Town of Waterford 2022 - 2027 Affordable Housing Plan

WATERFORD 
2022-27 Housing Plan 
 
 
 
 
 
 
 
 
Planning & Zoning Commission  
Town of Waterford, CT 
 
May 10, 2022 
 

 
TABLE OF CONTENTS 
 
 
1 
INTRODUCTION ............................................................................. 4 
2 
INVENTORY & ASSESSMENT .......................................................... 7 
2.1 
Housing Mix ................................................................................. 8 
2.2 
Demographic Composition .......................................................... 9 
2.3 
Cost Characteristics ................................................................... 10 
2.4 
Affordability Characteristics ...................................................... 12 
2.5 
State-Defined Affordable Housing ............................................. 14 
2.6 
Affordable Housing Appeals Procedure..................................... 16 
2.7 
Summary Of Findings ................................................................. 17 
3 
COMMUNITY INPUT .................................................................... 18 
3.1 
Overview .................................................................................... 18 
3.2 
Housing Experiences / Desires ................................................... 18 
3.3 
Housing Affordability ................................................................. 19 
3.4 
Housing Types To Encourage ..................................................... 20 
3.5 
Possible Housing Strategies ....................................................... 21 
4 
STRATEGIES FOR CONSIDERATION ............................................... 22 
4.1 
Establish An Affordable Housing Committee ............................ 22 
4.2 
Reinvigorate The Housing Authority.......................................... 22 
4.3 
Implement Inclusionary Zoning ................................................. 23 
4.4 
Guide Residential Development ................................................ 24 
4.5 
Promote Good Design ................................................................ 28 
4.6 
Update Multi-Family Housing Regulations ................................ 30 
4.7 
Consider Other Regulation Changes .......................................... 31 
4.8 
Consider Other Strategies .......................................................... 32 
4.9 
Seek To Avoid Over-Rides Of Local Zoning ................................ 34 
4.10 
Continue To Collaborate / Educate ........................................... 35 
 
 
 

1 
 
 
 
 
Greetings! 
 
As part of Public Act 17-170, the Connecticut Legislature established a 
requirement that every municipality in Connecticut prepare and adopt an 
“affordable housing plan” by June 2022 and update the plan every five years 
thereafter (Section 8-30j of the Connecticut General Statutes).  The legislation 
requires that the plan “shall specify how the municipality intends to increase the 
number of affordable housing developments in the municipality.” 
 
This document is Waterford’s 2022-27 Housing Plan.  In addition to meeting the 
statutory requirement, it is intended that this Plan will inform the preparation of 
the update to the 2015 Plan of Conservation and Development for Waterford. 
 
The Housing Plan was prepared by the Planning and Zoning Commission 
because of its long-time involvement in planning for the future conservation 
and development of Waterford.   
 
Following a public hearing , this Affordable Housing Plan was adopted by the 
Planning and Zoning Commission on May 10, 2022 
 
Sincerely, 
 
Planning & Zoning Commission 
Town of Waterford 
 
 

2 
 
 
COMMUNITY GOALS 
 
Waterford has prepared this plan in order to: 
• Better understand the changing housing needs 
of current and future residents, 
• Evaluate whether its current housing supply is 
configured to meet those needs, and 
• Provide for a variety of housing choices and 
opportunities in Waterford for people and 
households of all characteristics. 
• 
People of all ages, 
• 
People of all incomes, and 
• 
People of all backgrounds and situations. 
 
 
 
Housing To Meet A Variety Of Needs 
 
 
 
 
 

3 
 
 
QUICK FACTS 
 
Housing is considered “affordable” if a household 
spends less than 30 percent of its income on housing 
related expenses … 
 
Households with above average incomes may choose to spend more on housing 
and can generally afford to do so.  Households with below average incomes may 
not be able to find housing at 30 percent of their income and/or may have to 
compromise in other areas (food, healthcare, transportation, education, etc.). 
 
The term “affordable housing” means housing 
affordable to households earning 80% or less of 
area median income and spending no more than 
30% of their income on housing- … 
 
This can include: 
• 
Market-rate housing which sells or rents at an affordable price - called “naturally 
occurring affordable housing (NOAH), and 
• 
Housing which is restricted in some way to sell or rent at affordable price levels. 
 
 
 
QUICK FACTS 
 
For Waterford, 80% of area median income in 2022 equals: 
 
 
Household Size 
 
Rounded 
 
 
1-person household 
 
$57,512 
 
 
2-person household 
 
$65,728 
 
 
3-person household 
 
$73,944 
 
 
4-person household 
 
$82,160 
 
 
5+ person household 
 
$88,733 
 
 
 
 
CT-DOH, US-HUD  
 
This translates to the following gross rents and sale prices at 80% AMI: 
 
 
 
Unit Size 
Assumed Ave. 
Occupancy 
Monthly 
Gross Rent 
Est. Sale Price  
@ 5.0% 
Est. Sale Price  
@ 6.0% 
 
 
Studio 
1.0 
$1,038   
$188,589  
$174,070 
 
 
1 BR 
1.5 
$1,265  
$190,816  
$176,064 
 
 
2 BR 
3.0 
$1,562  
$224,043  
$206,857 
 
 
3 BR 
4.5 
$1,931  
$253,425  
$233,165 
 
 
4+ BR 
6.0 
$2,288  
$276,162 
$254,565 
 
 
 
All calculations in accordance with DOH methodology (RCSA 8-30g-8).  Monthly gross rent constrained by “fair market rent” as 
reported by HUD.  Estimated sales price based on 30-year fixed-rate mortgage with 20% down payment after deducting an 
allowance for utilities, insurance, taxes, condo fees, etc. 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
It is important to 
note that the 
maximum monthly 
rent computed in 
accordance with the 
State methodology 
can still be higher 
than what people 
with incomes below 
80% of area median 
income can 
comfortably afford.   
 
When people at 80% 
of area median 
income and below 
spend more than 30% 
of their income on 
housing, they are 
considered “housing 
cost burdened” and 
this means they may 
not have funds for 
food, transportation, 
other bills, etc. 
 

4 
1 
INTRODUCTION 
 
 
 
Everyone needs housing and for a variety of reasons.  Shelter is one of the most 
basic human needs.  Furthermore, housing is critical in: 
• 
Supporting people’s sense of security,  
• 
Enabling a sense of community, and  
• 
Providing opportunities to grow. 
 
