1998 Plan of Preservation, Conservation and Development (PDF)
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WATERFORD
1998 PLAN OF PRESERVATION,
CONSERVATION & DEVELOPMENT
i
July 15, 1998
To Waterford Residents,
This document is the PROPOSED PLAN FOR ADOPTION of the 1998 Plan of
Preservation, Conservation and Development for Waterford, Connecticut. This
Plan reflects the current overall consensus of the Waterford Planning and Zoning
Commission.
If this PROPOSED PLAN FOR ADOPTION is adopted by the Planning &
Zoning Commission:
•
an effective date will be established,
•
a copy will be filed in the office of the Town Clerk, and
•
a legal notice will be published.
The final adopted and printed Plan may differ from this PROPOSED PLAN FOR
ADOPTION if:
•
the Commission wishes to make any final changes in the Plan text,
•
any changes are required in the Plan maps or other graphics, or
•
the addition of any illustrations or photographs changes the pagination
of the document.
The Commission has strived to develop a Plan that reflects the overall consensus
of the community and establishes a working blueprint for the future of Waterford.
We hope that you will work to implement the Plan once adopted.
Sincerely,
WATERFORD PLANNING AND ZONING COMMISSION
ii
TABLE OF CONTENTS
Cover Letter
i
Table of Contents
ii
INTRODUCTION
1
Introduction
1
An introduction to Waterford and the Plan
2
Executive Summary
7
An overview of the goals, policies, and recommenda-
tions of the Plan
CONTEXT
3
Conditions & Trends
13
An overview of issues that influence Waterford such as
history, natural resources, people, and land use
STRATEGIES
4
Community Structure
25
An overview of the desired community structure
5
Natural Resource Conservation
29
Recommendations regarding conservation
6
Coastal Areas
35
Recommendations regarding coastal issues
7
Open Space
41
Recommendations regarding open space preservation
8
Housing & Residential Areas
47
Recommendations regarding residential development
and uses
iii
9
Business & Economic Development
55
Recommendations regarding business development and
business uses
10
Community Facilities & Services
63
Recommendations regarding community facilities and
services
11
Transportation
71
Recommendations regarding vehicular and pedestrian
circulation
12
Infrastructure
79
Recommendations regarding utilities such as public
water and public sewer
13
Special Issues
85
Recommendations regarding special issues such as
design review and historic protection
14
Future Land Use Plan
99
A summary of all recommendations into a future land
use plan for Waterford
IMPLEMENTATION
15
Implementation Tools & Schedule
103
An overview of tools available to implement the Plan
and a summary of how the Plan should be implemented
CONCLUSION
16
A conclusion to the planning process
117
iv
1
INTRODUCTION 1
INTRODUCTION TO WATERFORD
Waterford is a suburban community located in New London County in southeast
Connecticut. The town is bounded by Montville to the north, by New London,
Groton and Ledyard to the east, by Long Island Sound to the south, and by East
Lyme to the west. According to the 1990 Census, Waterford had a population of
17,930 people within its land area of about 33.2 square miles (21,270 acres).
Location Map of Waterford
This Plan has been
prepared to help
Waterford address
inevitable future
growth and change . .
..
2
PLANS OF PRESERVATION, CONSERVATION AND DEVELOPMENT
A Plan of Preservation, Conservation and Development is a tool for guiding the
future growth of a community. Its purpose is to establish a common vision for the
future and then to determine policies that will help attain that vision.
Since the statutory authorization to prepare a Plan is contained in Section 8-23 of
the Connecticut General Statutes, perhaps the wording of that section states best
what a Plan is all about:
"Such plan shall show the commission's recommendations for the most desirable use of
land within the municipality for residential, recreational, commercial, industrial and
other purposes and for the most desirable density of population in the several parts of
the municipality."
The Plan should be viewed as outlining the future physical layout of a community
as well as the means of arriving at that future layout. While the Plan is primarily
a statement of recommendations addressing the physical development of a particu-
lar area, it is also intended to address the social and economic development of the
community.
Reasons for Preparing the Plan for Waterford
Rather than allowing uncoordinated growth or change to occur, preparation of the
Plan of Preservation, Conservation and Development:
•
forms a strategy to address the future of Waterford in a positive way,
•
enables local officials and residents to anticipate and deal constructively
with the inevitable changes that occur within a community, and
•
increases the likelihood that decisions affecting future growth will be ra-
tional and reflect desired goals of Waterford residents.
Most important, conditions and trends affecting Waterford are changing. While
population growth has slowed somewhat from that experienced during the 1950s
and 1960s, housing growth continues. The town is also experiencing demographic
changes such as an aging population and increasing school enrollments. While the
community has grown accustomed to the fiscal benefits of the Millstone Power
Station, these benefits are changing due to assessment practices and the deregula-
tion of the utility industry.
About half of the land in Waterford has been committed to a particular use, and
the other half is potentially developable in the future. How the remaining land is
developed or committed (such as for open space or for economic development or
for residential uses) can fundamentally change the character of Waterford.
The town is expected to continue to grow due to its shoreline location, low taxes,
rural character, and physical beauty. This Plan of Preservation, Conservation and
Development has been prepared to help address this potential growth.
