and minor repair, not including major repair such
as engine rebuilding, undercoating, and similar industrially oriented activities and subject further to the
following:

a. The curb cuts for ingress and egress to a service station shall not be permitted at such locations
that will tend to create traffic hazards in the streets immediately adjacent thereto. Entrances
shall be no less than twenty-five (25) feet from a street intersection (measured from the
roadway) or from adjacent residential property, and subject to other Ordinances of the City.

b. The minimum lot area shall be ten thousand (10,000) square feet, and so arranged that ample
space is available for motor vehicles which are required to wait.

c. There shall be provided, on those sides abutting or adjacent to a residential district or residential
uses a four foot (4’) completely obscuring wall or fence. The height of the wall or fence shall be
measured from the surface of the ground.

d. All lighting shall be shielded from adjacent residential districts and from abutting streets.

2. Amusements and recreational facilities, including bowling alleys and skating rinks.

3. Commercial parking lots and parking structures.

4. Churches and other facilities normally incidental thereto subject to the following conditions:

a. The site shall be so located as to provide for ingress and egress from said site directly onto a
major or secondary thoroughfare.

b. The principal buildings on the site shall be set back from abutting properties zoned for residential
use not less than thirty (30) feet.

c. Buildings of greater than the maximum height allowed in Section 2100 may be allowed provided
front, side, and rear yards are increased above the minimum requirements by one (1) foot of
building that exceeds the maximum height allowed.

5. Specialized adult educational programs, under the following conditions:

a. The program must be associated with a school district.

b. No residency will be permitted in the facility.

c. The hours of operation will be limited to the regular school hours of the associated school district.

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Page 48 of 77
ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

d. The facility must be located either on a major street or within two (2) blocks of regular bus
service.

e. No more than 75 students can be associated with the program.

6. Live music concert halls, under the following conditions:

a. The business will operate in such a manner as to comply with the Noise Ordinance enacted by
the City of Muskegon. No music (either live or piped) will be permitted outside the building.

b. The business will maintain security staff, both inside and outside the building, at all times when
open to customers. Loitering will not be permitted on or around the site.

c. The business will not operate between the hours of 3:00am and 8:00am. No person of 16 years
of age or younger will be permitted within the business after midnight and must directly exit the
premises after that time.

d. The site and general vicinity will be maintained and litter-free, and will be checked for litter every
day before opening.

e. Security lighting will be provided for the site.

7. Multiple family residential uses of various types and densities. Any new multiple family construction shall
be compatible and/or complementary to the character of the surrounding area as determined by the
Planning Commission.

8. Private clubs, lodge halls, social and similar organizations, including assembly or rental halls.

9. Galleries and museums.

10. Antique shops.

11. Wind Turbine Facilities.

12. Microbreweries, small wineries and small distilleries with brewing areas larger than 2,500 square feet.

13. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

14. Uses similar to the above Special Land Uses Permitted.

SECTION 1202: PLANNED UNIT DEVELOPMENTS

Planned developments may be allowed by the Planning Commission under the procedural guidelines of Section
2101. The intent of Planned Unit Developments in the B-3 Central Business District is to allow mixed land uses,
which are compatible to each other, while prohibiting nonresidential uses which would not be compatible or
harmonious with residential dwellings or other commercial uses.

SECTION 1203: AREA AND BULK REQUIREMENTS

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ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

1. Minimum lot size: 4,000 sq. feet.

2. Maximum lot coverage:

Buildings: 100%
Pavement: 25%

3. Lot width: 30 feet (shall be measured at road frontage unless a cul-de-sac, then measured from setback).

4. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

5. Height Limit:

Maximum height: 6 stories or 90 feet
Minimum height: 2 stories or 35 feet

6. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 20 feet
Minor Street: 10 feet

Maximum:

Expressway, Arterial Street or Major Street: 50 feet
Collector Street: 40 feet
Minor Street: 30 feet

Note: For minimum front setbacks new principal structures on minor streets may align with existing
principal structures in the immediate area even if the setback is below the minimum required.

7. Rear setback: 10 feet

8. Setback from the ordinary high-water mark or wetland: 75 feet (principal structures only).

9. Side setbacks: no requirement

Note, setback measurement: All required setbacks shall be measured from the right-of-way line to the
nearest point of the determined drip line of buildings.

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ARTICLE XII – B-3 CENTRAL BUSINESS DISTRICT[RESERVED]

10. Zero lot line option: New principal buildings may be erected on the rear lot line provided:

a. The building has an approved fire rating for zero-lot line development under the building code.

b. The building has adequate fire access preserved pursuant to fire code requirements.

c. The zero lot line side is not adjacent to a street.

d. A maintenance access easement is granted by the adjacent property owner and recorded with
the County Register of Deeds and provided to the zoning administrator with the site plan or plot
plan.

e. It is not adjacent to wetlands, or waterfront.