Housing provides shelter to 
meet people’s physiologic needs 
Housing helps meet people’s 
need for safety and security  
Housing creates a sense of 
connection to a community  
Housing builds confidence and 
enhances self-esteem 
Housing creates the opportunity 
for people to contribute to their 
community and achieve their 
full potential 
 
Waterford recognizes the reality that not all members of our community are 
currently able to obtain housing that supports the financial freedom to move up 
the hierarchy.  
 
And, since people’s housing needs change over the course of their lives, it is 
important to recognize the needs of people at all ages and situations.   
 
 
 

5 
 
Addressing changing housing needs and promoting diverse housing 
opportunities are priorities for the Town of Waterford.  If people cannot obtain 
appropriate housing, then they may be unable to meet one or more of the 
levels on their hierarchy of needs.  If people cannot afford appropriate housing, 
it can have the same result. 
 
Market rate housing is generally provided by builders and developers provided 
it is allowed by regulations.  Below-market-rate housing, on the other hand, is 
more challenging and is a key focus of this plan. 
 
The lack of housing and a lack of affordable housing can have impacts on any 
community - even a community like Waterford – including: 
1. Household Stability - Studies show that access to decent, affordable 
housing would provide critical stability for low-income households. 
2. Health - Housing insecurity and homelessness can have serious negative 
effects on child and adult health and can affect overall work/school 
performance and result in missed work/school days. 
3. Economic Security - High housing costs (rent/mortgage, utility costs, 
taxes, etc.) leave low-income families with little left over for other 
important expenses, leading to difficult budget trade-offs.  Affordable 
housing increases the amount that families can put toward other 
important household needs and savings.   
4. Seniors - Quality housing can promote better health, quality of life, and 
independence for the growing population of low-income seniors. 
5. Education - Housing instability can jeopardize children’s performance 
and success in school, leading to lasting achievement gaps, while a 
stable environment contributes to improved educational outcomes.  
Affordable housing sets the stage for personal and societal benefits 
from education. 
6. Transportation - Transportation costs [can leave] families with less 
money for other necessities.  Housing close to transit can help residents 
save money and access jobs and critical community services, while 
improving health. 
7. Economic Development - Affordable housing increases local purchasing 
power, boosts job creation, and generates new tax revenues.  Having a 
strong local workforce entices existing employers to expand and new 
economic development to come to Waterford. 
 
 
 

6 
 
Waterford intends for there to be housing choices and opportunities for:  
• 
People of all ages, 
• 
People of all incomes, and 
• 
People of all backgrounds and situations. 
 
Waterford can provide for additional housing choices and options for people 
who already live here (or in the region) and may want a different housing choice 
for themselves or other family members in the future, including housing choices 
that are affordable . Waterford can provide for additional housing options and 
choices beyond what currently exists.   
 
Waterford intends to plan today for the housing needs of the future.  Providing 
for housing affordable to people earning 80 percent or less of the area median 
income (AMI) will be part of this approach. 
 
AHEPA Senior Apartments – Clark Lane 
 
 
 
 

7 
2 
INVENTORY & ASSESSMENT 
 
 
 
According to the preliminary 2020 Census results, Waterford has about 8,873 
housing units in the community.   
 
Single-Family Dwelling 
 
Single-Family Dwelling 
Two-Family Building  
 
Townhouse 
Multi-Family Development 
 
Multi-Family Development 
 
 
 

8 
 
2.1 Housing Mix 
 
The American Community Survey (ACS) estimates that about 88 percent of all 
housing units in Waterford are detached one-family structures.  This is higher 
than New London County and the state and higher than nearby communities.  In 
comparison to the state-wide housing mix, Waterford has more 1-unit detached 
units and less of other types of housing. 
 
Waterford 
Compared To State-Wide Mix 
American Community Survey, 5-Year Estimate (2018) 
 
 
Waterford 
Share 
County 
State 
1-unit, detached 
7,352 
86% 
65% 
59% 
1-unit, attached 
232 
3% 
4% 
5% 
2 units 
186 
2% 
8% 
8% 
3 or 4 units 
98 
1% 
7% 
9% 
5 to 9 units 
267 
3% 
5% 
6% 
10 to 19 units 
114 
1% 
3% 
4% 
20 or more units 
153 
2% 
6% 
9% 
Other 
110 
1% 
3% 
0% 
American Community Survey 5-Year Estimates (2018) / Table B25024 
 
 
 
1-unit, detached
1-unit, attached
2 units
3 or 4 units
5 to 9 units
10 to 19 units
20 or more units
Other
0%
25%
50%
75%
100%
125%
150%
1-unit, detached
1-unit, attached
2 units
3-4 units
5-9 units
10-19 units
20+ units
Waterford
County
 
Waterford has 
less housing 
diversity than 
surrounding 
communities … 
 
About 88% of 
all housing 
units in 
Waterford are 
single-family 
detached 
homes … 
 
Percent 1-Unit Detached 
Waterford 
88% 
Ledyard 
83% 
East Lyme 
82% 
Montville 
82% 
NL County 
66% 
Connecticut 
59% 
Groton 
46% 
New London 
31% 
CERC Town Profiles, 2019 
 
 

9 
 
2.2 Demographic Composition  
 
The median age of Waterford residents (half the 
residents are older and half are younger) has been 
increasing since at least 1960 and Waterford’s 
median age is now older than it has ever been.  
People typically have different housing needs and 
desires at different ages and life stages.   
For the last 30 years or so, the largest age cohort in 
Waterford has been persons over age 55 and this 
trend is expected to continue.   
Median Age Of Residents 
1960  
30.2 
1970 
31.3 
1980 
35.6 
1990 
39.6 
2000 
42.8 
2010 
45.9 
2020 (estimated) 
48.3 
US Census, Planimetrics
 
Higher median ages reflect longer lifespans due to healthcare improvements 
and the aging of “baby boomers” (people born between 1945 and 1965).   
 
Another reason that the average age is increasing may be that Waterford is not 
attracting younger persons and families.  This could be due to the cost of 
housing or that the housing is not configured for their needs or interests (type, 
size, location, amenities, etc.).  
 
Over time, the number of people per occupied 
housing unit in Waterford has been decreasing.  
With smaller household sizes, people may want or 
need smaller (and less expensive) units than were 
built in the past.  
 