3
EXCERPTS FROM CONNECTICUT GENERAL STATUTES
8-23 - PLAN OF CONSERVATION AND DEVELOPMENT
The Commission shall:
•
prepare, adopt and amend a plan of conservation and development . . .
•
review the plan of conservation and development at least once every ten years . . .
•
adopt such amendments to the plan or parts of the plan . . . as the commission deems neces-
sary to update the plan.
The Plan shall:
•
be a statement of policies, goals and standards for the physical and economic development of
the municipality, ..
•
show the commission's recommendation for the most desirable use of land within the mu-
nicipality for residential, recreational, commercial, industrial and other purposes and for the
most desirable density of population in the . . . parts of the municipality.
•
be designed to promote with the greatest efficiency and economy the coordinated develop-
ment of the municipality and the general welfare and prosperity of its people.
•
be made with reasonable consideration for restoration and protection of the ecosystem and
habitat of Long Island Sound . . .
•
make provision for the development of housing opportunities, including opportunities for
multi-family dwellings consistent with soil types, terrain and infrastructure capacity, for all
residents of the municipality and the planning region . . .
•
promote housing choice and economic diversity in housing, including housing for both low
and moderate income households, and encourage the development of housing which will
meet the housing needs . . .
•
take into account the state plan of conservation and development . . . and note any inconsis-
tencies it may have with said state plan.
The Plan may:
•
show the commission's recommendation for a system of principal thoroughfares, parkways,
bridges, streets and other public ways; for airports, parks, playgrounds and other public
grounds; for general location, relocation and improvement of public buildings; for the general
location and extent of public utilities and terminals, whether publicly or privately owned for
water, sewerage, light, power, transit and other purposes; and for the extent and location of
public housing projects.
•
include recommended programs for the implementation of the plan . . .
•
(include) such other recommendations . . . in the plan as will . . . be beneficial to the munici-
pality.
4
Use of the Plan of Preservation, Conservation and Development
This Plan of Preservation, Conservation and Development is an advisory docu-
ment. Rather than a binding document that must be followed to the letter, it is
intended to provide a framework for consistent decision making. Policies and
recommendations in the Plan are meant to serve as a guide to local residents and
decision makers with regard to preservation, conservation and development activi-
ties in Waterford over the next decade or so.
How Was the Plan Prepared?
The process used to prepare the Plan is illustrated by the following flow chart:
WHERE WE ARE
WHERE WE WANT TO GO
HOW WE WILL GET THERE
IMPLEMENTATION
In the “Where We Are” phase, a comprehensive inventory and assessment of local
conditions and trends were undertaken to identify needs and issues in Waterford.
Booklets on different topical issues (listed below) were prepared for participants
and compiled into workbooks. These workbooks were also available for review at
the Waterford Library and at Town Hall.
Planning Workbooks Used In The Process
1
Planning Primer
11
Open Space & Recreation
2
History
12
Regulatory Review
3
Regional Factors
13
Transportation
4
People
14
Fiscal Overview
5
Housing
15
Tax Impact Analysis
6
Economy
16
Public Meeting
7
Natural Resources
17
Goals & Objectives
8
Coastal Issues
18
Land Use & Development Potential
9
Infrastructure
19
Telephone Survey
10
Community Services & Facilities
20
Other Surveys & Materials
5
In determining “Where We Want To Go,” Waterford residents were involved in
establishing a consensus on important issues through:
•
public presentations that generated input and discussion,
•
public forums that involved residents in planning for the future,
•
a telephone survey of residents,
•
write-in surveys by residents, and
•
other exercises and analyses performed during the process.
Waterford Residents Participating in the Public Forums
6
The “How We Will Get There” phase involved many meetings of the Ad-Hoc Plan
of Conservation and Development Review Committee and the Planning and Zon-
ing Commission where various recommendations were discussed and refined.
The final phase, “Implementation,” takes place after the Plan is adopted and the
various recommendations are implemented and evaluated.
Other Relevant Information
Other relevant information includes the booklets prepared during the process,
previously adopted plans (such as the 1977 Plan of Development, the 1982 Mu-
nicipal Coastal Program, and the Mago Point Plan), and resident surveys.
In some cases, this Plan is an update of previous plans or materials. In the case of
conflict between this Plan and such other information, the recommendation of this
Plan should be presumed to take precedence.
Many people were involved in the preparation of the Plan over an 18-month
period. While it is not possible to name them all, the major participants are listed
inside the back cover of the Plan.
Waterford Sign at Historic Jordan Green
7
EXECUTIVE SUMMARY 2
MAJOR ISSUES
During the preparation of this Plan of Preservation, Conservation and Develop-
ment, the messages that emerged from public meetings, focus groups, telephone
surveys, and questionnaires were that the pace, size, and/or type of development
that was occurring in Waterford was threatening the character of the community
and that residents were concerned about the cumulative impacts of this develop-
ment. Consider that:
•
about 89 percent of all telephone survey respondents felt that the
Town should do more to preserve the rural character of Waterford,
•
about 83 percent felt that the Town should continue to provide ser-
vices at the neighborhood level,
•
about 78 percent felt that the Town should encourage the renovation
of existing buildings and properties in town,
•
about 68 percent felt that the Town should control the exterior design
of new buildings, and
•
about 65 percent felt that the Town should acquire more land for
parks and open space.
