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Chapter 3: Muskegon County Growth Trends and Framework
I. FRAMEWORK OF THE PLANNING PROCESS
It was recognized in early discussions of the Muskegon County Strategic
Infrastructure Plan that there are several planning components within Muskegon
County that must come together to create a future vision for water and sewer
infrastructure. There are several components that must be addressed and analyzed
when planning for future infrastructure needs. These components include land use,
economic development, transportation, and population trends and projections.
The below chart provides visual illustration of the planning components used to assist
in the development of the Muskegon County Strategic Infrastructure Plan.
FIGURE 1 PLANNING PROCESS CHART
Regional Brownfields Inventory Transportation Improvement
& Plan for Implementation Program/Regional Transportation Plan
Muskegon
Muskegon Area-wide County Comprehensive Economic
Plan (MAP) Strategic Development Strategy
Infrastructure
Plan
(Present – 2025)
Regional Industrial Regional Economic &
Parks/Sites Study Demographic Projections
Local Land Use/
Comprehensive Plans
Muskegon County Strategic Infrastructure Study 19
II. LOCAL ECONOMY
In analyzing future needs for a community’s infrastructure, it is vital to study the past,
present, and future economy. By identifying past and present trends, as well as
predicting future projections, the Muskegon community can gain a better
understanding of the future demand for water and sewer around the county. A
community’s labor force can be a tremendous asset to its local economy. A growing
and skilled labor force typically equates to a healthy local economy. In turn, the
identification of local industries and future employment/economic projections can
further increase a community’s knowledge of the needs and demands for
infrastructure.
Labor Force
The labor force is defined as those who are employed or who are unemployed, but
actively looking for work. The labor force is based on where people live, so it is
those individuals who live in the county and are employed, regardless of whether they
work in the county or elsewhere.
The civilian labor force is a definite asset to the Muskegon County economy. The
county showed a labor pool of 89,530 persons who were actively involved in the
labor market in 2004. The table below identified the Muskegon County Civilian
Labor Force between the 1995 and 2004.
FIGURE 2 Muskegon County Civilian Labor Force
89,530
90,000
88,000
84,984 84,821
86,000 84,102 83,521 83,506
84,000
81,011 81,921
82,000
78,308 78,926
80,000
78,000
76,000
74,000
72,000
1995 1996 1997 1998 1999 2000 2001 2002 2003 2004*
Labor Force
Source: Michigan Department of Career Development
* not seasonally adjusted
Muskegon County Strategic Infrastructure Study 20
The figures provided in the above civilian labor force chart with the below
unemployment rate chart provide insight as to how much of the labor force is actually
employed compared to how many available workers are in the market. It can be
determined that in 2004 Muskegon County’s employment rate was 92.1%. Between
2001 and 2003 the labor force in Muskegon County showed a slight decline, which
also correlates with a jump in the unemployment rate during the same time frame.
However, in 2004 the labor force increased by over 6,000 persons and the
unemployment rate fell by nearly 3 percentage points.
FIGURE 3 Muskegon County Unemployment Rates
15.0%
10.6%
10.0% 8.2% 6.9%
6.4% 4.9% 4.5% 9.3% 7.9%
5.0% 6.1%
7.0% 4.4% 4.6%
0.0%
1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004
Unemployment
Source: Michigan Department of Career Development
Generally, Muskegon County has a higher unemployment rate than either the State of
Michigan or the United States. However, the local unemployment rate does tend to
follow the national and state economies. When the economy is strong in the state and
in the nation, it is generally strong in Muskegon County and vice versa. The highest
unemployment in the county corresponds with the national recessions in the mid-
1980’s, early 1990’s, and early 21st century that impacted manufacturing states like
Michigan in particular. The time between peak employment and the next peak
employment is known as the business cycle. The most recent business cycle covered
the years 1989 through 2000.
Muskegon Industries
Muskegon County is heavily dependent on manufacturing as a source of employment.
Other significant employment sectors in Muskegon County include health care and
social services, as well as accommodations and food services. Muskegon County has
more employment in those sectors than the state or national average.
Muskegon County has not experienced the structural shift in the economy from a
manufacturing economy to a service economy as intensely as the state or the nation.
The table below illustrates the major sector employment distribution for Muskegon
County in 2003.
Muskegon County Strategic Infrastructure Study 21
TALBLE 1
EMPLOYMENT BY SECTOR – 2003
Sector Employment % of Total
Manufacturing 13,338 16.4%
Retail Trade 12,835 15.8%
Health Care and Social Assistance 11,074 13.6%
Government 9,957 12.2%
Accommodation/Food Services 6,427 7.9%
Other Services, except Public Administration 4,324 5.3%
Construction 4,055 5.0%
Professional/Technical Services 2,811 3.5%
Real Estate/Rental and Leasing 2,740 3.4%
Administrative/Waste Services 2,735 3.4%
Source: Regional Economic Information System
Listed below are the ten largest manufacturing and non-manufacturing employers for
Muskegon County, as well as the products produced by each.
