Planning & Zoning Commission (linked)

DEPARTMENT OF PLANNING AND DEVELOPMENT 
 
 
MEMORANDUM 
 
TO:        Waterford Planning and Zoning Commission 
 
FROM:  Mark Wujtewicz, Planner 
 
DATE:   October 24, 2023 
 
TITLE:   Waterford Community Park 
 
CGS § 8-24 revised #PL-21-15 
 
PL-23-13 
 
This request is to seek the Planning and Zoning Commission’s endorsement of a modification to the 
October 2021 Waterford Community Park Master Plan and finding of consistency with the Waterford 
Plan of Preservation, Conservation, and Development (POCD). The Master Plan was initially endorsed by 
the Commission on December 14, 2021 as a CGS § 8-24 application through application #PL-21-15. As 
required by statute, the Commission found that the improvements proposed in the Master Plan were 
consistent with the Town’s Plan of Conservation and Development (POCD). Presently, there are 
modifications proposed to the Master Plan for the Commissions consideration. These modifications were 
reviewed and approved by the Waterford Town Center Development Ad-Hoc Committee on October 3 
and Oct 17, 2023 and are reflected in the revised CGS § 8-24 application currently before the 
Commission as application #PL-23-13. 
 
• 
The addition of two regulation size pickle ball courts along with an adjacent pavilion and grass 
area. These proposed elements of the plan are located within the area previously identified as 
reinforced turf access for food trucks and vendors for Parks and Recreation activities.   
• 
The establishment of a gravel access driveway from Rope Ferry Road west of the former Green 
Survival Garden Center to serve the Recreation and Parks Maintenance area.  
• 
Modification to the universally accessible pedestrian entry and streetscape, located on Rope Ferry 
Road that leads into the park 
 
The Commission previously approved the CGS § 8-24 application #PL-21-15 by finding the plan 
consistent with the following goals and implementation strategies of Waterford’s Plan of Conservation 
and Development:  
 
• 
Preserve Open Space 
o Establish a meaningful system of open spaces in order to protect important resources and 
enhance our overall quality of life (page 24).  
 
Establish a coordinated Open Space/Greenbelt/Trail System (p. 26). 
 
 
FIFTEEN ROPE FERRY ROAD 
WATERFORD, CT 06385-2886 

 
• 
Enhance Quality of Life 
o Promote events and activities which will enhance the overall quality of life in Waterford. 
(p. 38) 
• 
Guide Overall Structure  
o Strive to maintain a community comprised of identifiable villages, neighborhoods, and 
locations with a strong “sense of place.”  
 
Defining elements of Waterford’s community structure includes “the Civic 
Triangle area which acts as a community focal point.”  (p. 48) 
 
This request is to find that the modifications to the Plan as proposed are still consistent with the overall 
goals and strategies as identified in the Commission’s previous decision in addition to: 
 
• 
Support Community Facilities 
o Provide adequate services and facilities to meet community needs. (p.66) 
 
 
The Planning and Zoning Commission will continue to have future opportunities to review all designs 
before implementation when project elements are before the Commission for formal site plan review. A 
Site Plan application for construction of certain elements within the Community Park Civic Triangle 
Master Plan will be presented to the Commission later in the agenda for this meeting. Subsequent design 
and permitting work will be undertaken as funding allows.   
 
Proposed Motion 
To find that the modifications proposed to the Waterford Community Park Master Plan dated October, 
2023 is consistent with the Waterford Plan of Preservation, Conservation, and Development and to 
recommend implementation of the plan pursuant to CGS § 8-24.    
 
 
 
Attachments 
1. Waterford Community Park Master Plan, October 2021 
2. Waterford Community Park Master Plan revised, October 2023 
3. Minutes of the October 3, 2023 Town Center Ad Hoc Committee 
4. Minutes of the October 17, 2023 Town Center Ad Hoc Committee 
 

January 1, 2012 
 
24 
 
 
PRESERVE 
 
 
Open Space  
 
GOAL 
 
 
 
Establish a meaningful system of open spaces in order to protect im-
portant resources and enhance our overall quality of life. 
 