Furthermore, at public meetings on the Plan, many residents spoke passionately
about the changes in Waterford and how important it was that development be
compatible with community character. Residents expressed concerns about:
•
the loss of rural character and open land,
•
sprawling development patterns and homogeneity,
•
traffic congestion and roadway improvements,
•
the overall pace or scale of development in Waterford, and
•
the design or layout of individual buildings or sites.
These issues transcend all other elements of the Plan. Residents appear to be
frustrated that the cumulative effect of development has passed a threshold and
that Waterford is in danger of becoming something different than people desire.
As a result, attention is paid in this Plan to the layout of physical areas, sites,
spaces and buildings. But the attention to layout is not just about setbacks or
separations or heights or other technicalities -- it is about the overall pattern of
development and efforts to guide development so that it reinforces the concept of
community.
We need to preserve
and protect commu-
nity character . . .
We need to be more
concerned about the
design of buildings,
sites, and places in
Waterford . . ..
Town or town?
In this Plan, the word “town”
is generally used to refer to
the entire community while
the word “Town” is gener-
ally used to refer to the
governmental entity.
The same general rule holds
for the use of the words
“state” and “State.”
8
It means creating, as well as preserving, pleasing spaces and experiences for
residents and visitors. It means creating comfortable neighborhoods and villages.
It means providing for convenient business areas to meet local and regional needs.
It means providing for appropriate transitions between different areas. It means
promoting excellence in design of buildings, places, neighborhoods, and the com-
munity.
It means doing all of this to retain what is left of the rural character that so many
residents cherish and to promote a better community and higher quality of life that
residents will treasure.
Why Is This Considered So Important?
Waterford is at a critical juncture in its history. About half of the land area in
Waterford has been used to create the community as residents currently know it.
The work must start now if Waterford residents are to influence the future conser-
vation and development of the community.
Waterford has a unique opportunity. Few communities in Connecticut have had
the opportunity to pause at the point when they were about half developed and
consider whether to make fundamental changes in the pattern of development of
the community. Most communities realize too late that they wish they had done
something differently.
Waterford residents have concluded that issues of how development is occurring
are very important to them, and they are sending a message that they want things
to turn out differently than they have in the past. In essence, changed conditions
mandate the consideration of these issues of concern in the Plan.
Rural Character?
Community Character
Residents want areas that
reflect the character of the
community and that com-
plement the overall structure
of Waterford.
This Plan provides guide-
lines for creating distinctive
places that functionally and
visually complement Water-
ford’s character.
Rural Character
The term “rural character”
has a different meaning for
everybody yet is used by
residents to describe their
feelings about different parts
of Waterford.
For some, rural character
may refer to undeveloped
areas that contrast with the
built areas of Waterford. It
may also refer to areas or
places that make Waterford
feel like a small town. For
others, the term hearkens
back to earlier times when
Waterford was more agricul-
tural.
On the other hand, the term
“community
character”
is
typically used to refer to the
overall flavor or personality
of Waterford.
Community character refers
to residents’ feelings about
the built areas as well as the
undeveloped
areas,
the
forested areas as well as the
shore, the people and events
in Waterford as well as the
physical environment.
As the terms are described
above (and used in the Plan),
rural character is a subset of
community character.
9
OVERALL PLAN PHILOSOPHY
During the process of preparing the Plan, the following philosophy emerged as the
foundation for this Plan of Preservation, Conservation and Development:
Carefully guide the future development of Waterford in order to maintain a
community where:
•
the rural character has been preserved,
•
strong village identities have been enhanced, and
•
important natural and cultural features have been protected.
While the following goals and policies may be refined over time, it is anticipated
that this overall philosophy will remain relevant during the anticipated 10- to 20-
year life of this Plan of Preservation, Conservation and Development.
PRIORITY ISSUES
As the Waterford Plan of Conservation & Development was prepared, the follow-
ing major issues were identified for the Town of Waterford to focus on during the
planning period:
1. establish a Design Review Committee to review the design aspects of signifi-
cant developments proposed in Waterford,
2. continue efforts aimed at protecting important natural resources and coastal
areas,
3. strive to preserve open space with special efforts devoted to providing green-
belts, interconnecting open spaces, and establishing trails in order to enhance
this important amenity for present and future residents,
4. strive to develop new water sources in the near future and work with sur-
rounding communities to develop a regional water system,
5. undertake a comprehensive review and revision of land use regulations (zoning
and subdivision, for example) in order to make them user-friendly, help im-
plement the recommendations of the Plan, and address important issues.
10
GOALS AND POLICIES
The following goals for the 1998 Waterford Plan of Preservation, Conservation
and Development were adopted. Some policies intended to achieve these goals are
also presented. Additional detail is presented in the following chapters of the Plan.
Community Structure
Preserve the strong village identities and the rural character that currently exist
throughout the community.
•
Reinforce the character and diversity of individual neighborhoods
within the context of what is best for the town as a whole.
•
Use greenbelts to define the village areas and preserve community
character.