TABLE 2
TOP 10 MANUFACTURING EMPLOYERS IN MUSKEGON COUNTY
Muskegon
Business/Organization Area Product
Employees*
Herman Miller 2,545 Office Furniture
Howmet Corporation 2,427 Aircraft & Aerospace
Motor Vehicle Parts &
Hayes Lammerz International 558
Accessories
L-3 Communications Combat 550 Defense Vehicle Systems
Propulsion Systems
Lift-Tech International 500 Hoists, Cranes, and Monorails
ADAC Plastics 481 Plastics
Johnson Technology, Inc. 476 Aircraft Engines
Eagle Alloy 420 Steel Foundry
Knoll, Inc. 420 Office Furniture
Dana Corporation 375 Motor Vehicle Parts
Source: Muskegon Area First, 2006
* Employment figures are approximate
Muskegon County Strategic Infrastructure Study 22
TALBLE 3
TOP 10 NON-MANUFACTURING EMPLOYERS IN MUSKEGON COUNTY
Muskegon
Business/Organization Area Product
Employees*
Employees within the Muskegon
4,410 County Education System
Area Intermediate School District
Mercy General Health Partners 2,400 Hospital/Health Care Services
Hackley Health 1,300 Hospital/Health Care Services
County of Muskegon 1,300 County Government
Meijer Inc. 1,100 Department Stores
Michigan’s Adventure 480 Amusement Park
Verizon Communications 450 Telecommunications/Media
Plumb’s Valu-Rite Foods 400 Grocery Stores
Newkirk Electric Assoc. Inc. 350 Electrical Contractors
City of Muskegon 300 City Government
Younkers 300 Department Stores
Source: Muskegon Area Chamber of Commerce, 2003
*Employment Figures are approximate
As can be seen in the tables above, some of Muskegon County’s top employers are of
the non-manufacturing sector. In recent years, Muskegon County has made great
strides in diversifying the local economy. It is predicted that this trend will continue
over the next several years. The Manufacturing sector will continue to decline as it
has in the state and nation, while the Health Care & Social Assistance, Retail, and
other Service sectors will steadily increase.
Listed below are the core business clusters found in Muskegon County. They include
Aerospace, Chemical Products, Automotive, Plastics, Office Furniture,
Metals/Castings, and Other Firms. Identified are the businesses associated with each
cluster and the total number of persons employed in each cluster.
Muskegon County Strategic Infrastructure Study 23
TALBLE 4
MUSKEGON COUNTY CORE BUSINESS CLUSTERS
Number of
Business/Organization Total
Employees
Automotive
Hayes-Lemmerz, Dana Corporation, Shape Corporation, Holland USE Headquarters, 3,145
Acemco, Hilite International, ALCOA Automotive Castings, CWC Textron,
American Coil Spring
Aerospace
ALCOA Howmet Castings, Johnson Technology, Cannon Muskegon Corporation, 2,855
Kaydon Corporation, Campbell Grinder Company, Pratt & Whitney Component
Solutions
Metals/Castings
Port City Group, Eagle Alloy, Great Lakes Die Cast, Michigan Spring & Stamping, 1,890
Whitehall Products, Michigan Steel Foundry, Ravenna Ductile Iron, Lorin Industries,
Quality Tool & Stamping, EBW Inc., Bekaert Corporation
Office Furniture
1,630
Herman Miller, The Knoll Group, Structural Concepts
Plastics
ADAC Plastics, Mastertag International, Ameriform Incorporated, Concord Plastics, 1,091
KL Industries, Pliant Plastics, APT Inc.
Chemical Products
650
Sun Chemical, Honeywell Burdick and Jackson, Esco, Webb Chemical
Other Firms
Sappi Fine Paper, General Dynamics, Verizon (State Headquarters), Hines Corp.,
Yale Lift-Tech International, Brunswick Corp., Newkirk Electric Assoc. Inc., 3,820
Muskegon Chronicle, Wesco (Corporate Headquarters), Perrigo (North Labs), Cole’s
Quality Foods
Source: Muskegon Area First
Employment Projections
The West Michigan Shoreline Regional Development Commission on a bi-annual
basis prepares its official Economic and Demographic Projections for the five county
region including Lake, Mason, Muskegon, Newaygo, and Oceana counties. The
employment projections are by place of employment (not residence), and are based
on data from the Regional Economic Information System (REIS) published by the
U.S. Department of Commerce, Bureau of Economic Analysis and the Michigan
Department of Career Development/Employment Services Agency, Labor Market
Analysis Section. The projections methodology utilized past trends, existing
economic activity, and anticipated growth to estimate employment totals for each
county for the years 2002 through 2007. The county totals are also separated into
specific economic sectors.