11. All required side and rear setbacks shall be landscaped, greenbelt buffers, unless zero-lot-line is
employed for a structure or fire access. At least fifty percent of all required front setbacks shall be
landscaped and adjacent to the road right-of-way. An average minimum greenbelt of 10 feet shall be
maintained along each street frontage.

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ARTICLE XIII – B-4 GENERAL BUSINESS DISTRICTS

ARTICLE XIII – B-4 GENERAL BUSINESS DISTRICTS

PREAMBLE

The B-4 General Business District is designed to provide for a wide variety of business activities including
automotive services and goods, and is generally incompatible with the uses in the B-1, and B-2, and B-3 Business
Districts. Placement along presently developed major traffic arteries prevents the conflict of traffic and
pedestrian movement since the General Business District is characterized by a minimum of pedestrian flow. The
B-4 General Business Districts have been located in areas designated on the adopted Land Use Plan.

SECTION 1300: PRINCIPAL USES PERMITTED

In the B-4 General Business District, no building or land shall be used and no building shall be erected,
structurally altered, or occupied except for one (1) or more of the following specified uses, unless otherwise
providing in this Ordinance:

1. Veterinarian clinics, without outdoor kennels.

2. Bus passenger stations.

3. Stores selling second hand merchandise.

4. Funeral homes.

5. Automobile car wash, when completely enclosed in a building.

6. Auto service stations for the sale of gasoline, oil, and accessories, subject to the following:

a. The curb for ingress and egress to a service station shall not be permitted at such locations that
will tend to create traffic hazards in the streets immediately adjacent thereto. Entrances shall be
no less than twenty-five (25) feet from a street intersection (measured from the road right-of-
way) or from adjacent residential districts.

b. The minimum lot area shall be ten thousand (10,000) square feet, and so arranged that ample
space is available for motor vehicles which are required to wait.

c. Major automobile repair, engine and body repair, steam cleaning and undercoating may be
allowed when conducted on the site, and said uses shall be within a completely enclosed building.
The storage of wrecked automobiles on the site shall be obscured from public view. No
automobile or vehicle of any kind shall be stored in the open for a period exceeding one (1) week.

d. All rest rooms doors shall be shielded from adjacent streets and residential districts.

e. Dispensing pumps shall be set back twenty (20) feet from the right-of-way line.

7. Self-service laundry and dry cleaning establishments.

8. Amusement, entertainment, and recreational, including bowling alleys and skating rinks.

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ARTICLE III – ZONING DISTRICTS AND MAP

ARTICLE III – ZONING DISTRICTS AND MAP

SECTION 300: DISTRICTS

For the purposes of this Ordinance, the City of Muskegon is hereby delineated in the following Districts:

R Neighborhood Residential
MHP Mobile Home Park
RT Two Family Residential
RM-1 Low Density Multiple Family Residential
RM-2 Medium Density Multiple Family Residential
RM-3 High Density Multiple Family Residential
MC Medical Care
B-1 Limited Business
B-2 Convenience and Comparison Business
B-3 Central Business
B-4 General Business
B-5 Central Governmental Service
I-1 Light Industrial
I-2 General Industrial
WI-PUD Waterfront Industrial Planned Unit Development
OSC Open Space Conservation
OSR Open Space Recreation
LR Lakefront Recreation
WM Waterfront Marine
FBC Form Based Code

SECTION 301: BOUNDARIES

The boundaries of these Districts are hereby established as shown on the Official Zoning Map which
accompanies this Ordinance, and which map with all notations, references, and other information shown
thereon shall be as much a part of this Ordinance as if fully described herein.

1. Unless shown otherwise, the boundaries of the Districts are lot lines, section lines, the centerlines of
streets, alleys, roads, or such lines extended, and the Corporate Limits of the City of Muskegon.

2. Where, due to the scale, lack of detail, or illegibility of the Zoning Map accompanying this Ordinance, if
there is any uncertainty, contradiction or conflict as to the intended location of any District boundaries,
shown thereon, interpretation concerning the exact location of District boundary lines shall be
determined by the Board of Appeals, upon written application.

SECTION 302: ZONING OF VACATED AREAS

Whenever any street, alley or other public way within the City of Muskegon shall have been vacated by official
government action, and when the lands within the boundaries thereof attach to and become a part of the land
formerly abutting such vacated street, alley or public way shall automatically, and without further governmental
actions, thenceforth acquire and be subject to the same zoning regulations as are applicable to the lands to

Page 53 of 77
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: Case 2026-08: Staff-initiated request to
amend Section 404 of the zoning ordinance to
establish maximum lot widths in R, Neighborhood
Residential districts.

Submitted by: Mike Franzak, Planning Director Department: Planning

Brief Summary:
Staff-initiated request to amend Section 404 of the zoning ordinance to establish maximum lot widths
in R, Neighborhood Residential districts.