•
Adopt standards that address building and site design in order to en-
hance the overall character of Waterford.
Natural Resource Protection
Continue to preserve, protect, and enhance important natural and biological re-
sources.
•
Continue to protect and improve the town’s important fresh-water re-
sources (surface water and ground water).
•
Preserve key scenic vistas and areas within Waterford.
•
Continue efforts to enhance environmental quality.
Coastal Areas
Continue to preserve, protect, and enhance coastal areas that are one of the unique
and defining characteristics of Waterford.
•
Protect the town’s coastal water bodies, wetlands, fragile shoreline
environment, and other important coastal resources.
•
Address the special needs and issues of coastal areas.
•
Continue to restore coastal resource areas in Waterford.
Open Space
Provide for adequate open space to meet present and future needs.
•
Establish a coordinated open space / greenbelt system and a compre-
hensive trail system in Waterford.
•
Set aside funds in the annual budget to acquire open space.
•
Encourage private ownership of open space.
Goals and Policies
Goals are:
•
general statements that
describe a direction for
Waterford, and
•
on-going considerations
that stay fairly constant
over time.
Policies are statements of
specific actions that contrib-
ute to attaining the overall
goal.
11
Housing and Residential Areas
Encourage a variety of appropriate housing types and densities to meet different
housing needs and desires of Waterford’s present and future residents.
•
Provide for a diversity of housing types in Waterford.
•
Make some zoning changes to address the appropriate future residen-
tial development of Waterford.
•
Guide the design and location of multi-family developments.
Business & Economic Development
Promote economic development and balanced growth in order to foster local
employment opportunities, maintain a favorable tax base, reduce the overall fiscal
reliance on Millstone, and provide goods and services for local residents.
•
Encourage compatible economic development in and direct business
growth to the Business Triangle.
•
Make necessary infrastructure improvements and make some zoning
changes to encourage appropriate economic development.
•
Guide the design of non-residential developments.
Community Facilities and Services
Provide adequate community services and facilities and a range of recreational
opportunities to meet residents’ needs.
•
Address identified community facility and service needs.
•
Continue to monitor facility usage to anticipate future needs (such as
school enrollments and recreation programs).
•
Use near-term fiscal resources to provide for future community facil-
ity needs.
Transportation
Provide for the safe and efficient movement of persons and goods through and
within the town while balancing the needs of pedestrians, bicyclists, vehicles, and
transit.
•
Encourage a full range of transportation modes.
•
Plan transportation improvements while balancing traffic needs with
community character and environmental impacts.
•
Expand and improve the network of sidewalks, trails, and walkways
in Waterford.
Business Triangle
The term “Business Trian-
gle” is used in the Plan to
refer to the general area
bounded by Interstate 95,
Interstate 395, and Route 85.
For many years, this area
was
referred
to
as
the
Industrial Triangle.
12
Infrastructure
Provide adequate infrastructure for community needs.
•
Develop new water supply sources.
•
Continue to provide sewers where needed and appropriate.
•
Infrastructure should follow the land use plan.
Special Issues
Establish a design review process to preserve and protect the most important
elements of Waterford’s community character and develop design guidelines.
Preserve the historical, archeological, and cultural features that contribute to the
character and uniqueness of Waterford.
Continue to explore the possibility of inter-town and regional cooperation wher-
ever this approach seems feasible and/or desirable.
Maintain local regulations and enforcement procedures to implement the Plan of
Preservation, Conservation and Development.
Undertake detailed studies of important areas (the Civic Triangle area, Mago
Point, and major road corridors such as Routes 1, 32 and 85) in Waterford.
Implementation
Implement the recommendations of the Plan and other programs that encourage
the most appropriate development of Waterford.
•
Strive to implement recommendations of the Plan in accordance with
the priority suggested by the implementation schedules.
•
Use the Plan of Preservation, Conservation and Development as a ba-
sis for land use decisions by the Planning and Zoning Commission.
•
Review the zoning regulations, zoning map, and subdivision regula-
tions and make necessary revisions.
•
Include important projects in the Town's Capital Improvements Pro-
gram and fund them as part of the Capital Budget.
Civic Triangle
The term “Civic Triangle” is
used in the Plan to refer to
the general area bounded by
Route 1, Route 156, and
Avery Lane.
13
CONDITIONS & TRENDS 3
HISTORY OF WATERFORD
Subsistence Economy (1640 - 1850)
The first era in Waterford’s written history began in the early 1600s as Dutch and
English explorers and emigrants came to this area to settle and trade with local
Native American tribes. The natives reportedly traded wampum (pieces of shells)
for knives, hatchets, kettles, cloth, and other goods. The explorers then traded the
wampum for goods elsewhere (like furs from Iroquois up the Hudson River).
Eventually, trading disagreements and skirmishes elsewhere brought conflict. In
1637, Captain John Mason attacked the Pequot Indians at Groton and inflicted
much damage. With Indian concerns diminished, a land grant for the area was
given by Massachusetts (1644) and permanent settlement soon began.
At first, houses were built in a compact village (then known as Pequot and re-
named New London in 1658) on the west side of the Thames River. While the
village soon became a bustling seaport, farming and grazing took place on com-
mon lands outside the village.