Muskegon County Strategic Infrastructure Study 24
TALBLE 5
Muskegon County Strategic Infrastructure Study 25
III. POPULATION, LAND USE, & RESIDENTIAL GROWTH
Population, land use, and residential growth within a community are key components
in driving future needs for water and sewer. As the population grows and land use
trends continue with residents and businesses moving away from the inner cities and
into rural townships, with no water or sewer, the stress on a communities’
infrastructure and natural resources becomes more evident. This sprawling manner of
growth and development is costly to local units of government, community residents,
and the environment. Therefore, analyzing the population and land use patterns in
Muskegon County can help plan for the future needs within the community and
hopefully minimize the cost to all involved.
Muskegon Area-wide Plan (MAP)
Over the past several years, community leaders in
Muskegon County have been engaged in an effort to
create a county-wide vision for the next twenty-year
timeframe. That effort is called the Muskegon Area-wide
Plan (MAP). The MAP was completed and presented to the public in April 2005.
The mission of the MAP is to, “involve citizens in creating a shared vision for the
future of Muskegon County.”
FIGURE 4 The Muskegon Area-wide Plan
(MAP) is a comprehensive
county-wide process integrating
land use and other regional
concerns. The process is a true
grassroots effort to develop a
county-wide vision for
Muskegon County. The process
was initiated and led by local
units of government and
community leaders. As a result,
each city, township, village, and
the county all had an equal voice
in the development of the
county-wide vision.
The MAP established visions and goals for the county, based on analysis of existing
data sources, extensive mapping, and public participation during the process. An
implementation plan completed the MAP process.
Like many communities across the country, the population in Muskegon County has
been shifting away from the central cities and into more rural areas and townships.
Muskegon County Strategic Infrastructure Study 26
This trend is illustrated in the map below, which demonstrates the population shift in
Muskegon County between 1980 and 2000.
MAP 3
The past decade has been marked by growing public concern over increasing traffic
congestion, air pollution, loss of farmland and green space, as well as infrastructure
costs flowing from the current urban development patterns in Muskegon County.
These development patterns are dominated by low-density single-use residential,
business, and commercial development, usually on prime agricultural lands, with the
automobile being the only viable means of transportation.
Over the next 20 years, Muskegon County’s population is expected to grow by more
than 13 percent to nearly 195,000 people. Although this does not seem startling, the
amount of land that is predicted to be developed during that same time period is
alarming. The rate of land consumption in Muskegon County over the next 20 years
is nearly 20,000 acres of land. This disproportional consumption of land in
Muskegon County is
much greater in FIGURE 5
comparison to the
counties surrounding
Muskegon County.
It is important to note
that when Muskegon
County was
experiencing
economic hardships
in the mid 1980’s and
Muskegon County Strategic Infrastructure Study 27
early 1990’s the total population did not decline. This can be attributed to the
county’s high quality of life and low cost of living.
FIGURE 6
Population Forecast 2010 to 2035
250,000
213,291
187,314 193,496 199,881 206,477
200,000 181,330
157,589 158,983 170,200 174,401
150,000
100,000
50,000
0
1980 1990 2000 2004 2010 2015 2020 2025 2030 2035
Population
Source: West Michigan Shoreline Regional Development Commission
LAND USE CATEGORES
During the MAP project it was projected that by the
year 2020, an additional 20,500 acres of land would Residential Land 18,000 acres
be developed in three major categories including Commercial Land 1,800 acres
Residential, Commercial, and Industrial. Industrial Land 700 acres
The major challenges before Muskegon County are how to plan the best use of
undeveloped and agricultural land, how to protect our natural environment, how to
maximize urban redevelopment and infill opportunities, and how to coordinate these
efforts throughout Muskegon County.
MAP 4
Muskegon County Strategic Infrastructure Study 28
The developed area of Muskegon County increased by 24 square miles, or 4.7
percent, between 1978 and 1998. The map below titled Developed Land 1978 and
Current, highlights the decentralized nature if the new development within Muskegon
County.
MAP 5
Land uses are typically classified as agricultural, residential, commercial/office,
industrial, public/semi-public, or recreational in nature. Residential uses include all
types of structures where people live. Commercial/office space is used in the sale of
goods or services and/or the production of service outputs. Industrial land uses are
for the manufacture, assembly, and distribution of goods. Public and semi-public uses
include government owned lands and schools.
There are 337,088 acres of land in Muskegon County. Of that, nearly 162,200 acres
or 48 percent is in forest land. An additional 27 percent is in agricultural or open
space uses. Water accounts for 3.7 percent of the surface area and wetlands account
for 2.2 percent. These combined uses are more than 80 percent of the land in the
county. Nearly 30 percent of the land is in uses such as forest, water, and state and
federal lands that are not likely to be developed.
Muskegon County Strategic Infrastructure Study 29
FIGURE 7 The largest urban land
use in Muskegon
Land Use by Category
County is residential,
which occupies more
than 43,000 acres, or
Industrial 12.9 percent of the land
1% Residential Utilities Agricultural/
13% 4% Open Space
area. Commercial uses
Commercial
2% 26% account for nearly two
percent of the land area
and industrial uses
Public Lands account for another one
19%
Forest
percent. Utilities
29% account for 3.7 percent,
Wetlands
largely due to the
2% Water
4% amount of land at the
wastewater treatment
Agricultural/Open Space Forest facility. Urban land
Water Wetlands uses in Muskegon
Public Lands Commercial County are
Industrial Residential concentrated near
Utilities Muskegon Lake, Mona
Lake, and White Lake.