 
Year 
People/HH 
 
1970 
3.23 
 
1980 
2.83 
 
1990 
2.50 
 
2000 
2.41 
 
2010 
2.38 
 
2020 (estimated) 
2.39 
 
US Census, ACS 
 
 
 
 
The age 
composition  
of Waterford  
is changing …  
 
• 
There are now more 
older residents (with 
unique housing 
needs) … 
 
• 
This may also be an 
indication that 
Waterford is not 
attracting young 
persons and families 
… 
 
 

10 
 
2.3 Cost Characteristics 
 
Housing Values / Sale Prices – The American Community Survey reported that 
the median house value in Waterford (what property owners feel their housing 
unit would sell for) was higher (less affordable) than the county and a number 
of surrounding communities.  The data in the sidebar on sales price reflects the 
median price of housing units that sold (a subset). 
 
Waterford has fewer units valued below $200,000 than the county or the state. 
 
 
 
HOUSE VALUE 
Waterford 
Share 
County 
State 
Less than $50,000 
99 
2% 
2% 
4% 
$50,000 to $99,999 
81 
1% 
3% 
3% 
$100,000 to $149,999 
415 
6% 
9% 
10% 
$150,000 to $199,999 
1,257 
20% 
15% 
20% 
$200,000 to $299,999 
2,444 
38% 
27% 
31% 
$300,000 to $499,999 
1,709 
27% 
27% 
24% 
$500,000 to $999,999 
386 
6% 
12% 
7% 
$1,000,000 or more 
55 
1% 
5% 
2% 
American Community Survey 5-Year Estimates (2018) / Table B25075 / Table B25077 / CERC for Median Value 
 
 
 
 
Housing values 
and sale prices 
in Waterford 
are higher (less 
affordable) 
than some 
nearby 
communities … 
 
Median Sales Price 
East Lyme 
$300,200 
Connecticut 
$270,100 
Waterford 
$253,400 
NL County 
$238,900 
Groton 
$237,500 
Ledyard 
$236,500 
Montville 
$192,000 
New London 
$177,100 
CERC Town Profiles, 2019 
 
 

11 
 
Gross Rent – According to the American Community Survey, the median gross 
rent being paid in Waterford (utility payments are factored in) was higher (less 
affordable) than the county and the state and a number of surrounding 
communities.    
 
Waterford has fewer units renting below $1,500 than the county or the state. 
 
 
 
 
GROSS RENT 
Waterford 
Share 
County 
State 
No cash rent  
136 
- 
- 
- 
Renter-occupied units w/rent 
1,243 
100% 
100% 
100% 
Less than $500 
124 
10% 
10% 
10% 
$500 to $999 
228 
18% 
30% 
26% 
$1,000 to $1,499 
542 
44% 
42% 
38% 
$1,500 to $1,999 
250 
20% 
14% 
16% 
$2,000 to $2,499 
74 
6% 
3% 
5% 
$2,500 to $2,999 
25 
2% 
1% 
2% 
$3,000 or more 
0 
0% 
0% 
2% 
American Community Survey 5-Year Estimates (2018) / Table B25063 / Table B25064 / CERC for Median Rent 
 
 
 
 
Rental rates in 
Waterford are 
higher (less 
affordable) 
than some 
nearby 
communities … 
 
Median Rent 
East Lyme 
$1,233 
Groton 
$1,183 
Waterford 
$1,143 
Ledyard 
$1,134 
Connecticut 
$1,123 
Montville 
$1,116 
NL County 
$1,071 
New London 
$950 
CERC Town Profiles, 2019 
 
 

12 
 
2.4 Affordability Characteristics 
 
Housing affordability is an issue throughout Connecticut and communities are 
recognizing that community vitality, community diversity, and economic 
development can all be enhanced by having a housing portfolio which includes 
choices of housing units which are more affordable.   
 
Housing affordability is best understood by comparing housing costs of 
individual occupants to their actual incomes.  A household is considered to be 
cost burdened if more than 30% of their income goes towards housing costs.   
 
Overall, over 2,100 current Waterford households are spending more than 30 
percent of their income on housing.   
• 
Almost one-in-five renter households are spending more than 50% of 
their income on housing. 
• 
About one-in-three renter households (33%) are spending more than 
30% of their income on housing.   
• 
For current owner households in Waterford with a mortgage, about 
28% are spending more than 30% of their income on housing.   
• 
For households which do not have a mortgage, about 22% are spending 
more than 30% of their income on housing. 
 
 
 
 
RENTER 
 
OWNER  
With Mortgage 
 
OWNER  
No Mortgage 
COST BURDEN 
 
Waterford 
Share 
 
Waterford 
Share 
 
Waterford 
Share 
Less than 20.0 % 
 
288 
21% 
 
1,472 
36% 
 
1,473 
61% 
20.0 to 29.9 % 
 
479 
34% 
 
1,432 
35% 
 
398 
17% 
30.0 % or more 
 
453 
33% 
 
1,119 
28% 
 
538 
22% 
Not computed 
 
159 
12% 
 
 
 
 
 
 
American Community Survey 5-Year Estimates (2018) / Table B25101 / Table B25074 
 
Renters 
 
Owners With Mortgage 
 
Mortgage-Free Owners 
 
33% 
Are Cost-Burdened 
 
 
28% 
Are Cost-Burdened 
 
 
22% 
Are Cost-Burdened 
 
 
 
Overall, over 
2,100 
Waterford 
households are 
spending more 
than 30 percent 
of their income 
on housing … 
 
While Waterford has some 
housing units which sell or 
rent at affordable prices: 
• 
These units are not 
necessarily occupied by 
the lower income 
persons and families 
who need them, 
• 
Such units may not be 
available at the time a 
moderate-income 
person or family needs 
one, and 
• 
Such units can be 
subject to price 
fluctuations which no 
longer make them 
affordable. 
 

13 
 
Census data indicates that older households tend to have lower incomes (and 
fixed incomes).  In addition, elderly owner households may end up spending 
more than 30% of their income on housing due to increasing ownership costs. 
 