About 1654, the first houses were built in West Farms (now Waterford) and plans
for a mill were under way. Expanding settlement patterns created the need for a
transportation network and, by 1670, roads had been laid out to the Niantic River
on the west and Norwich on the north.
Agriculture was the dominant economic activity and residents traded products in
New London for a variety of goods that were available at this expanding port.
People also developed other occupations (fisherman, barrelmaker, shoemaker,
tanner, carpenter, shipbuilder, salt processor) to meet local needs and maintain
their livelihood.
Local businesses were also established in West Farms. A granite quarry that was
established at Millstone Point shipped granite all over the East Coast and the stone
was used in many famous structures, including the Statue of Liberty base. Paper
mills were established in the Quaker Hill area.
“One must occasion-
ally pause to see just
how we fit into the
total view . . .”
Robert L. Bachman
Waterford Historian
14
Industrial / Resort Economy (1850 - 1940)
The next era in Waterford’s history
was ushered in by the Industrial
Revolution and the arrival of rail-
roads. While some Waterford resi-
dents left for economic opportunities
elsewhere, they were replaced by
people who wanted to work in local
homes and businesses. By 1900,
about one-third of the Town’s popu-
lation was foreign-born or first-
generation American.
At the same time, the improved
accessibility of this area made Water-
ford a popular shoreline and resort
area. Several impressive waterfront
estates were built in Waterford during
this period and summer hotels and
beach-cottage colonies were created.
Many of these changes were aided by
the gradual transformation from the
railroad and trolley transportation
system to the automobile system that
occurred during the 1920s as road
improvements
began
in
earnest
around that time.
Photograph provided by Robert Nye, Municipal Historian
Historic Picture of Pleasure Beach
Photograph provided by Robert Nye, Municipal Historian
An Early Quarry Worker in Waterford
15
Early Real Estate Development in Waterford
Photograph provided by Robert Nye, Municipal Historian
Defense Economy (1940 - 1990)
While the region had always been involved in shipbuilding, the development of the
diesel submarine and the onset of World War II resulted in the growth of the Electric
Boat Company and the submarine base in Groton. With the onset of the Cold War,
these operations geared up to meet national defense needs, and this resulted in new
employment and population growth in the region. Waterford grew quickly during
this period due to its location, attractiveness, and available land.
Service/Entertainment Economy
The most recent era in Waterford’s history began in the late 1980s with the end of
the Cold War. The defense spending that had supported many of the industries and
businesses in the area declined and the overall economy of the region suffered.
Then, during only a few years, the economy took a surprising turn. The Mashan-
tucket Pequot Tribal Nation opened the Foxwood’s Resort Casino on their reserva-
tion in Ledyard and it quickly became the largest casino in the Western Hemisphere.
Shortly thereafter, the Mohegan Tribal Nation opened the Mohegan Sun Casino on
their reservation in Montville as the third largest casino in the United States. Casi-
nos are now the largest employers in the region. These new activities complement
facilities (such as Mystic Seaport, Mystic Marinelife Aquarium, and the Nautilus
Museum) that have long provided an entertainment component to the region’s econ-
omy.
In many respects, part of the challenge of this Plan of Preservation, Conservation
and Development will be to set the stage for addressing:
•
new regional economic influences,
•
future needs of residents, and
•
the appropriate future conservation and development of Waterford.
Reasons for the Formation
of the Town of Waterford
In 1801, Waterford became
the 109th town in Connecti-
cut. The new town was
formed primarily for taxation
and goverment reasons.
The City of New London
(formed in 1784) was more
of
an
urban
area
with
different
interests
and
concerns than the outlying
rural parts of the Town of
New London. Over time,
West
Farms
residents
became resentful of the lack
of tax support for their
school needs while being
taxed for services in the City
that did not benefit them
(fire equipment, relief for
poor, and epidemic control).
Residents of the outlying
areas banded together and
submitted petitions to the
Legislature requesting that
they be allowed to establish
a separate town. Each
request was denied (1799
and
1800)
before
being
approved in 1801.
However, the boundaries of
Waterford were not finalized
until 1899 when the Legisla-
ture approved the annexation
of about two square miles of
Waterford into the City of
New London
16
PEOPLE OF WATERFORD
Waterford is unique in that it has had a very stable population for many years. In
1990, due to the steadiness of the defense economy in the region (and the tax
benefits from the Millstone power plant), Waterford had more “long time” house-
holders than the county or the state. In addition, Waterford had more older resi-
dents than the county or the state. In fact, the 1990 median age in Waterford was
five to seven years older than the county or state average. How long this trend of
stability will continue is unclear.
In spite of the stable population, many changes are still occurring in Waterford.
Current residents are maturing and developing different needs and interests. This
will affect land use as well as community services and facilities.
Eventually, maturing residents may leave Waterford and housing turnover will
bring new residents to the community. Such changes will likely affect the demand
for school facilities, recreational programs, and other services.
Population Growth in Waterford - 1810 to 2020
Population Projections
Recent population projections for Waterford indicate that:
•
Waterford’s population may decline slightly to the year 2000, and
•
then increase an additional 10 percent by the year 2020.