Through a comprehensive public involvement process involving over 1000
participants in the MAP project, the below Smart Growth scenario was chosen as the
preferred future development scenario because it preserves rural character and limits
sprawl, emphasizes cooperation, uses existing infrastructure, protects open space, and
emphasizes urban redevelopment. The selection of the Smart Growth scenario
reflects the public’s desire to make the best use of existing infrastructure, plan for
limited infrastructure expansion in order to minimize utility costs, and preserve
agricultural and open space lands.
Under the Smart Growth scenario, 18,356 acres of land are developed (new
development). Residential uses account for 88 percent of the new development, or
16,153 acres. Commercial uses are 1,652 acres and industrial uses 550 acres. The
map below shows the planned pattern of residential, commercial, and industrial
development. Smart growth does not mean no growth; rather, it seeks to revitalize the
already-built environment, fosters efficient development at the edges of the region
while creating more livable communities.
Smart growth meets the key goals of sustainable development through community
design. Focusing new housing and commercial development within already
developed areas requires less public investment in new roads, utilities and amenities.
Investment in the urban core can reduce crime, promote affordable housing and create
vibrant central cities and small towns.
Muskegon County Strategic Infrastructure Study 30
MAP 6
Certain principles of Smart Growth
are already under way in Muskegon The Principles of Smart Growth Include:
County, particularly in terms of urban
infill and redevelopment projects. Create a range of housing
These initiatives meet the principle of opportunities and choices
directing development toward Create walkable neighborhoods
existing communities and in terms of Encourage community and
stakeholder collaboration
farmland protection efforts that meet Foster distinctive, attractive places
the principle of preserving open with a strong sense of place
space, farmland, natural beauty, and Make development decisions
critical environmental areas. predictable, fair, and cost effective
Mix land uses
Preserve open space, farmland,
Renaissance Zones are one of the natural beauty and critical
tools being used in Muskegon environmental areas
County to direct development toward Provide a variety of transportation
existing communities. Renaissance choices
Zones are areas in the cities of Strengthen and direct development
towards existing communities
Muskegon and Muskegon Heights
Take advantage of compact building
designated as virtually tax free. The design
tax relief will be phased out in 25%
increments over the last three years (Smart Growth Network)
of the program.
Muskegon County Strategic Infrastructure Study 31
Another local initiative has been the establishment of the Muskegon County
Farmland/Open Space Preservation Program which would work to voluntarily protect
local farmland using state and federal grant money. The program has the eventual
goal of purchasing the development rights of 35,000 acres (about half the farmland in
the county) so that the prime agricultural soils are preserved for food production and
open/green space.
IV. INDUSTRIAL AND COMMERCIAL CENTERS
When discussing future needs for water and sewer infrastructure, it is important to
identify the locations of existing and planned industrial and commercial centers, as
well as brownfields and their potential reuse. These areas tend to identify a
community’s thriving and growing areas. In addition, industrial, commercial, and
redeveloped brownfields have the potential for high demand infrastructure users.
Industrial Centers
The West Michigan Shoreline Regional Development Commission (WMSRDC) is
the designated Economic Development District for the counties of Lake, Mason,
Muskegon, Newaygo, and Oceana. This designation comes through the United State
Department of Commerce Economic Development Administration. With this
designation comes the responsibility of preparing the Comprehensive Economic
Development Strategy (CEDS) Annual Report. The report includes the preparation of
a regional economic development infrastructure vision, identifying and ranking local
MAP 7
Muskegon County Strategic Infrastructure Study 32
projects submitted by local units of governments, creating county profiles, and
conducting an industrial park survey. The CEDS Annual Report is used by local,
state and federal agencies when implementing and funding local economic
development infrastructure projects. Many of the existing industrial and business
parks located in Muskegon County have received funding assistance through this
process.
In 2003, the West Michigan Shoreline Regional Development Commission conducted
an Industrial Parks/Sites Study which provided detailed profiles of each industrial
park and site located within the counties of Lake, Mason, Muskegon, Newaygo, and
Oceana. In addition, the study also worked with the local units of government to
identify future projects within each county. The map below identifies the future
industrial/business park projects for Muskegon County. Representatives from the
Muskegon area also decided to categorize the future projects into short and long-term
projects. Please note that projects number one and five have been successfully
completed.
MAP 8
LONG-TERM PROJECTS
Fruitport Charter Township (6) – Develop property on Airline Road west of I-96 access
County of Muskegon (4) – Develop Muskegon Co. Business Park East near the Wastewater Treatment Plant
County of Muskegon (2) – Develop the former Wastewater Treatment Facility in Whitehall Township
SHORT-TERM PROJECTS
City of Muskegon Heights (8) – Develop Seaway Industrial Park
City of Roosevelt Park (9) – Develop former Mobile property
County of Muskegon (3) – Develop Muskegon County Business Park, North (former Ott/Story/Cordova
Property)
Muskegon County Strategic Infrastructure Study 33
Brownfields
According to the State of Michigan, brownfields are “abandoned, idle or under-used
industrial and commercial properties where expansion or redevelopment is
complicated by real or perceived environmental conditions”.