 
 
This Plan defines “dedicated open space” as land that is owned by entities or otherwise restricted in some 
way where such land is likely to be preserved or dedicated as open space, hopefully in perpetuity (town 
park, state forest, land trust, etc.).  The terms “managed open space” is used to refer to lands owned by 
entities or used in a way where it serves some open space function but it may not be preserved in perpe-
tuity, may not allow for public access or use, or has another purpose (golf courses, water company lands, 
cemeteries, hunting clubs, some utility lands, etc.). 
 
Preservation of open space can serve five important purposes: 
 
protection of community character, 
 
preservation of lands for parks and recreational uses, 
 
conservation of important natural resources,  
 
fiscal and economic benefits, and 
 
shaping of development patterns. 
 
Approximately 3,230 acres of land (15 % of the land area) in Waterford can be categorized as open space 
since it has some measure of protection from future development through ownership, easement, or com-
patible use.  Some of these areas (Harkness, Arboretum, etc.) are the most treasured places in Waterford 
and make a significant contribution to the overall character of the community.  Other areas help protect 
natural resources or scenic resources or provide recreation opportunities. 
 
However, not all the land that is perceived as open space in Waterford is in fact preserved as open space.  
Most people tend to perceive “open space” as including all vacant land.  In other words, they think “open 
space” is any land that is not built upon.  However, much of that land is in private ownership and subject 
to future development.  One of the reasons that neighbors oppose new developments is over the loss of 
what they perceive to be open space.   
 
There is little doubt that open space adds considerably to the overall ambience and quality of life of the 
community.  Waterford should seek to continue to acquire and manage open space lands for the benefit 
of the Town and its population.  Otherwise, open lands and familiar landscapes will continue to change 
as the development of the Town continues and opportunities to acquire these lands will be lost. 
 
In the telephone survey, 58% of participants want the Town to acquire more land for parks and open 
space.  However, residents were less willing to support increased taxes to fund open space preservation.  
Waterford residents are more strongly in favor of efforts to establish a trail system for pedestrians and 
bicycles.  Overall, 79 percent of participants want the Town to devote efforts to establish a trail system.   
 

January 1, 2012 
 
26 
 
B. Establish A Coordinated Open Space / Greenbelt / Trail System  
 
Since the 1977 Plan of Development, Waterford has had a stated goal of establishing “a comprehensive 
greenbelt system which … follows the town’s major streams and brooks.”  This strategy should continue 
to be the basic foundation for Waterford’s open space strategy. 
 
In addition, we should strive to use such greenbelt areas and other opportunities (including electric 
rights-of-way or sewer easements if possible) to establish an overall trail system throughout the commu-
nity.  Such a trail system will provide connections between different parts of Waterford as the trail system 
evolves and provide passive recreation opportunities for residents. 
 
As part of preparing this Plan, the preliminary open space plan on the facing page (an overall vision) was 
prepared.  This is not intended to be a definitive statement of the desired open space and greenway ar-
rangement for Waterford.  Rather, it is intended to be a starting point for further discussion and refine-
ment of an open space and greenway system.   
 
In the future, special attention should be devoted to increasing open space connectivity.  Experience in 
other communities has shown that open spaces increase exponentially in value for nature, wildlife or 
people when they are configured to create continuous corridors. 
 
Based on this vision, the policy preferences in terms of the preservation of open space include the follow-
ing: 
 
Seek to establish an open space “system” as a major organizing element in Waterford by helping 
to define the villages, separate developed areas, and provide for transitions between different ar-
eas,  
 
Use the open space / greenbelt / trail system to help interconnect different parts of town and link 
open spaces and neighborhoods by trails (pedestrian path / bikeway / hiking trail system) or 
“greenbelts” that are accessible to residents throughout Waterford, 
 
Acquire or preserve parcels that contribute the most to the town’s open space and greenbelt sys-
tem.   
 