STATE-WIDE – Income And Cost Burden by Owner Age Group  
 
 
Percent of HH Earning Less Than 
$60,000 
Percent of HH Spending More Than 
30% On Housing 
<30 years old 
57% 
6% 
30-54 
34% 
16% 
55-64 
34% 
19% 
65-79 
50% 
26% 
80 and older 
73% 
31% 
US Census  / Custom PUMS Cross-Tabulation (2018) 
 
Information from the American Association of Retired Persons (AARP) suggests 
that many older households would prefer to age in place in their current homes.  
However, the fact that older households can be income-limited and/or cost-
burdened may mean that their housing situation may be tenuous and could 
change quickly depending on health or financial circumstances.   
 
And, as would be expected, lower income households are the most cost-
burdened owners and renters.   
 
STATE-WIDE - Cost Burden by Householder Income 
 
 
OWNER Spending  
30% Or More On Housing 
RENTER Spending  
30% Or More On Housing 
$0 - $19,999 
87% 
74% 
$20 - $39,999 
74% 
77% 
$40 - $59,999 
52% 
45% 
$60 - $79,999 
35% 
17% 
$80 - $99,999 
21% 
7% 
$100,000 + 
6% 
3% 
US Census  / Custom PUMS Cross-Tabulation (2018) 
 
 
 
 
Older 
households may 
have lower 
incomes and be 
more likely to 
be cost-
burdened ... 
 
 
 
ALICE Report 
 
 
 
In 2020, the United Way 
issued an “ALICE” report on 
financial hardships faced by 
people in Connecticut.  The 
term “ALICE” is an acronym 
for Asset Limited, Income 
Constrained, Employed. 
 
The report looks at the 
number of households 
struggling to afford life’s 
basic necessities due to 
income limitations and/or 
expenses .  
 
The 2020 ALICE Report 
estimated that 28 percent of 
the households in Waterford 
fell below the ALICE 
threshold. 
 
https://alice.ctunitedway.org
/meet-alice-2/  
 

14 
 
2.5 State-Defined Affordable Housing 
 
Overall, there are about 485 housing units in Waterford which are assisted or 
restricted to remain affordable for some time: 
 
 
Waterford 
Share 
County 
State 
Government-Assisted  
213 
2.5% 
7.5% 
6.1% 
Tenant Rental Assistance 
33 
0.4% 
1.3% 
3.0% 
CHFA / USDA Mortgages  
239 
2.8% 
2.4% 
1.9% 
Deed-Restricted Units 
0 
0.0% 
0.1% 
0.4% 
Total  
485 
5.6% 
11.4% 
11.3% 
DOH Affordable Housing Appeals List (2022) 
 
Government-Assisted Units (213 units) - Waterford has 213 government-
assisted units.  Since government assisted units have been funded by 
government programs related to housing, Waterford can be fairly comfortable 
that these units will continue to be affordable for the foreseeable future. 
 
Elderly + Disabled (210 units) 
# 
 
AHEPA Waterford 
54 
95 Clark Lane 
Jordan Brook Terrace 
26 
55 Yorkshire Drive 
Twin Haven Waterford 
40 
36 Mary Street 
Victoria Gardens 
90 
105 Boston Post Road 
Family (0 units) 
 
 
(none) 
 
 
Other (3 units) 
 
 
Group Home   
1 
Hamast Avenue 
Group Home   
1 
High Ridge Drive 
Group Home   
1 
Quarry Road 
DOH Affordable Housing Database (2019) 
 
Tenant Rental Assistance Units (33 units) – The locations of tenants receiving 
rental assistance are not disclosed.  The number and location of tenant rental 
assistance units can change over time since the assistance is provided to eligible 
people.  Over the past decade, Waterford has had between 13 and 35 units.   
 
CHFA/USDA Mortgages (239 units)  – The locations of the units financed by 
CHFA/USDA mortgages are not disclosed.  The number and location of these 
units can change over time since the assistance is provided to eligible people.  
Over the past decade or so, Waterford has had between 136 and 266 units.   
 
Deed-Restricted Units (0) units) –Waterford has zero deed-restricted units. 
 
 
 
Overall, 
Waterford has 
485 housing units 
that meet State 
criteria for 
“affordable 
housing” … 
 
State statutes only consider 
housing which is 
encumbered in some way to 
sell or rent at affordable 
price levels:  
• 
Governmentally assisted 
housing developments,  
• 
Rental units occupied by 
households receiving 
tenant rental assistance,  
• 
Ownership units 
financed by government 
mortgages for 
low/moderate income 
persons and families,  
• 
Housing units subject to 
deed restrictions 
limiting the price to 
where persons or 
families earning eighty 
percent or less of the 
area median income pay 
thirty per cent or less of 
their income for 
housing. 
 
 
 
 

15 
 
The following chart compares the number of State-defined affordable housing 
units in Waterford to some other Connecticut communities. 
 
 
 
Similar # of Housing Units  
% AH 
Simsbury 
9,123 
4.7% 
Watertown 
9,096 
5.0% 
Southbury 
9,091 
1.5% 
Bloomfield 
9,019 
11.1% 
Rocky Hill 
8,843 
5.4% 
Waterford 
8,634 
5.6% 
East Lyme 
8,458 
6.2% 
Ansonia 
8,148 
15.3% 
Berlin 
8,140 
9.3% 
Plainville 
8,063 
7.2% 
Madison 
8,049 
1.7% 
Planimetrics Based On DOH Affordable Housing Appeals List (2019) 
 
Elderly / Disabled Housing 
 
Victoria Gardens 
Jordan Brook Terrace 
Twin Haven Waterford 
 
 
 
Most of the 
“affordable 
housing” units in 
Waterford that 
are counted by 
the State have 
been created by 
others … 
 
 
 
 

16 
 
2.6 Affordable Housing Appeals Procedure  
 
In the late 1980s, the Connecticut legislature adopted the Affordable Housing 
Appeals procedure (codified as CGS Section 8-30g) in order to address the 
increasing unaffordability of housing in Connecticut and the concern that zoning 
was a land use tool which had exclusionary (and discriminatory) impacts. 
 
Any community where less than 10 percent of the housing stock meets the 
State criteria for “affordable housing” is subject to a possible zoning over-ride 
procedure.  Waterford is subject to this  since only about 5.6 percent of the 
housing units in town (i.e., less than 10 percent) meet the statutory criteria.   
 
