With 15 minutes to spare before the start of the Surf City Borough Council meeting May 8, the courtroom was nearing capacity. Seven minutes later, the crowd spilled into the hallway as the packed and stacked public awaited an opportunity to continue the months-long outdoor dining debate.

“This should be a referendum. I know 15% sounds great, but it’s not enough,” resident Robert Burnett said. “It should be like 25%. You have the outside seating; you’re not going to have half the people inside.