Variations from these projections can occur, especially the further into the future
they predict. However, evaluating these projections by age grouping can help
assess the implications of change on municipal services and housing types.
Waterford Population History and Projections
Actual
Projections
Ages
1960
1970
1980
1990
2000
2010
2020
Total
15,391
17,227
17,843
17,930
17,860
18,630
19,750
U.S. Census Bureau and Population Projections by Connecticut Census Data Center
Important Considerations
Year Householder Moved
into Unit (1990)
Since
1970
Before
1970
Waterford
66%
34%
County
79
21
State
77
23
1990 Median Age
Median
Age
Waterford
39.9
County
32.7
State
34.4
1990 Occupancy by
Age of Householder
Water-
ford
State
Under 35
18%
25%
35 to 54
37
39
Over 55
45
36
0
5000
10000
15000
20000
1810
1830
1850
1870
1890
1910
1930
1950
1970
1990
2010
People
Population Projections
While representing the best
information available at the
time the Plan was prepared,
these population projections
are based on past trends that
may not continue into the
future. For example, the
projections extrapolate 1980
to 1990 migration trends to
the year 2020.
17
Population Projections by Age Groups
The youth population (aged 0-19) peaked in 1970 (due to the baby boom) and is
expected to remain steady during the planning period if migration trends continue.
The number of adults (ages 20 to 54) increased to 1990 as the baby boom aged. If
migration trends continue, these age groups are expected to decline from the year
2000 to the year 2020 due to the “baby bust.”
The number of mature residents (ages 55 and over) is expected to continue to
increase in Waterford as the “baby boom” ages and people live longer and more
productive lives. In the year 2020, mature and elderly residents are expected to
represent almost one-half of Waterford’s population.
Summary By Age Group
Description
Age Range Projection
Needs
Infants
0 to 4
Decline to 2010 and then increase
Child care
School Age
5 to 19
Peak around the year 2000 and then
decline (baby boom echo)
School facilities
Young Adults
20 to 34
Decline significantly in the 1990s and
increase thereafter (baby bust)
Rental housing and
starter homes
Middle Age
35 to 54
Peak around the year 2000 and decline
thereafter (baby boom)
Family programs
and trade-up homes
Mature Residents
55 and over Grow significantly to the year 2020 to
almost half of all Waterford residents
Smaller homes
Elderly Residents
65 and over Grow significantly to the year 2020
Smaller homes and
elderly programs
Population by Age Group (1960-2020)
Ages
1960
1970
1980
1990
2000
2010
2020
0-4
1,867
1,124
759
895
802
703
797
5-19
4,071
5,411
4,348
2,948
3,102
2,985
2,792
Subtotal
5,938
6,535
5,107
3,843
3,904
3,688
3,589
20-34
2,941
2,726
3,661
3,744
2,279
2,459
2,732
35-54
4,202
4,624
4,487
4,881
5,511
5,103
4,317
Subtotal
7,143
7,350
8,148
8,625
7,790
7,562
7,049
55-64
1,116
1,759
2,208
2,143
2,104
2,691
3,285
65 +
1,194
1,583
2,380
3,319
4,061
4,689
5,828
Subtotal
2,310
3,342
4,588
5,462
6,165
7,380
9,113
Children (ages 0-19)
0
2000
4000
6000
1960
1980
2000
2020
Ages 0-4
Ages 5-19
Adults (ages 20-54)
0
2000
4000
6000
1960
1980
2000
2020
Ages 20-34
Ages 35-54
Mature Residents (ages 55+)
0
2000
4000
6000
1960
1980
2000
2020
Ages 55-64
Ages 65+
18
LAND USE IN WATERFORD
Waterford contains approximately 21,270 acres. About 46 percent of the commu-
nity (9,864 acres) is either developed or the land has been committed to a specific
use. Residential zones are the most prevalent zones in Waterford.
Conversely, about 54 percent of the land in town is vacant, uncommitted to a
specific use, or contains enough area that it may support additional development.
Residential zones are the least developed or committed.
1996 WATERFORD LAND USE
Existing Land Use
Acres
Percent of
Developed Land
Percent of
Total Land
Residential
Single-family
3,499
35.5%
16.4%
Multi-family
144
1.5
0.7
Mobile Home, Group Home
46
0.5
0.2
Subtotal
3,689
37.4%
17.3%
Business
Retail/Office
573
5.8%
2.7%
Industrial
188
1.9
0.9
Public Utility and Transmission
600
6.1
2.8
Mixed Use
104
1.1
0.5
Subtotal
1,465
14.9%
6.9%
Public and Institutional Uses
Public Facilities
455
4.6%
2.1%
Private Facilities
63
0.6
0.3
Subtotal
518
5.3%
2.4%
Public Land and Open Space
Public Land
1,643
16.7%
7.7%
Land Trust / Easement
136
1.4
0.6
Private Open Space / Cemetery
989
10.0
4.6
Subtotal
2,768
28.1%
12.9%
Transportation
1,424
14.4%
6.7%
Total Developed / Committed
9,864
100%
46.4%
Undeveloped/Uncommitted
Vacant / Remaining Potential
6,535
30.7%
PA 490 Land (see Chapter 7)
4,874
22.9
Subtotal
11,416
53.6%
Total Land Area
21,273
100%
Land Use Survey
The land use survey, con-
ducted in the fall of 1996,
was based on assessment
data and field verification of
certain uses. The work was
done by the planning con-
sultant with the assistance of
Town staff.