Detailed Summary & Background:
Currently, the zoning ordinance requires a minimum width of 30 feet for residential lots.
In the Form Based Code, there is also maximum lot widths, which is 60 feet. This request is to make this
same standard a requirement in all R, Residential districts, not just Form Based Code districts. Minimum
lot widths for single-family (30), duplexes (40) and triplexes (50) will remain the same.

The master plan references the need for zoning restrictions that would eliminate the possibility of
combining several lots, which reduces housing development. See Goal 2 and Recommendation 2 in
the master plan attachment.

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 the request to amend Section 404 of the zoning ordinance to establish maximum lot widths in
R, Neighborhood Residential districts be recommenced to the City Comission for approval.

Approvals: Guest(s) Invited / Presenting:
No

Page 54 of 77
Immediate Division X
Head
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Other Division Heads
Communication
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Page 55 of 77
ARTICLE IV – R NEIGHBORHOOD RESIDENTIAL DISTRICTS

5. Spacing: The distance between buildings shall not be less than 10 feet and front setbacks shall not be
less than 10 feet.

6. Waterfront: Where a cluster development abuts a body of water, at least 50% of the shoreline, as well
as reasonable access to it, shall be a part of the common open space land.

7. Utility of common open space: Common open space in any one residential cluster shall be laid out, to
the maximum extent feasible, to connect with other open space existing or proposed.

8. Size: Minimum parent parcel size is 21,780 square feet (one-half acre).

SECTION 404: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 3,000 sq. feet.

2. Maximum lot coverage:

Buildings: 70%
Pavement 20%

*When a lot is covered over 80% by the combination of buildings and pavement, the remaining
amount of pavement allowed must be pervious.

3. Lot width: 30 feet

Minimum: 30 feet
Maximum: 60 feet

(*Shall be measured at road frontage unless a cul-de-sac, then measured from setback).

4. Height limit: 2 stories or 35 feet. Exception: Homes located in an established Historic District may be up
to 3 stories or 45 feet, if found to be compatible with other homes within 600 feet.

5. Front Setbacks:

Minimum: 10 feet
Maximum: 30 feet

Page 56 of 77
Goal 2: Infill vacant residential lots with new housing options.
Discussion

Like any developed city, Muskegon has a limited supply of developable land and few opportunities for greenfield housing
development. While this plan touches on interim measures for managing the city’s significant supply of publicly- and
privately-owned vacant residential lots, the long-term strategy is to return these properties to productive use through the
construction of infill housing. This is easier said than done, and a multifaceted approach to efficient use of available land
is needed to achieve the many other interrelated goals of this plan.

As discussed in Goal 1, a reduction in Muskegon’s housing stock can be partially attributed to housing demolitions
outpacing construction of new housing. As the hundreds of vacant residential lots throughout the city once contained
houses, their redevelopment will be critical in addressing the current housing shortage.

When considering how to efficiently develop the city’s remaining available land it is worth revising Muskegon’s historic
population statistics. The city’s peak population was reported in the 1950 census at nearly 50,000; in the decades since,
the population has steadily declined, but what is often overlooked is the substantial growth in the city’s total land area in
that same timespan.
“Density” is a term that can be unclear in its definition. When used in
While Muskegon’s total population has this plan, density typically refers to the number of dwelling units – i.e.
declined to just under 80% of its 1950 peak, houses or apartments – per acre of land developed. One house on a lot
the gross population density has declined at that is an acre in size has a density of one dwelling unit per acre (often
an even greater rate. It is estimated that written 1 DU/Acre). One house on a lot that is 1/10th of an acre in size
current population density – about 4.23 has a density of ten dwelling units per acre (10 DU/Acre) as does a ten-
people per acre – is about 55% of unit apartment building on a lot that is one acre in area. The more
Muskegon’s population density in 1950. dwelling units existing or planned within a given area of land, the higher
the residential density.

160.0%

140.0%

120.0%

100.0%

80.0%

60.0%

40.0%

20.0%

0.0%
1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2020

Percent of Peak Population Percent of Peak Population Density

With such a drastic reduction in population and population density, it is critical that Muskegon better utilize existing
infrastructure. Having been built out for a far larger population, the vacant land found in many areas does not contribute
to the expenses associated with existing infrastructure and services, and instead shifts those costs onto the remaining
residents.

City of Muskegon Master Land Use Plan Housing & Neighborhoods |8
Page 57 of 77
Requests from property owners to purchase adjacent vacant lots for larger yards may sound reasonable, but it is
imperative that the cost of the services and infrastructure for those properties be considered. Additional yard space
generates little additional property taxes, whereas building a new house would replenish the property taxes lost when the
previous house was demolished. This loss can be significant for an individual lot, so it is critical to calculate the cost when
the same situation happens many times over.