WMSRDC has recently finished a draft of the West Michigan Shoreline
Brownfields Inventory and Plan for Implementation. This project was funded in
part by the Michigan Coastal Management Program, Michigan Department of
Environmental Quality and the National Oceanic and Atmospheric Administration,
U.S. Department of Commerce. It was also funded in part by the Economic
Development Administration, U.S. Department of Commerce and local funds.
This document contains significant information regarding brownfield properties in
Muskegon County. Upon final adoption of the brownfields study, a thorough
synopsis will be included in this section of this document.
Muskegon County Strategic Infrastructure Study 34
Commercial Centers
The map below identifies the major commercial corridors within Muskegon County,
followed be a brief description of each.
MAP 9
M46/Apple Avenue
Apple Avenue is a five-lane corridor running east/west through the central portion
of the county. It is lined with strip malls and restaurants. There is one big box
business (Kmart) located on the corridor near the US 31 interchange.
Colby Road/Business 31
Colby Road is a local business route through northern Muskegon County’s White
Lake area. Although there are five lanes near the US 31 interchange, it is
primarily a 3-lane corridor. The corridor is lined with local retail and commercial
business.
Muskegon County Strategic Infrastructure Study 35
Henry Street
Henry Street is a five-lane corridor running north/south through the western
portion of the county. The corridor is lined with strip malls, restaurants, and
banks. It has recently contained two vacant big box buildings with the relocation
of JCPenney to The Lakes Mall and the recent closing of Kmart. However, the
former JCPenney property in the City of Roosevelt Park has been redeveloped
into a Wal-Mart Supercenter.
Sherman Boulevard (Near US 31 interchange)
Sherman Boulevard is a major corridor with recent growth over the past five to
seven years. It is one of the county’s major retail areas with several big box
developments including Target, Wal-Mart, Sam’s Club, and Lowe’s. The
corridor also has many smaller retail stores and restaurants. All commercial and
retail development is located east of the interchange. Immediately west of the
interchange is Mercy General Hospital surrounded by several related medical
offices.
Sternberg Road/Harvey Street
This is a major retail area located in southern Muskegon County at the corner of
Sternberg Road and Harvey Street. Development in this area includes The Lakes
Mall, Kohl’s, Lakeshore Market Place, Menard’s, Hackley Health at the Lakes, a
Meijer supermarket, and many restaurants and smaller retail stores. Other
development in the area includes apartment buildings, condominiums and small
office buildings.
M120
M120 is primarily a three lane corridor (five lane near US 31 interchange)
running southwest/northeast through central Muskegon County. The corridor
includes many strip malls with local retail and commercial establishments.
Whitehall Road
Whitehall Road runs north/south through central Muskegon County just west of
US 31. At its southern point, Whitehall Road is a five lane corridor, and narrows
to a two lane road as it transverses northward through the county. The corridor
has received many upgrades over the past several years with additional upgrades
scheduled in the future. The corridor includes strip malls and commercial
establishments.
V. LOCAL LAND USE AND COMPREHENSIVE PLANS
Who better knows the needs of a community than the community itself? Therefore, a
vitally important part of the Muskegon County Strategic Infrastructure Plan was to
review each of Muskegon County’s 27 local units of government’s Land Use and
Comprehensive Plans and most importantly the future land use map and zoning
ordinance and map. In addition to analyzing these most important documents,
Muskegon County Strategic Infrastructure Study 36
Regional Commission staff met individually with the local units of government in
order to confirm future needs for water and sewer expansions.
VI. TRANSPORTATION
It is important to consider the link between transportation and infrastructure, in both
terms of past and future development, with relation to expansion of infrastructure.
The most evident link can be noticed by simply looking at a road map. Chances are a
majority of the development and utilities will follow closely down existing road
corridors. Many cities and villages throughout the country were formed from simple
“cross-roads” where transportation corridors met. Transportation must be looked at
as a major component of planning and future development because it has the most
potential for determining what the infrastructure network will look like in the future.
FIGURE 7 DEVELOPMENT FACTORS There is a direct correlation
between transportation,
land use/zoning,
population, and other
infrastructure, such as
water, sewer, and utilities.
For example, if we examine
the development of the
Lakes Mall and associated
development in Fruitport
Township, the construction
of the interchange at US-31
and Sternberg Road, in
combination with land use
and zoning changes,
spurred the development of
the mall. For the
developments to become
reality, the associated infrastructure was developed or brought in, including water,
sewer, and the area roadways widened and/or reconstructed. The population growth
within southern Muskegon County is one of the direct effects of this development
explosion and its ability to increase the housing stock within this area, due to the
change in the road network, land use/zoning, and infrastructure.