CGS Section 8-30g provides that certain developments where more than 30 
percent of the units are deed-restricted as affordable housing may not have to 
comply with local Zoning Regulations.   
 
There are two ways that Waterford can become exempt from the Affordable 
Housing Appeals procedure (note that the target numbers will change once the 
2020 Census results are issued): 
• 
Add 449 or so housing units that meet State criteria to get above the 
State’s 10% threshold, 
• 
Add enough housing units to get 173 or so “housing unit equivalent 
points” to qualify for a four-year moratorium. 
 
Housing unit equivalent points are configured as follows: 
 
Basic Point Values (per unit) 
Ownership 
Unit 
Rental Unit 
Family units at 40% AMI 
2.0  
2.5  
Family units at 60% AMI 
1.5  
2.0  
Family units at 80% AMI 
1.0  
1.5  
Elderly units 
0.50  
0.50  
Unrestricted units in a set-aside development  
0.25  
0.25  
In a resident-owned mobile manufactured home park:  
• 
Income eligible households 
• 
Non income eligible households 
 
1.5  to 2.00 
0.25 
 
1.5  to 2.00 
0.25 
Bonus Point Values (added to basic unit values above) 
 
 
Family units containing at least three bedrooms 
+ 0.25  
+ 0.25  
Elderly units (if located with at least 60% family units) 
+ 0.50  
+ 0.50  
Family units within an approved incentive housing development 
+ 0.25  
+ 0.25  
 
 
 
 
 
Waterford would 
need to add 449 
or so “affordable 
units” to reach the 
10% threshold … 
 
 
 
Waterford would 
need to obtain 
173 or so “points” 
to get a four-year 
moratorium … 
 
 
 
Every housing unit 
that gets built 
that does not 
meet State 
criteria puts 
Waterford further 
away from either 
goal … 
 
 

17 
 
2.7 Summary Of Findings 
 
1. Almost 90% of all housing units in Waterford are single-family detached 
homes and while such homes meet the housing needs of many people, they 
do not meet the housing needs of all present or future Waterford residents. 
 
2. People have different housing needs at different ages / life stages and 
Waterford’s age composition has more older residents than ever before.   
 
3. People are living longer and may have to afford housing over a longer 
period of time. 
 
4. Younger persons and families may not be able to find housing in Waterford 
that meets their criteria (including cost). 
 
5. About 40% of Waterford’s population is over age 55 and “empty nester” 
and “elderly” households may want smaller units in order to: 
a. have access to more amenities, 
b. reduce property maintenance requirements (grass cutting, snow 
clearing, gutter cleaning, leaf raking, etc.), 
c. be closer to other people, and/or 
d. reduce housing costs. 
 
6. With smaller household sizes, people may want smaller (or less expensive) 
units than were built in the past. 
 
7. Over 2,100 Waterford households are considered cost burdened because 
they are spending more than 30 percent of their income on housing – this 
includes a number of elderly households and low- and moderate-income 
households. 
 
8. Overall, Waterford has 485 housing units that meet State criteria for 
“affordable housing.”  
 
9. All of the units of “affordable housing” which meet State criteria were 
created by entities and organizations other than the Town of Waterford. 
 
10. Waterford is subject to the Connecticut “Affordable Housing Appeals 
Procedure” (zoning over-ride) because less than 10% of the housing stock 
meets the State criteria (Waterford is at 5.6%) 
 
 
 
 

18 
3 
COMMUNITY INPUT 
 
 
 
3.1 Overview   
 
An on-line survey was conducted in March and April of 2021 to learn about 
community attitudes about housing and housing-related issues.  Overall, 454 
people participated in the survey (many more than would have attended an in-
person meeting).   
 
A summary of the responses to introductory questions is presented below and 
then additional responses follow (totals may not add due to rounding): 
 
3.2 Housing Experiences / Desires 
 
1. Most participants (90%) indicated they lived in a single-family residence at 
the present time. 
 
2. A number of participants can imagine themselves living in a different kind of 
home in the future. 
 
Which of the following housing types: 
How would you 
describe your 
current residence 
What kind of 
home(s) can you 
imagine living in in 
the future? 
Single-Family House 
90% 
74% 
2-4 Family Building 
2% 
1% 
Condominium 
5% 
11% 
Apartment Building  
1% 
2% 
Life Care Community 
0% 
6% 
Other 
1% 
6% 
 
 
 
 
 
 
 
 
 

19 
 
3. When asked whether Waterford currently had too little, too much, or just 
about the right amount of certain types of housing, some participants felt 
that Waterford might have too little: 
• 
2-4 family buildings,  
• 
Apartment building 
• 
Life care / assisted living, and 
• 
Other forms of housing (senior housing, one-floor living, etc.).  
 
 
Too  
Little 
Just About 
Right 
Too  
Much 
Single-Family House 
15% 
74% 
11% 
2-4 Family Building 
42% 
43% 
15% 
Condominium 
29% 
53% 
17% 
Apartment Building  
46% 
37% 
17% 
Life Care Community 
49% 
43% 
8% 
Other 
43% 
45% 
12% 
 
3.3 Housing Affordability 
 
4. When asked about housing costs, about 54% of participants felt their 
household could afford to spend less than $1,750 per month on housing 
(including rent/mortgage, utilities, and taxes/fees): 
 
 
 
Less than $1,000 per month 
9% 
$1,000-$1,250 per month 
14% 
$1,250-$1,500 per month 
16% 
$1,500-$1,750 per month 
16% 
$1,750-$2,000 per month 
20% 
Over $2,000 per month 
26% 
 
5. About 65% of participants felt their household was already spending more 
than 30% of their income on housing (rent/mortgage, utilities, real estate 
taxes, condominium fees, etc.). 
 