A residential lot containing a single house that has grown to be nearly 1.5 acres through acquisition of surrounding vacant
lots that formerly contained houses. This property does not contribute nearly enough in property taxes to pay for the
infrastructure serving it – in this case, 475 total feet of street. The community as a whole is subsidizing the private, almost
rural, quality afforded to this lot.

City of Muskegon Master Land Use Plan Housing & Neighborhoods |9
Page 58 of 77
Recommendations

H2.1 Track vacant property in the city and utilize the information in marketing pieces and sale policies.

Maintain maps of vacant residential properties and develop marketing initiatives to educate and inform potential
developers and homebuilders on development opportunities. Maintain a lot sale policy that incentivizes projects
that meet the City’s current housing goals.

H2.2 Educate and partner with other groups or individuals that own large quantities of vacant land in the city
(Muskegon County, State of Michigan, private property owners) to create additional opportunities for infill
housing construction on vacant lots, regardless of ownership.

The City, State, and County have separate lot sale policies and differing reasons to dispose of property, which
complicates redevelopment efforts. Improved communication efforts between governmental agencies should
help make each aware of the others’ goals.

Establish an intergovernmental policy addressing the sale of vacant property that ensures appropriate
redevelopment and responsible use of the city’s limited supply of land.

Land use regulations and lot sale policies should prohibit combining multiple properties without appropriate
development. The City of Muskegon Policy for the Use & Sale of City-Owned Residential Property serves as a step
in the right direction, but codifying this policy would need to come in the form of maximum lot size regulations
incorporated into the zoning ordinance.

H2.3 Partner with developers to construct infill housing. Explore unique development agreements that utilize the City’s
resources that pair with a developer’s strengths to construct new housing in established residential areas.

Structure development agreements to enable new housing that addresses the range of needs and price points
seen in the community (affordability, accommodating various family sizes, etc.).

H2.4 Involve a wide range of developers to ensure variety in housing products and to provide architectural diversity.
Require individual developers to provide multiple floorplans and interior layouts that draw from the needs and
architectural styles of the immediate neighborhood.

Create Request for Proposals that seek developers that provide Infill housing in neighborhoods that contribute to
the diverse architectural history of the city’s neighborhoods and avoid creating repetitious floorplans and/or
designs.

When building new housing in concentrated areas, it is important to encourage diversity in architecture. While
home styles should fit in with the rest of the neighborhood, it will be best to avoid duplicated designs within close
proximity to one another.

City of Muskegon Master Land Use Plan Housing & Neighborhoods | 10
Page 59 of 77
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: Case 2026-09: Staff-initiated request to
amend Sections 703, 803, and 903 to set
minimum density requirements for multi-family
housing districts.

Submitted by: Department: Planning

Brief Summary:
Staff-initiated request to amend Sections 703, 803, and 903 to set minimum density requirements for
multi-family housing districts.

Detailed Summary & Background:
The zoning ordinance sets maximum density requirements for multi-family housing. These standards
can be viewed in the RM-1 (Low-Density Multiple-Family), RM-2 (Medium-Density Multiple-Family), and
RM-3 (High-Density Multiple-Family) sections of the zoning ordinance.

Staff is proposing to set a minimum density requirement in these districts as well, to ensure the proper
amount of housing in each development. Currently, a property zoned RM-3, designated for the
highest density, could use the development standards of the RM-1 districts, which would allow for the
development of a lone, single-family house.

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 the request to amend Sections 703, 803, and 903 to set minimum density requirements for
multi-family housing districts be recommended to the City Commission for approval.

Approvals: Guest(s) Invited / Presenting:
No

Page 60 of 77
Immediate Division X
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Page 61 of 77
ARTICLE VII – RM-1 LOW-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

SECTION 703: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 10,890 sq. feet.

2. Density (see definition in Article II): 16 dwelling units per buildable acre.

Minimum: 14 dwelling units per buildable acre.
Maximum: 16 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 60%
Pavement: 20%

5. Lot width: 100 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 3 stories or 50 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
Minor Street: 20 feet

10. Rear setback: 30 feet

11. Setback from the ordinary high-water mark or wetland: 50 feet (principal structures only).

Page 62 of 77
ARTICLE VIII – RM-2 MEDIUM-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

SECTION 803: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 14,520 sq. feet.