The impact that transportation has doesn’t just come from building new roads; in fact
it is very rare that a new road is built these days, but rather from either improving or
expanding capacity on existing roads. Many times when road work is needed, and
with planning and foresight, upgrades and possible replacement of infrastructure
takes place at the same time, so as to cause minimal disruptions to the users of the
transportation network. In the terms of linking transportation and infrastructure, all
Muskegon County Strategic Infrastructure Study 37
forms of transportation must be considered. These include roadways, pedestrians,
bike paths, rail (passenger and freight), shipping, and air, among others.
Transportation Planning Process
Metropolitan transportation planning in the Muskegon area is a long-standing process
dating back to the 1970's. Organizations known as Metropolitan Planning
Organizations (MPO’s) were developed through the Federal Highway Act of 1973.
MPO’s were developed to plan for the spending of federal gas-tax money in areas
with contiguous populations larger than 50,000. The West Michigan Shoreline
Regional Development Commission (WMSRDC), which is formally designated as a
regional planning agency, also serves as the official MPO for Muskegon and
Northern Ottawa Counties. WMSRDC represents the local governments of the MPO
as the decision-making body charged with approving how federal transportation
dollars are spent within the MPO. Among the duties and documents that the MPO is
responsible for, are two major documents that outline future transportation projects
and priorities.
TIP
The Transportation Planning Program (TIP) is developed in a cooperative effort
between federal, state, and local officials and serves as the final link in the
transportation planning process. Its primary purpose is to identify programs and
projects to be funded with federal transportation money, in accordance with
federal law and the regulations of the Federal Highway Administration and the
Federal Transit Administration for a three-year period. The TIP provides a
summary of how transportation revenues in the program will be invested by the
state and local agencies that have legal responsibility to build, operate, and
maintain the state’s highway, road, street, and public transit systems.
Projects in this document are selected based on need, local initiative, and
requirements of the federal government through the federal transportation bill.
Other considerations for project selection also include impacts on air quality and
the availability of funds. The TIP is produced bi-annually, and amended as
necessary, and includes a detailed list of projects which are funded and scheduled
for the upcoming three-year period. Funding is governed by the Michigan
Department of Transportation and the Federal Highway Administration. Target
funding estimates are developed using formulas and historical data.
In the current TIP, it is estimated that more than fifteen million dollars in federal
and local money will be spent in the MPO on transportation projects. Projects
that have been recently implemented through the Muskegon/Northern Ottawa
MPO-TIP process include:
- M-120 to SB US-31 ramp
- Shoreline Drive
- US-31 & BR-31 improvements
Muskegon County Strategic Infrastructure Study 38
- Russell Road/US-31 ramp improvements
- Various bridgework throughout the county
- Purchase of transit busses and equipment
LRTP
Another document that the MPO is charged with maintaining is called the Long-
Range Transportation Plan, or “LRTP”. The LRTP provides for a multi-
jurisdictional, multi-year look at the MPO’s future transportation system.
Transportation needs and resources are evaluated for a twenty-five year period.
The plan also includes the use of local, state, and federal transportation goals and
objectives to guide transportation plans and projects. This plan covers
transportation for all of the Muskegon area and, as such, is heavily flavored with
input from local elected officials, municipal and road agency staff, and the
citizens of the Muskegon area.
In 1974, the first Long-Range Transportation Plan was developed for the
Muskegon urban area. This plan was updated in 1986 and then re-certified as a
Policy Document by the Muskegon Area Transportation Planning Program
(MATPP) in 1990. In 1991, the plan was reviewed in light of the Clean Air Act
Amendments (CAAA) of 1990 and was approved by the Environmental
Protection Agency (EPA) as a conforming plan for air quality. In recent years,
the effects of the Clean Air Act Amendments (CAAA) of 1990 and the
Intermodal Surface Transportation Efficiency Act (ISTEA) of 1991 have caused
changes in the scope and scale of transportation plans. Muskegon area plans
encompass the entire county and must take into consideration the impacts of
transportation decisions on air quality.
Federal law stipulates that the Long-Range Transportation Plan be updated every
three years in air quality non-attainment and attainment/maintenance areas (every
five years in other areas). In addition, the long-range plans for attainment and
non-attainment areas are to have a horizon of at least twenty-years into the future.
The 2030 Long-Range Transportation Plan (adopted in 2005) is used as a policy
document guiding transportation decision-making on a multi-year basis. Projects
that are included in the LRTP are generally of large scale, have regional
significance, and improve and expand the capacity of the network. Some of the
major projects that are listed in the current LRTP include:
- Western Ave redevelopment
- Harvey Street improvements
- Quarterline Road improvements
- Whitehall Road improvements
- Sternberg Road improvements
- US-31 Bypass
Muskegon County Strategic Infrastructure Study 39
Developing Corridors and Planned Improvements
The linking of transportation with the water and sewer infrastructure is vital to show
in terms of emerging growth patterns, but will not necessarily show the bigger
picture. Other factors, such as population migrations and concentrations, land use,
land cover, and zoning, must be taken into account. These areas can be referred to as
developing or emerging corridors.