1996 Waterford Zoning
Residence Zones
Acres
VR-7.5
150
VR-10
113
VR-15
134
R-20
3,669
R-40
4,839
RU-120
6,325
R-MF
103
C-MF
74
CT-MF
20
I-MF
193
OS
613
Subtotal
16,234
Business Zones
Acres
NB
41
NBPO
4
CT
181
CG
485
CR
252
WD
125
IP-3
229
IP-1
1,068
IC
151
IG
1,079
Subtotal
3,615
Roads
1,424
Total Land Area
21,272
19
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N
LAND USE CATEGORIES
Vacant/Uncommitted
Single-Family
Commercial/Office
Manufacturing/Storage
Public Utility
Multi-Family/Mobile Home/
Group Home
Public/Private Facilities
Public
Land Trust/Private/Cemetary
Electric Generation Facility
Power Transmission
RESIDENTIAL
BUSINESS/UTILITY
PUBLIC FACILITIES
PRIVATE INSTITUTIONS
OPEN SPACE
n
Residentially zoned vacant/uncommitted
land with additional development potential
1
0
1 Miles
M O N T V I L L E
E A S T L Y M E
N E W
L O N D O N
L O N G I S L A N D
S O U N D
20
DEVELOPMENT POTENTIAL
The land use survey estimated that about 11,410 acres of land in Waterford are
vacant or may support additional development. These include about 4,874 acres
that are currently receiving reduced assessments under Public Act 490 (assessed
as farm, forest, or open space).
Residential Development Potential
There is the potential for about 4,000 additional housing units in Waterford. This
estimate is based on the amount of potentially developable land in the residential
zones and considers zoning and development constraints (open space requirements,
environmental resources, parcel configuration, efficiency losses). No allowance
has been made in this estimate for rezonings to multi-family use or possible con-
version of public, semi-public, or institutional lands to development.
With about 7,600 housing units already in Waterford, there may be a total of
about 12,000 housing units when Waterford is fully developed under existing
zoning. At current household sizes, Waterford may eventually become a commu-
nity of about 30,000 people.
Business Development Potential
The development potential of vacant and underdeveloped business parcels is
estimated in a similar fashion. Based on reasonable yield factors, land constraints,
and existing zoning, it is estimated that business zones in Waterford could result
in:
•
an additional 1,300,000 square feet of commercial floor space, and
•
an additional 12,200,000 square feet of industrial floor space.
FUTURE LAND USE
The map on the facing page shows the current zoning map of Waterford. It has
been color-coded similarly to the Land Use Map on the preceding page. If Water-
ford were to be fully developed in accordance with current zoning, this map would
also be a future land use map of Waterford.
However, this Plan of Preservation, Conservation and Development recommends
that future land use in Waterford be in accordance with the map presented in
Chapter 14 - Future Land Use Plan.
Development Potential
Future
development
in
Waterford may occur:
•
on properties that are
currently vacant,
•
on properties that have
development
potential
remaining, and/or
•
through
redevelopment
of existing parcels.
A parcel with remaining
development potential could,
for example, be a house on a
20-acre parcel in the R-40
zone. While this parcel has a
residential use on one acre,
additional homes could be
built on the other 19 acres in
the future.
Potential By Zone
Residence
Zones
Acres
Yield
(Units)
VR-7.5
45
95
VR-10
35
55
VR-15
45
50
R-20
1,195
900
R-40
3,390
1,225
RU-120
4,785
600
OS
45
0
R-MF
35
155
C-MF
5
25
CT-MF
0
0
I-MF
175
770
Total
9,755
3,875
acres
units
Business
Zones
Acres
Yield
(000 SF)
NB
5
20
NBPO
0
0
CT
5
10
CG
210
760
CR
50
200
WD
65
270
IP-3
20
110
IP-1
660
5,100
IC
65
3,490
IG
585
3,490
Total
1,665
13,450
acres
sq. ft.
21
Zoning Districts
C-G
Business/Residential
C-R
C-T
Industrial (IC, IG)
Industrial Park
Neighborhood Business
OS
R-20
R-40
R-MF
RU-120
Village Residential
WD
RESIDENTIAL
COMMERCIAL
INDUSTRIAL
OTHER DISTRICTS
Current Zoning
N
L O N G I S L A N D
S O U N D
N E W
L O N D O N
E A S T L Y M E
M O N T V I L L E
1
0
1 Miles
Great Neck Rd.
Gardiners Wood Rd.
Rope Ferry Rd.
Lamphere Rd.
Great Neck Rd.
Braman Rd.
Amtrak N.E. Corridor
Miner Lane
Clark Lane
Spithead Rd.
Niantic River Rd.
Boston Post Rd.
Boston Post Rd.
Fog Plain Rd.
Cross Rd.
Cross Rd. Ext.
I-95
Kenyon Rd.