2. Density (see definition in Article II): 24 dwelling units per buildable acre.

Minimum: 17 dwelling units per buildable acre.
Maximum: 24 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 70%
Pavement: 20%

5. Lot width: 125 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 4 stories or 60 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
Minor Street: 20 feet

10. Rear setback: 30 feet

11. Setback from the ordinary high-water mark or wetland: 50 feet (principal structures only).

Page 63 of 77
ARTICLE IX – RM-3 HIGH-DENSITY MULTIPLE-FAMILY RESIDENTIAL DISTRICTS

2. Accessory buildings and accessory uses customarily incidental to the above Special Land Uses Permitted.

3. Uses similar to the above Special Land Uses Permitted.

SECTION 902: PLANNED UNIT DEVELOPMENTS

SECTION 903: AREA AND BULK REQUIREMENTS

1. Minimum lot size: 21,780 sq. feet.

2. Density (see definition in Article II): 48 dwelling units per buildable acre.

Minimum: 25 dwelling units per buildable acre.
Maximum: 48 dwelling units per buildable acre.

3. Dedicated open space requirement: 15%

4. Maximum lot coverage:

Buildings: 70%
Pavement: 20%

5. Lot width: 150 feet (shall be measured at road frontage unless a cul-de-sac, then measured from
setback).

6. Maximum building width: 50% (as a portion of the lot width).

7. Width to depth ratios: The depth of any lot(s) or parcel(s) shall not be more than three (3) times longer
its width.

8. Height limit: 5 stories or 80 feet.

9. Front Setbacks:

Minimum:

Expressway or Arterial Street: 30 feet
Collector or Major Street: 25 feet
82

Page 64 of 77
Agenda Item Review Form
Muskegon Planning Commission
Commission Meeting Date: March 12, 2026 Title: 2026 Goal Setting

Submitted by: Mike Franzak, Planning Director Department: Planning

Brief Summary:
The Planning Commission discussed potential goals at the February meeting. Staff was asked to
number the goals in order. Please see the attached list.

Detailed Summary & Background:
The Planning Commission discussed potential goals at the February meeting. Staff was asked to
number the goals in order. Please see the attached list.

Goal/Focus Area/Action Item Addressed:

Key Focus Areas:

Goal/Action Item:
2027 Goal 1: Destination Community & Quality of Life

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 2026 Planning Commission goals as proposed.

Approvals: Guest(s) Invited / Presenting:
Immediate Division X No
Head
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Other Division Heads
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Page 65 of 77
Potential 2026 Planning Commission Goals

1. Institute residential lot-width maximums in R districts. These already exist in FBC districts.

2. Consolidating some commercial zoning districts (B-1, B-2, etc.) & eliminating obsolete
zoning designations (RT, B-3).

3. Rezone business districts to FBC where appropriate. Identify B-1, B-2, & B-4 commercial
districts that would function better as FBC.

4. Signage ordinance updates.

5. Incorporating low impact design standards. Here is a good example of LID parking lot
improvements.

6. Updating landscaping requirements (amount of landscaping required, vegetation buffers
along the waterfront, more street trees, etc.)

7. Identifying community needs as it pertains to PUD’s

Page 66 of 77
2025 MASTER PLAN
PROGRESS REPORT

Page 67 of 77
Master Plan Progress Report
The charts in this report outline the progress made on the goals and action steps listed in the master plan. A green highlight indicates
that progress has been made for the specific recommendation. The yellow highlight explains in detail what progress has been made.

Page 68 of 77
ECONOMIC DEVELOPMENT
Goal 1: Bolster business retention, expansion, and attraction initiatives with a robust portfolio of economic development programs and
services.
Recommendation Time Frame Task Leaders
E1.1 Maintain an up-to-date tax abatement policy. Ongoing DS
The Development Services Division maintains the tax abatement policy and currently reviews abatement requests as a team, using the policy
to guide its recommendations to the Commission. The policy was updated again in 2025.
E1.2 Identify land for future business expansion. Ongoing DS
Staff is working to find a developer for the remaining parcel in the Port City Industrial Park that was acquired from the jail. Staff also continues
to work with existing businesses on expansion projects.
Goal 2: Create viable commercial corridors and neighborhood commercial/social nodes
E2.1 Invest in placemaking opportunities that capitalize on community assets. Ongoing DS, PC, DDA, DPW
The city adopted an Accessory Commercial Unit ordinance utilizing the community nodes identified in the future land use map.
E2.2 Encourage the formation of business district associations and develop corridor Ongoing DS
improvement plans for active business districts.
Staff has created a Corridor Improvement Checklist that will assist business owners in establishing business associations, addressing corridor
issues, and creating a vision for their corridor. The Checklist is intended to incrementally improve business corridors rather than developing
full-scale corridor improvement plans that may not be necessary. Staff is currently working with businesses on Getty St to determine the best
path forward for improvements to the corridor. The Apple Ave Corridor Improvement Plan was completed 2024, which includes a new street
design that was approved by the City Commission in 2025.
E2.3 Support retail development, growth, and expansion through zoning amendments Now DS, PC
and economic incentives that encourage a range of potential unit sizes.
The city continues to operate Western Market. However, the space for the Century Club is for sale and small retailers may lose their space.
Staff will research possible zoning amendments and the tax abatement policy for ways to address the need for smaller retail spaces. City staff
continues to encourage developers to provide smaller retail spaces, however, we do not currently have any incentives specific to this goal.
Properties along Peck, Beidler and 3rd St (Midtown) were rezoned to bring these existing businesses into conformance and allow new business
expansion.
E2.4 Promote walkability through pedestrian-focused ground-level activities and use Now DS, PC
micro-transit to bridge long distances.