6. About 59% of participants felt there may come a time when they may no 
longer be able to afford to live in Waterford. 
 
7. About 57% of participants felt that housing affordability is a concern in 
Waterford. 
 
8. About 54% of participants felt Waterford should encourage more housing 
that people can afford. 
 
 
 

20 
 
3.4 Housing Types To Encourage 
 
9. When asked about what kinds of housing Waterford should encourage, 
participants indicated the following (listed by percentage): 
 
 
% Encourage 
1. 
Veteran housing 
88% 
2. 
Housing for people over 55 years old 
86% 
3. 
Single family homes 
84% 
4. 
Housing for families 
83% 
5. 
Assisted living 
80% 
6. 
1-2 story condominiums 
75% 
7. 
Workforce housing 
64% 
8. 
2-4 family homes 
56% 
9. 
1-2 story apartment buildings 
60% 
10. Other (see below) 
41% 
11. 3-4 story condominiums 
29% 
12. 3-4 story apartment buildings 
23% 
 
 
Sampling Of “Other” Responses To  
Q13 – Housing Types To Encourage 
 
• 
[Housing] that fits with the neighborhood 
• 
Accessory dwelling units / In law housing / granny pad 
• 
Housing placed on smaller lots 
• 
NOT low income housing 
• 
More multi-family housing to encourage younger people and less senior housing.  
• 
Senior housing 
• 
Affordable homes for independent seniors 
• 
Single family homes that sell for under 250,000 new or refurbished.  
• 
Smaller single family homes 
• 
[Cottage] communities (600 - 1200 SF homes) that offer the dignity and stability of 
home ownership and a sense of community and pride.    
• 
“Less income” housing. 
 
 
 
 

21 
 
3.5 Possible Housing Strategies 
 
10. Under State law, housing developments can be built without meeting local 
zoning requirements if at least 30% of the units in the development are 
affordable and less than 10% of the housing in Town is officially 
documented affordable. Waterford is at 5.6%. 
 
 
% Agree 
a. 
Waterford should seek opportunities to increase the 
amount of available affordable housing to avoid an 
override of local zoning requirements. 
65% 
b. 
Waterford should seek opportunities to increase the 
amount of housing that people can afford, even if it 
wouldn’t help avoid an override of zoning 
requirements. 
57% 
 
11. There are multiple ways to increase the amount and types of affordable 
housing.  Waterford should consider (listed by percentage): 
 
 
% Agree 
a. 
Require that some percentage of any new apartment or 
condominium project be designated as affordable. 
58% 
b. 
Allow people to build separate living quarters on their 
single family properties, such as “garage apartments,” 
“tiny homes,” etc. 
55% 
c. 
Partner with developers to build affordable housing 
developments. 
45% 
d. 
Allow accessory apartments that can be rented. 
36% 
e. 
Expand the areas in Waterford where multifamily 
housing can be built. 
35% 
f. 
Allow single family homes to be converted into two-
family homes. 
31% 
g. 
Convert some existing single family homes into deed-
restricted affordable housing. 
27% 
 
 
 
 
 
 
Responses to the following 
open-ended questions are 
available separately: 
 
Do you have other thoughts 
about the range of housing 
choices in Waterford? 
 
What issues do you think will 
be most important as 
Waterford considers new 
housing development or the 
possibility of changes to 
existing housing 
requirements?  
 
Is there anything you would 
like to tell us about your 
experiences with housing in 
Waterford? 
 
 

22 
4 
STRATEGIES FOR CONSIDERATION 
 
 
 
4.1 Establish An Affordable Housing Committee   
 
Having one entity overseeing and coordinating housing related issues will help 
the Town accomplish its housing goals.  This could be done by reinvigorating the 
Housing Partnership (appointed by the First Selectman) or establishing an 
Affordable Housing Committee). 
 
4.1.1 
(OPTION) Reinvigorate the Housing Partnership (Ordinance 2.104)   
• 
Review/update provisions related to the Housing Partnership 
• 
Reinvigorate the Housing Partnership 
 
 
4.1.2 
(OPTION) Establish An Affordable Housing Committee  
• 
Include a representative from the Planning and Zoning Commission 
• 
Include a representative from the Board of Selectmen 
• 
Include a representative from the Senior Services Department 
• 
Include a representative from the Youth / Families Services Department 
• 
Include 2-3 residents with experience in housing / public policy 
• 
Include 1-2 residents with experience in building / development 
• 
Include 1-2 residents with experience in residential real estate (sales, 
rental. management, etc.) 
 
 
4.2 Reinvigorate The Housing Authority  
 
The Housing Authority has the ability to obtain state and/or federal funding for 
housing-related programs and developments.   
 
4.2.1 
Reinvigorate The Housing Authority (Ordinance 2.100) 
• 
Review the status of current appointments (if any) 
• 
Fill any vacancies (per Ordinance 2.100.030) 
 
 
4.2.2 
Create Housing Authority Units  
• 
Create Elderly / Disabled Units 
• 
Create “Family” Units 
 
 
 
 
 
 
 
 
 
 
 
 
 

23 
 
4.3 Implement Inclusionary Zoning  
 
Waterford can adopt zoning regulations to require that some provision for 
affordable units be made as part of some or all new development.   
 
4.3.1 
Require Affordable Units In Any New Residential Development 
• 
Adopt a zoning regulation requiring that a certain percentage (to be 
decided) of any new residential development meet State affordability 
criteria while allowing the units to be: 
o Built on site,  
o Built elsewhere in Waterford,  
o Accomplished through deed-restricting an existing unit. 
• 
Consider accepting multiple residential lots instead of an affordable unit 
• 
Consider allowing for a density bonus for providing affordable units 
 
 
4.3.2 
Allow/Require Payment Of A Fee In Lieu Of Affordable Units 
• 
The Zoning Regulations could allow payment of a fee in lieu of providing 
affordable housing units (funds would be deposited in a dedicated 
account) 
• 
If a calculation of the number of affordable units ends up with a 
fractional remainder, the Zoning Regulations could require payment of a 
fee for that fractional remainder (funds would be deposited in a 
dedicated account) 
 
 
4.3.3 
Establish A Zoning Permit Fee 
• 
Establish an affordable housing fee as part of issuance of a Zoning 
Permit (funds would be deposited in a dedicated account) 
 
 
 
 
 
 
Inclusionary zoning is a 
technique for developing 
diverse mixed-income 
communities by requiring 
new residential development 
make a percentage of the 
new units affordable to 
targeted incomes.  
 
Inclusionary zoning can also 
let developers build more 
units through a “density 
bonus” along with other 
incentives to help the 
program operate better. 
 
Additional information may 
be found on-line by 
searching the term 
“inclusionary zoning.” 
 