Bloomingdale Rd.
Vauxhall St. Ext.
Old Norwich R d.
Mohegan Ave. Pkwy.
Old Colchester Road
Douglas Lane
I-395
I-395
Vauxhall St. Ext.
Hartford Turnpike
Hartford Turnpike
22
SURVEY RESULTS
Issues that are important to Waterford residents were identified through a random
sample telephone survey conducted in January 1997. Care was taken to replicate
the overall population of Waterford in terms of age, gender, and neighborhood. In
the survey results, the maximum margin of error for any response is plus or minus
seven percent with a confidence of 95 percent. In other words, if Waterford
residents were sampled 100 times, the results would be within seven percent of
those found in this survey for at least 95 sets of surveys.
Overall, residents were very satisfied with the affairs of the Town. Most respon-
dents (93 percent) indicated that Waterford was a good or excellent place to live
and most respondents indicated they are very happy in Waterford.
The quality of Town services was consistently rated good or excellent by most
people. In terms of the quantity of Town services, respondents expressed the
greatest desire for pedestrian/bicycle facilities and programs for teenagers and
families.
More specific responses regarding functional topics are presented in the appropri-
ate chapters of the Plan.
Write-In Responses
When asked what was the one thing that they would like to see changed or modi-
fied in Waterford, residents identified the following issues as being the three most
important:
•
traffic, roads, transportation, sidewalks,
•
parks, recreation, open space, and
•
type or location of business development.
When asked what was the one thing that they would not like to see changed or
modified in Waterford, residents identified the following three issues:
•
maintain the character,
•
parks, recreation, open space, and
•
fiscal, tax issues.
When asked what was the one thing that really captured the character of Water-
ford, the following four issues were identified by residents:
•
rural character and atmosphere,
•
coastline and seashore,
•
quality of life, safe, attractive, quiet, good place to live, and
•
small town personality, community feeling.
Survey Responses
Percent of Respondents
Who “Liked” That Aspect
About Waterford
Like
Quality of Life
95%
Location
93
Seashore/Waterfront
93
Natural Beauty
91
Shopping
90
Taxes
84
Cultural Facilities
70
Town Government
64
Traffic
39
Note: Other responses were Dislike or No
Opinion.
Service Quality
Good or
Excellent
Fire Services
99%
Ambulance Services
97
Senior Services
97
Library
96
Police Services
92
Recreation Progs.
90
Schools
85
Youth/Family Serv.
84
Parks
83
Road Conditions
75
Child Care Services
72
Note: Other responses were Poor or Fair.
Service Quantity
Too Little
Bicycle Paths
72%
Teenager Programs
71
Sidewalks
53
Walking Trails
50
Family Programs
30
Shoreline Access
25
Parks
25
Childrens Programs
21
Senior Programs
8
Police Services
6
Ambulance Services
2
Fire Services
1
Note: Other responses were Just Right or
Too Much.
23
REGIONAL INFLUENCES
In response to regional influences, Waterford has developed as a residential com-
munity with a strong retail and business component.
People have chosen to live in Waterford over the years due to its convenient
location relative to employment, well-regarded schools, variety of housing types,
attractive environment, community attributes, and extremely low tax rate. For
these reasons, residential growth in Waterford is expected to continue in the
future.
Waterford has also developed as a regional business center. Since the early
1980s, Waterford has become a major regional retail center due to Crystal Mall,
other major retail uses, and supporting transportation patterns. While office and
industrial growth has historically located elsewhere in the region, Waterford has a
supply of properly zoned land with good access and adequate utilities for office
and industrial uses. Business development is expected to continue in the future as
the economy and the overall business environment dictate.
Thus, the development that occurs in Waterford in the future will be influenced by
what happens in the region. Economic growth and diversification will likely lead
to future residential and business growth in the community.
Issues of Regional Concern
Waterford is a member of the Southeastern Connecticut Council of Governments
(SECOG). SECOG has identified issues related to development trends and land
use patterns in the region that affect Waterford and other communities. While
Waterford cannot solve these issues by itself, it can participate in finding solutions
to the following regional concerns:
•
change from a manufacturing to a service/entertainment economy,
•
impacts from suburban development (sprawl) that threaten the region’s
natural resources,
•
traffic congestion and roadway improvements that disrupt the quiet sub-
urban quality of life that many enjoy or imagine,
•
the capacity of utilities (water, sewer, solid waste) to support the region
and allow for future growth, and
•
fragmented governments and interests that restrict the region’s ability to
deal effectively with regional problems,
24
FISCAL ISSUES
Due to the Millstone Power Plant, Waterford has the seventh largest tax base of
any community in Connecticut. On a per capita basis, Waterford has the largest
tax base in the state, about four times higher than the state average.
This tax base has allowed for lower tax bills, extensive infrastructure improve-
ments, and enhanced services in Waterford when compared to other communities.
Waterford is ranked second in Connecticut in terms of per capita expenditures,
and it is estimated that residents only pay about $0.20 in taxes for every $1.00
they receive in services.
Since the power generation equipment is considered personal property, Millstone
is depreciating over time (a reduction of about $80 million of assessed value each
year). For comparison, Crystal Ma