Page 69 of 77
Staff updated the outdoor seating policy in 2024 and continues to approve outdoor seating requests. A new food truck parking lot has opened
behind the Corner building next to Hackley park. The city continues to operate the downtown tram service. The city started operating a
beach shuttle to transport people to the beach. Electronic scooters were briefly available in the summer of 2023, but an official contract
never materialized.
E2.5 Simplify zoning regulations to permit flexibility in business types. Now DS, PC
The zoning ordinance was amended to allow marinas in the Lakeside FBC. It was also amended to allow for cat cafes in numerous zoning
districts. Additional efforts are needed to increase allowable use-types for existing commercial building within neighborhoods. The Accessory
Commercial Unit ordinance was approved.
Goal 3: Create opportunities for local residents to participate in the workforce.
E3.1 Improve workforce training efforts and opportunities. Now DS
E3.2 Create a pipeline of workforce talent from schools to local industries. Now DS
Goal 4: Create a business community that is reflective of the diversity of the city.
E4.1 Help create networking and mentoring opportunities for those interested in local Now DS, COM
business opportunities.
E4.2 Create a community engagement portal to address the concerns and needs of Now DS, COM
local entrepreneurs.
The Corridor Improvement Checklist was created to address business-owner concerns. Staff continues to meet with different business
corridors.
Goal 5: Utilize our natural resources to develop a strong blue economy.
E5.1 Increase and enhance publicly-accessible amenities along the waterfront and Ongoing DS, PC
soften shorelines where possible.
The land swap project was approved, which will increase publicly-accessible amenities along the waterfront.
E5.2 Become regionally and nationally designated by organizations that will bring Next DS
visibility and economic development to Muskegon Lake.
The city participated in the creation of the Shoreline Trails and Greenways Plan.
Goal 6: Provide a diverse supply of housing options that focuses on infill development.
E6.1 Maintain a database of available lots and incentives for residential development Now DS
The Planning Department maintains an online database/map of available city-owned, vacant residential properties.
E6.2 Engage with developers to create agreements to provide diverse types of housing Ongoing DS
options.
The Planning Department continues to work with developers on lot sales, requiring them to maximize unit counts by utilizing the most
efficient site layouts.

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Transportation and Mobility
Goal 1: Design streets to safely accommodate all users of the street equitably, putting people first.

Recommendation Time Frame Task Leaders
T1.1 Develop a consistent approach to evaluating the conditions of city streets to Ongoing DPW
ensure that they are sized appropriately and designed to serve all users. Prioritize
traffic studies and design interventions on streets identified as those which
impede safe, comfortable, and convenient travel for all users.
T1.2 Create and maintain a detailed inventory of existing, typical street design Now DPW, DS
components used throughout the city including, but not limited to, right-of-way
width, pavement width, travel and parking lane configuration, intersection
treatments, design speeds and posted speed limits.
The City entered into a three-year contract for traffic volume and speed data software to address traffic mobility across the city.
T1.3 Establish and adopt street design standards that consider existing, typical street Now DPW, DS
design components and incorporate best practices in urban street design and
construction. Complete all new street design projects in a way that exemplifies a
safe streets approach and promotes safe, comfortable, and convenient use of the
street by all.
Staff continues work on developing formal street design standards.
Goal 2: Strengthen walkability, accessibility, and connectivity at major corridors and neighborhood centers.

T2.1 Incorporate pedestrian and other active transportation amenities into the design Now DPW, DS
of streets at commercial corridors and community nodes that improve access and
mobility for all users.
The Apple Ave redesign includes reduced driving lanes and includes a new bike lane. The Lakeshore/Laketon Trail Connector on Sanford and
Terrace designs were approved and will be constructed in 2026.
T2.2 Maintain the existing street grid and reestablish it where it has been lost. Ongoing DPW, DS
Goal 3: Establish a local funding source for street right-of-way improvements.

T3.1 Launch a citizen education campaign to increase the general understanding of Next DPW, DS, COM
the means of financing public right-of-way projects and ongoing maintenance
needs.
T3.2 Consider methods of establishing local funding for right-of-way projects and Next DPW, DS, CM
maintenance

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Goal 4: Improve access to public transportation.