If Waterford had 
established a 10% 
inclusionary 
zoning set-aside 
requirement in 
1989, it might 
have 140 
additional 
affordable units 
and at least one 
moratorium from 
CGS 8-30g … 
 
 

24 
 
4.4 Guide Residential Development  
 
Waterford prefers that future housing in Waterford be built in places and ways 
which are consistent with the community’s overall vision for future growth as 
expressed in the Plan of Conservation and Development (POCD).  This includes 
housing that is set aside to meet identified local housing needs: 
• 
Housing for an aging population, 
• 
Housing For low- and moderate-income households. 
 
4.4.1 
Accomplish The Housing Goal In The POCD 
 
 
CURRENT POCD GOAL 
 
Encourage a variety of housing types and densities to meet the housing 
needs of current and future residents.   
 
 
 
4.4.2 
Implement Housing Strategies In The POCD 
 
More 
Relevant To 
AH Plan 
• 
Provide For A Diverse Housing Portfolio In Waterford  
o 
Provide for housing options to meet evolving housing 
needs  (an aging population as well as younger persons and 
families) 
 
• 
Implement Location Guidelines For Multi-Family Development 
o 
With adequate infrastructure (public water, public sewer, 
road)  
o 
Density as envisioned in POCD (such as mixed use nodes) 
and/or in character with surrounding development  
o 
Overall design compatible with the character of the 
community  
 
 
• 
Protect Existing Residential Neighborhoods 
o 
Continue to be a predominantly single-family residential 
community   
o 
Continue the general patterns of residential type and 
intensity  
 
Less Relevant 
To AH Plan 
• 
Encourage Flexible Residential Subdivision Layouts 
o 
Use a flexible approach to residential subdivision to help 
preserve important resources on a parcel 
 
 
 
 
 
The housing goal 
and housing 
strategies in the 
2015 POCD will be 
reviewed  
and updated as 
part of preparing 
the next POCD 
update … 
 
 
 
 

25 
 
4.4.3 
Enable / Support Mixed-Use Nodes 
 
• 
Change zoning to encourage or require establishment of walkable, 
pedestrian-friendly, mixed-use nodes with a variety of housing options 
where indicated in the POCD (public water, public sewer, road capacity, 
bus transit, etc.) while maintaining / enhancing the overall “sense of 
place.” 
 
 
 
 

26 
 
4.4.4 
Identify Other Potential Housing Opportunity Areas 
 
• 
Consider identifying specific areas in Waterford which might be eligible 
for consideration for higher density residential development 
• 
Consider discouraging housing in areas with factors potentially not 
supporting housing options 
• 
Consider encouraging housing in areas with factors potentially 
supporting housing options  
 
Factors Potentially Supportive  
Of Housing Options 
 
Factors Potentially NOT Supportive  
Of Housing Options 
• 
Community nodes / existing density / walkable to 
villages and/or services 
• 
Business proximity / busy corridors / 
redevelopment of underperforming properties 
• 
Bus routes / transit 
• 
Public sewer 
• 
Public water 
• 
Public water supply watersheds 
• 
Wetlands 
• 
Watercourses 
• 
Floodplains 
• 
Steep slopes 
 
 
 

27 
 
4.4.5 
Consider Identifying Potential Housing Opportunity Sites 
 
• 
Consider identifying specific parcels of land in Waterford (including 
Town or State-owned parcels) which might be eligible for consideration 
for multi-family residential development 
o Town-Owned Parcels 
o Surplus municipal building / facility building 
o Town parcel in areas with factors potentially supporting housing 
options (possible RFP for public-private partnership) 
o Current / future tax foreclosures 
• 
State-Owned Parcels 
o Surplus State building / facility building 
o State parcel in areas with factors potentially supporting housing 
options 
 
 
 

28 
 
4.5 Promote Good Design 
 
One way to incorporate multi-family housing into the community is to guide the 
design of higher density development.   
 
Waterford should establish / strengthen design guidelines or requirements for 
multi-family housing based on written guidelines / graphic guidelines. 
 
In addition to some of the examples presented herein, the Commission on 
Connecticut's Development and Future (a special committee established by the 
legislature in 2021 as part of Public Act 21-29) will be developing “model design 
guidelines … that municipalities may adopt, in whole or in part, as part of their 
zoning or subdivision regulations” which will: 
• 
identify common architectural and site design features of building types 
used in urban, suburban and rural communities throughout the state,  
• 
create a catalogue of common building types, particularly those typically 
associated with housing. 
 
 
 

29 
 
Simsbury’s Workforce Housing 
Overlay Zone Guidelines 
 
Affordable Housing Design Advisor 
Website 
 
Pattern Book 
(Norfolk, VA) 
 
Form-Based Code / Appearance Standards 
(Canton, CT) 
 
 
 
 
 
 
 

30 
 
4.6 Update Multi-Family Housing Regulations  
 
4.6.1 
Increase Number And Variety Of Multi-Family Units 
 
• 
Undertake a comprehensive review / revision of multi-family 
regulations: 
 
Zoning District 
Possible Modifications 
Locations Allowed 
Locational guidelines should be revisited based on current 
land use patterns and other considerations 
Density Allowed 
Density provisions should be revisited and calibrated 
based on existing developments in Waterford 
Height Limitations 
Height limitations might be increased provided there are 
appropriate setbacks from property lines 
Coverage Limitations Coverage limitations might be increased provided there 
are adequate stormwater controls and appropriate 
landscaping and buffers to abutting uses 
Development 
Limitations 
Limitations to unit types, number of units per building, 
number of bedrooms per acre, number of bedrooms per 
unit, unit mix specifications, age limitations, and minimum 
parcel size should be revisited 
 
• 
Map zones that allow multi-family development and evaluate possible 
opportunities 
 
• 
Map zones that allow age-restricted residences / assisted living / 
nursing homes and evaluate possible opportunities 
 
 
4.6.2 
Consider New Tools 
 
• 
Planned Housing District (in a specific location) 
• 
Planned Development District (a process to be sited) 
• 
Incentive Housing  
o District 
o Special Permit 
 
• 
1BR to 2BR (some 3BR possible) 
• 
Handicap accessible 
• 
Affordable at 60% / 80% / 100% AMI 
 
 
 

31 
 
4.7 Consider Other Regulation Changes  
 
4.7.1 
Consider Encouraging / Allowing Smaller Scale Multi-Family Housing 
 
• 
Consider encouraging or allowing smaller scale multi-family housing 
(sometimes referred to as “missing middle” housing) which: 
o Fall in between single-family housing and large-scale multi-
family developments 
o Maintain the scale and appearance of residential homes  
• 
Undertake a study to evaluate the applicability of “missing middle” 
housing in Waterford and identify possible locations 
 