In 2005, the Muskegon Area-Wide Plan (MAP) was completed for Muskegon County
to guide its citizens and local governments in the future. One important outcome of
the MAP document was the development of Smart Growth principles. These
particular principles were set to guide development and growth into certain areas of
the county, and to limit development and growth in other particular areas of the
county, while discouraging sprawl.
In referencing the major developing or emerging areas or corridors within Muskegon
County, in terms of population, transportation, land use/zoning, and infrastructure, or
any combination thereof, it was found that a great majority of these follow the areas
outlined within the MAP document as areas of Smart Growth. A list of the major
developing or emerging areas or corridors is as follows:
Whitehall Road/US-31 Corridor: North Muskegon to the White Lake area
M-120 Corridor
Apple Avenue (M-46) Corridor: East of US-31
Harvey/Sternberg area; Lakes Mall and associated development
Downtown Muskegon Mall Redevelopment
Developing corridors typically do not grow and develop without careful planning and
foresight. Every area acknowledged has been thoroughly studied and planned in
ways to shape it into what exists today or what local planners and visionaries would
like it to resemble in the future.
Whitehall Road
The Whitehall Road corridor, also known as Old-31, is a major transportation route
between Muskegon and the White Lake area. The corridor runs in a north/south
direction through northern Muskegon County. There are several unique amenities
along Whitehall Road, including the Ott/Story/Cordova Superfund Site, the
Michigan’s Adventure Amusement Park, and the county sewer expansion, which
links the White Lake area to the Muskegon County Waste Water Facility. This
corridor traverses through six different municipalities: City of North Muskegon,
Muskegon Charter Township, Laketon Township, Dalton Township, Fruitland
Township, and Whitehall Township. Whitehall Road holds a mix of zoning districts
including residential, commercial, and industrial.
Muskegon County Strategic Infrastructure Study 40
According to the Federal Highway Administration’s National Functional
Classification System, Whitehall Road has two classifications. The stretch between
Giles Road and River Road is classified as a Minor Arterial. The remaining roadway
from River Road to Colby Street is classified as a Major Collector. By being
designated as such, Whitehall Road is eligible for federal funding to repair and/or
expand the roadway. The southern portion of the road consists of five lanes
extending north through the intersection of Whitehall Road and Giles Road. Roughly
one-forth of a mile north of this intersection, the road narrows to two lanes, running
the reminder of the roadway. It is important to note that the Muskegon County Road
Commission is responsible for maintaining this road.
With the sewer extension and potential water expansion, the Whitehall Road corridor
will experience significant growth in residential, commercial, and industrial
development. As a result, the amount of activity along the roadway will also
increase. This boost in traffic volume will most likely result in the need to expand
and improve the corridor. No projects are listed in the current TIP, but local road
agencies are looking at potential right-of-way acquisition and planning for future road
expansion north of River Road. A detailed study was completed by WMSRDC in
2005 called the North-Central Muskegon County Transportation and Land Use Study.
The study looked at potential transportation and access management issues along the
corridor. Based on this information, recommendations were made and presented in
the document. Some of these recommendations may be implemented as funding
becomes available.
M-120 Corridor
The M-120 corridor, also known as Holton Road, is a major transportation route
between Muskegon and the northern areas of Muskegon County as well as Newaygo
and Oceana counties. The corridor runs in a north-east/south-west direction through
central Muskegon County. This corridor traverses through five different
municipalities: City of North Muskegon, Muskegon Charter Township, Dalton
Township, Cedar Creek Township, and Holton Township. The southern portions of
this corridor are primarily zoned commercial or high density residential/commercial,
while farther north, the zoning is more residential in nature, with some commercial
mixed in.
According to the Federal Highway Administration’s National Functional
Classification System, M-120 is classified as a Minor Arterial. By being designated
as such, M-120 is eligible for federal funding to repair and/or expand the roadway. It
is important to note that the Michigan Department of Transportation (MDOT) is
responsible for maintaining this road.
Sewer and water currently serve much of the southern portion of this road. It is
anticipated that with zoning changes and development pressures, the northern portion
will experience future growth. As a result, the amount of activity along the roadway
will also increase. MDOT has recently (2005) completed extensive improvements
Muskegon County Strategic Infrastructure Study 41
along a majority of this corridor. It should also be noted that capacity was increased,
as well as an additional ramp was added to the M-120/US-31 interchange in 2002.
No projects are listed in the current TIP. A detailed study was completed by
WMSRDC in 2002 called the M-120 Corridor Study. The study looked at potential
transportation and access management issues along the corridor. Based on this
information, recommendations were made and presented in the document. Some of
these recommendations have been implemented, and more may be implemented as
funding becomes available.