T4.1 Partner with MATS to complete improvements to the public realm surrounding Now DPW, DS
bus stops throughout the city.
T4.2 Within 1/4-mile of existing bus stops in residential areas, enable transit- Now DS, PC
supportive housing densities/a housing supply that can support transit.
Properties along Peck St were rezoned to FBC, allowing denser developments, especially the properties closest to Laketon Ave.
T4.3 Partner with MATS to ensure public transportation options that service new or Ongoing DS, CM
planned housing, employment, and commercial centers.
Goal 5: Utilize less land for vehicle parking throughout the city.

T5.1 As parking demand fluctuates, travel habits change, and new development Ongoing DS, DPW
occurs, follow the strategies outlined in the City of Muskegon Parking Strategy,
expanding the area of focus.
The zoning ordinance was amended to reduce the minimum number of parking spaces required for residential units from two to one.
T5.2 Make better use of on-street parking where it exists and/or where it can be Now DS, DPW
accommodated.
The Traffic Committee regularly reviews parking restrictions city-wide.
Goal 6: Promote and improve active transportation through maintenance and expansion of the network of sidewalks and nonmotorized trails.

T6.1 Establish an active transportation plan. Next DS, DPW
The Shoreline Trails and Greenways plan was completed in 2025. An ongoing committee meets to address implementation of the plan.
T6.2 Using the plan as a guide, expand the city’s active transportation network. Next DS, DPW
Goal 7: Require new developments to incorporate strong connections to the existing transportation network.

T7.1 Update the City’s subdivision standards to encourage expansion of the existing Now DS
street grid into newly-platted areas, creation of small blocks, and to restrict
construction of new disconnected streets.
T7.2 When reviewing new developments, involve public transportation entities to Ongoing DS
incorporate connections that serve new residents.
T7.3 Ensure that all new development located adjacent to existing or proposed non- Ongoing DS, PC
motorized transportation facilities provides intentional public connections to
those facilities.
Goal 8: Establish a process to complete quick-build street projects to improve safety within the city’s neighborhoods.

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T8.1 Create a series of steps for neighborhood associations and business Now DS, DPW
improvement districts to follow when requesting alterations to streets.
T8.2 Establish a means of measuring the success of projects undertaken through the Now DS, DPW
quick-build program, consistently building on successful projects and evaluating
failures.
Goal 9: Inventory and establish a policy for alley vacations and establishment of new alleys.

T9.1 Encourage increased and continued use of public alleys through an improved Now DS, DPW
maintenance plan, a more rigid access management policy, and education on
and, when necessary, enforcement of parking regulations.
The city continues to utilize grant funding to pave public alleys and offers residents the option to improve their alleys.
T9.2 Adopt standards for approving future requests for alley vacations. Next DS, DPW
Goal 10: Ensure transportation connections to the greater region and other population centers.

T10.1 Seek partnerships with public transportation services in neighboring Ottawa and Next DS, DPW
Kent Counties to establish connections to their population centers and
associated transportation options.
T10.2 Establish more frequent, state-wide bus service to and from Muskegon. Next DS, CM
T10.3 Lobby for extension of passenger rail service to Muskegon. Study the feasibility Next DS, CM
of passenger rail connections to Muskegon.

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Housing & Neighborhoods
Recommendation Time Frame Task Leaders
Goal 1: Adopt policies that provide housing choice within all neighborhoods.

H1.1 Evaluate existing land uses throughout the city to determine where housing Now DS
options can best be integrated into the city’s neighborhoods.
Zoning reform was approved in 2024. Duplexes, triplexes and ADU’s are now allowed in all residential zoning districts. Later amendments
included the addition of cottage courts.
H2.2 Study the needs of neighborhoods as well as shortcomings and weaknesses in Now DS
the city’s housing stock.
The Development Services Department plans on updating the housing needs study in 2026. A housing dashboard is being developed to track
ongoing progress towards the city’s housing goals.
H3.3 Foster public-private partnerships that assist in the creation of affordable Now DS
housing units.
The city was awarded six LIHTC developments in the past two years and staff continues to work with developers on providing affordable
housing units, including the newly created scattered site PILOT agreements.
Goal 2: Infill vacant residential lots with new housing options.
H2.1 Track vacant property in the city and utilize the information in marketing pieces Ongoing DS
and sale policies.
Vacant, city-owned properties can be found on the City’s website here. The lot sale policy was updated in 2025.
H2.2 Educate and partner with other groups or individuals that own large quantities Next DS
of vacant land in the city (Muskegon County, State of Michigan, private property
owners) to create additional opportunities for infill housing construction on
vacant lots, regardless of ownership.
The County of Muskegon has partnered with Allen Edwin Homes to build 30 homes. Planning Department staff has begun compiling a list of
privately-owned buildable lots.
H2.3 Partner with developers to construct infill housing. Explore unique development Ongoing DS, CM
agreements that utilize the City’s resources that pair with a developer’s strengths
to construct new housing in established residential areas.
The Development Services Division continues to work with a wide variety of developers, many of them local.
H2.4 Involve a wide range of developers to ensure variety in housing products and to Ongoing DS
provide architectural diversity. Require individual developers to provide multiple