 
 
4.7.2 
Enable Adaptive Re-Use Of Existing Buildings 
 
• 
Enable mixed use redevelopment of commercial sites on arterial roads  
• 
Consider allowing adaptive use of homes on collector or arterial roads 
to multi-family residential or small-scale multi-family use  
 
4.7.3 
Update Regulations To Reflect PA 21-29   
 
• 
Update accessory dwelling unit regulations 
• 
Eliminate living space requirements (rely on the building code, health 
code, fire code, etc.) 
• 
Revisit local parking requirements for multi-family and mixed-use 
developments  
 
 
 

32 
 
4.8 Consider Other Strategies  
 
4.8.1 
Maintain / Improve Design Review 
 
• 
To ensure that new developments fit into the overall character of 
Waterford, prepare written and /or illustrated design guidelines with 
regard to key design elements to guide developers, architects, 
engineers, staff, commissioners, and the community about design 
approaches to be encouraged (and discouraged) and maintain and/or 
enhance the character of Waterford 
• 
Conduct a visual preference exercise to understand acceptable 
parameters for height, scale, mass, articulation, and other design 
factors in different areas 
 
4.8.2 
Establish A Housing Trust Fund 
 
• 
Establish a “housing trust fund” (as authorized by CGS 8-2i) to receive 
funds from appropriations, fees, grants, donation, and other sources  
• 
Expend funds for public/private partnerships producing affordable 
housing, deed-restricting existing units, rehabilitation loans in exchange 
for deed restrictions 
 
4.8.3 
Get Configured For Future Deed-Restricted Units 
 
• 
Prepare a model housing affordability plan to establish parameters for 
how deed-restricted affordable units will be managed over time 
• 
Designate an affordability plan administrator (income verification, price 
determination, etc.) for future deed-restricted affordable units  
 
4.8.4 
Extend Period For Deed-Restricted Units 
 
• 
Require that affordable units in a set-aside development be restricted 
for 40 years or the life of the development, whichever is longer 
• 
Consider requiring an “affordability easement” or other encumbrance 
(including a right-of-first refusal) so affordability restrictions do not get 
foreclosed out without notice to the Town 
 
4.8.5 
Consider Property Tax Incentives 
 
• 
As provided in CGS Section 12-81bb or CGS Section 87-215, consider 
providing for property tax credits or abatements for affordable housing  
 
 
 

33 
 
4.8.6 
Support / Facilitate Aging In Place 
 
• 
Continue to offer tax relief for lower income seniors / disabled  
o State-sponsored program for elderly / disabled earning less than 
$45,800 (married) or $37,600 (single or widowed) providing a 
tax credit up to $1,250 (married) or $1,000 (single or widowed) 
o Town tax relief program providing a tax benefit up to $225 for 
eligible property owners.  
• 
Maintain / expand Town services (Social / Nutrition / Health / Education 
/ Transportation, etc.) which can help older residents age in place 
 
4.8.7 
Support Owner / Tenant Assistance Programs 
 
• 
Promote CHFA/USDA Mortgages 
• 
Promote “Tenant-Based” Rental Assistance 
• 
Promote “Project-Based” Rental Assistance 
 
4.8.8 
Seek To Reserve Sites For Meeting Housing Needs 
 
• 
Seek to re-use municipal buildings / properties 
• 
Seek to preserve tax delinquent / foreclosed sites for affordable housing 
 
4.8.9 
Enable/Encourage Livability Improvements  
 
• 
Exempt required accessibility improvements from yard setbacks 
• 
Consider encouraging / requiring universal accessibility / livability (zero 
step thresholds, lever door handles, handicapped accessible bathrooms, 
higher toilets, lower light switches, first floor master bedrooms, etc.) 
 
4.8.10 Seek Partnerships To Create Affordable Units  
 
• 
Partner with organizations such has Habitat for Humanity to produce 
affordable units 
• 
Investigate public-private partnerships which would result in the 
production of affordable units 
• 
Work with area financial institutions to help them meet their 
Community Reinvestment Act obligations by supporting the creation of 
affordable housing 
 
 
 
 

34 
 
4.9 Seek To Avoid Over-Rides Of Local Zoning  
 
4.9.1 
Become Exempt From CGS 8-30g 
• 
Create 449 or so additional “affordable housing” units meeting State 
criteria to become exempt from the Affordable Housing Appeals 
Procedure since 10% or more of Waterford’s housing stock will consist 
of: 
o Government assisted units  
o Units where tenants receive tenant rental assistance  
o Units where owners received mortgage assistance  
o Units deed restricted to sell or rent at affordable price levels  
 
4.9.2 
Obtain a Four-Year Moratorium From CGS Section 8-30g 
 
• 
Waterford may have already accumulated 122 points towards the 173 
or so housing unit equivalent points needed to obtain a four-year 
moratorium 
• 
An additional 51 points or so would be required to get a moratorium 
and Waterford has already approved developments which may result in 
an additional 118 points or more. 
 
Housing Type 
HUEP If 
Rented  
HUEP If 
Owned 
Family Units Affordable @ 40% AMI 
2.50 
2.00 
Family Units Affordable @ 60% AMI  
2.00 
1.50 
Family Units Affordable @ 80% AMI 
1.50 
1.00 
Elderly Units Affordable @ 80% AMI 
0.50 
0.50 
Market Rate Units In Set-Aside Development 
0.25 
0.25 
Family Units In An Approved Incentive Housing Development 
0.25 
0.25 
Mobile Manufactured Home In A Resident-Owned MMH Park 
 
 
MMH Units Affordable @ 60% AMI  
2.00 
2.00 
MMH Units Affordable @ 80% AMI 
1.50 
1.50 
Other Units In A Resident-Owned MMH Park 
0.25 
0.25 
Potential Bonus Points 
 
 
Elderly Units (If at least 60% of the units submitted as part of the 
moratorium application are family units) 
0.50 
0.50 
3-Bedroom Units 
0.25 
0.25 
 
 
 
 
 
The housing goal and 
housing strategies in the 
2015 POCD will be reviewed  
and updated as part