M-46 Area
The area around M-46, also known as Apple Avenue, has experienced considerable
growth with Muskegon Community College and Baker College now located in the
same vicinity, along with the Orchard View School District and the campus of Mercy
General Hospital. Transportation access issues have again surfaced in this growing
area of East Muskegon. The two colleges and school are located on Marquette
Avenue. There are also a new High School and Higher Education Tech Center in the
same area. The main access routes to these areas from any direction are Marquette
Ave., Quarterline Rd, and US-31 via the M-46 (Apple Avenue) interchange. M-46 is
a continually growing commercial area, which has seen many recent MDOT funded
projects which were aimed at dealing with the ever growing congestion issues, such
as traffic signal work, turn lanes and re-designing the areas directly around the US-
31/M-46 freeway interchange area. It is anticipated that this area will continue to
develop, due to adequate utilities and infrastructure that is in place. Commercial and
high density residential appear to be the trends around this area. The road agencies
responsible for this area include MDOT, the Muskegon County Road Commission,
and the City of Muskegon. This area has not been studied in detail, but plans are in
the works to implement a study that will analyze land use patterns and travel patterns,
expanding upon social, economic and transportation data in the MPO long-range
transportation plan. It will be important to identify transportation access issues for
the major transportation corridors that affect this area. It is important to determine
the causes for those issues, identify multi-modal needs, and develop a long-term
vision for the area. Short-term and long-term conceptual multi-modal solutions to
those issues need to be identified based on existing and anticipated, land use and
traffic growth in this area. Opportunities to coordinate land use and transportation
planning activities through access management techniques should also be looked at.
Harvey/Sternberg Area: Lakes Mall and Associated Development
The Lakes Mall area is roughly bounded by Grand Haven Road to the west,
Pontaluna Road to the south, I-96 to the east, and the US-31/I-96 interchange to the
north. These boundaries vary depending on what subject and variables are discussed
at the time, but are mostly contained within this area. This developing or emerging
area or corridor is not as much defined by the transportation network itself, but deeply
embedded in the transportation and commercial development connections that have
Muskegon County Strategic Infrastructure Study 42
taken root, caused by certain transportation improvements in and around the City of
Norton Shores and Fruitport Township.
The Lakes Mall area and its associated developments have become in recent years the
major destination for retail within the county. A great majority of the development
that exists today can be accredited to the construction of the US-31/Sterberg Road
interchange in the mid-1990’s. Before the construction of the interchange, this area
was used primarily for agriculture. After it was completed, besides improving the
access to the area, it resulted in hundreds of millions of dollars in commercial, office,
residential, and industrial development, including a new regional mall.
Accordingly, sewer, water, and other infrastructure improvements, including local
roadway improvements, were brought in to service the new development, and are
present in much of the development area. With the increased employment growth
within this area over the past decade, the population has also grown. In fact, the
employment growth has, in large part, been a vehicle for the population growth.
Residents are willing to locate to areas that have less expensive real estate, numerous
job opportunities, and easy access.
No projects are listed in the current TIP, with the exception of a pavement overlay of
I-96 at Hile Road in 2007. A study was completed in 2003 by WMSRDC entitled I-
96/US-31 Sub-Area Transportation and Land Use Study. The study looked at the
existing and future transportation and land use in the surrounding area and had a
purpose to plan for the anticipated growth in transportation and land use through the
year 2025, while making recommendations along the way for both existing and future
infrastructure. Some of these recommendations have been implemented, and more
may be implemented as funding becomes available.
Downtown Muskegon Mall Redevelopment
Located in the heart of downtown Muskegon during the 1970’s and 1980’s, the
Muskegon Mall used to be a magnet for retail sales in the area. Some two to three
decades later, City of Muskegon officials are hoping to return the downtown location
where the mall used to be into a centerpiece of downtown redevelopment for the
community to enjoy.
The City of Muskegon is currently in the process of redeveloping and reconstructing
the roadway network that formally was located where the Muskegon Mall used to be.
This includes the construction of the following new roadways, which are listed in the
TIP and LRTP, for construction in 2006.
Western Avenue, from 3rd to Terrace;
Jefferson, 1st ,& 2nd , from Clay to Morris;
Market from Jefferson to Terrace;
3rd from Clay to Morris.
Muskegon County Strategic Infrastructure Study 43
Located in the one of the major economic hubs of Muskegon County, redevelopment
is critical for the long-term benefits of this urban area. A thriving downtown is
essential to attracting tourists and businesses for development and redevelopment to
the region to diversify and strengthen the economic base.
Conclusion
The importance of transportation with respect to planning, and especially
infrastructure planning, can not be emphasized enough. Land-use decisions,
population growth patterns, and future infrastructure improvements are dependant on
transportation in one way or another. All of these aspects of planning need to be
looked at and considered as a common link to smart growth. Good planning, with
consideration of these important connections, will provide for a smart, well planned
future in the county. Continued cooperation with the Muskegon/Grand Haven MPO
and its associated programs is the best way to achieve this goal. The MPO should be
considered a valuable planning tool for future development.
Muskegon County Strategic Infrastructure Study 44
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