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floorplans and interior layouts that draw from the needs and architectural styles
of the immediate neighborhood.
The Planning Department continues to work with a wide variety of large and small-scale developers to build housing. We continue to sell lots
for a mixture of different housing types and sizes, including duplexes, ADU’s and smaller houses under 600 sf. City staff is developing pre-
approved housing plans that developers can utilize.
Goal 3: Create walkable community nodes within a short distance of all residents.
H3.1 Identify existing or potential community nodes in each city neighborhood to Now DS
serve as a strong center(s) from which the neighborhood can orient itself and
build upon.
Community nodes have been identified and incorporated into the future land use map. An Accessory Commercial Unit ordinance was
approved in 2025, using the community nodes identified in the future land use map.
H3.2 Update land use regulations to permit better integration of different land uses at Now DS, PC
identified community nodes.
The rezonings on Peck St, Beidler, Midtown, and Lakeshore Dr have allowed for a variety of land uses and reinforced these locations as
community nodes.
Goal 4: Require new development to provide identified public amenities for existing and future residents.
H4.1 Work with developers of major projects to incorporate needed amenities as Now DS
identified by neighborhood residents.
H4.2 Create a database that identifies the public amenity needs of certain areas. Ongoing DS
Developers that are seeking information on potential investments can be notified
early on about the needs of the community.
Goal 5: Encourage participation in neighborhood associations to create strong neighborhoods with invested
residents empowered to address their common needs.
H5.1 Provide staff assistance to neighborhood associations so they have the ability to Ongoing DS
meet regularly and have the knowledge to legally operate.
The city continues to host the monthly Neighborhood Associations of Muskegon (NAM) meetings at City Hall.
H5.2 Offer financial incentives to neighborhood associations that partner with the city Ongoing DS, CM
on general maintenance and services that would otherwise go unaddressed.
The city continues to provide the Neighborhood Empowerment Program grants to individual neighborhood associations.
Goal 6: Strive to protect existing neighborhood residents from displacement and safeguard the cultural practices of diverse groups within
the same space.
H6.1 Create programs and partnerships with neighborhood associations and Ongoing DS, CM
neighborhood task forces to limit the negative effects of reinvestment and
ensure that existing residents benefit from such changes.

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H6.2 Continue to offer and expand housing stability programs. Ongoing DS
H6.3 Continue to provide affordable housing units in all neighborhoods. Ongoing DS, PC
In 2025, the city programmed 121 units (between single family and duplex homes) of scattered site PILOT housing that will create affordable
housing units with reduced taxes. We have also programmed 294 units for LIHTC development, which include subsidized apartment units
available for those making between 30-120% of area median income. These projects include Froebel School, Apple Crossings, Amity Crossings,
Allen Crossings, Nelson School and Pivotal (former McDonalds on Webster Ave).

Natural Features
Goal 1: Protect the quality of the Muskegon Lake watershed.

Recommendation Time Frame Task Leaders
N1.1 Implement land-use regulations that will help filter and clean water before it Now DS, PC
enters the watershed.
N1.2 Create a program through which lakefront property owners can receive funding Next DS, DDA
to plant native vegetation along their property.
N1.3 Promote sustainable practices through education and outreach. Now DS, COM
Goal 2: Balance the different interests on Muskegon Lake
N2.1 Allow for a wide variety of land uses along the Muskegon Lake shoreline Ongoing DS, PC
considering the necessity of certain land uses and paying special attention to
location, past planning efforts, existing context, and market demand.
N2.2 Conduct a carrying capacity study for Muskegon Lake. Now DS
Goal 3: Create wildlife corridors with small natural pathways that connect large natural areas.
E3.1 Conduct a wildlife corridor study that focuses on linking existing corridors. Now DS, DPW
The Muskegon Rotary Club created a micro forest on Marquette, using this goal as inspiration.
E3.2 Bolster Muskegon’s urban tree canopy. Now DPW
The city completed a tree inventory that identifies the health of all trees in public spaces. The City continues to apply for urban tree grants
and plants around 100 trees per year.
Goal 4: Improve the environmental quality of greenway corridors by cleaning up contaminated sites, safeguarding areas highly susceptible
to private land use, and reducing dumping.
E4.1 Help remediate contaminated open spaces with phytoremediation efforts. Next DPW

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E4.2 Require low impact design techniques at sites near environmentally sensitive Now DS
ecosystems.
E.4.3 Prioritize the development of residential lots at the end of streets and those Now DS
adjacent to open spaces.
Goal 5: Strengthen climate resilience efforts.
E5.1 Create a climate action plan. Now CM

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