Protect important natural, scenic, or other resources and improve wildlife habitat and wildlife 
“corridors”, especially stream corridors or riparian areas along watercourses.  
 
Increase opportunities for both active and passive uses both within the town and within the re-
gion. 
 
Contribute to the overall character of Waterford and to the enjoyment and quality of life for resi-
dents. 
 
In order to guide future efforts, the Town should use the map on the facing page as starting point for cre-
ating an overall open space plan that: 
 
specifies the location of all existing publicly accessible open space, and 
 
differentiates between open space that is fully useable (such as public parks) and open space that 
is less usable (such as cemeteries or land trusts). 
 

January 1, 2012 
 
38 
 
 
ENHANCE 
 
 
Quality of Life  
 
GOAL 
 
 
 
Promote events and activities which enhance the overall quality of life 
in Waterford. 
 
 
 
Residents of Waterford are very satisfied with the quality of life in the community.  Impressively, more 
than 97 percent of respondents in the telephone survey reported that the quality of life in Waterford is 
good or very good.   
 
Although everyone has their own definition of quality of life, the following table identifies some elements 
of a community that may contribute to people’s perception of their overall quality of life: 
 
 
 
 
Category 
Resource 
Description 
 
 
Enhancing 
Basic Needs 
Physical safety, economic security, sense of community  
 
 
 
Local Events 
Unique events (parades, fairs, and concerts) where residents join in a 
common activity 
 
 
 
Volunteerism / 
Philanthropy 
Voluntary donations of time and money help make Waterford a spe-
cial place 
 
 
 
Shared Visions / 
Goals 
Establishing and attaining shared visions and goals 
 
 
 
Open  
Communication 
Communication about community issues and priorities is an im-
portant part of maintaining community spirit 
 
 
 
Community  
Ambience 
Overall appearance (including preserved natural resources and open 
spaces) enhances people’s sense of quality of life. 
 
 
 
Positive 
Recognition 
Positive recognition by others of local activities and events helps build 
community spirit and pride 
 
 
 
 
Detracting 
Negative  
Communication 
A lack of communication or negative communication can undermine 
community spirit and pride 
 
 
 
Negative  
Recognition 
Negative recognition of a community by others can undermine com-
munity spirit and pride 
 
 
 
Waterford should continue to encourage activities that contribute to community spirit and pride.  These 
activities will also contribute to the overall quality of life of Waterford residents.  We must do more to 
promote events and activities which enhance the overall quality of life in the community. 
 

January 1, 2012 
 
48 
 
 
GUIDE 
 
 
Overall Structure  
 
GOAL 
 
 
 
Strive to maintain a community comprised of identifiable villages, 
neighborhoods, and locations with a strong “sense of place.”   
 
 
 
The overall physical organization of Waterford (the structure of the community) is an important compo-
nent of the Plan.  Studies have found that the overall structure of a community and the amount of defini-
tion of areas within it are both strongly correlated with community character and community image.  
People identify strongly with communities that have a discernable structure and often identify these 
communities as having “character” and a “sense of place”.   
 
The following features affect the perception of community structure and community character: 
 
 
Features Which Tend To Enhance Character 
Focal Points 
Identifiable focal points or places with distinctive characteristics 
Landmarks 
Distinctive places or destinations 
Clusters  
Neighborhoods or areas identifiable by use, location, character, or style 
Greenspaces 
Open spaces, greenways, trails, streambelts or other natural elements  
Gateways 
Places providing a special sense of entry or arrival to an area 
 
Features Which Can Enhance Or Erode Character 
Roads  
Roads to and through the community can enhance or detract  
 
Features Which Can Erode Character 
Strip Development 
Areas with linear development patterns, especially commercial 
Sprawl Development 
Areas with repetitive development patterns, especially residential 
 
At the present time, the defining elements of Waterford’s community structure may be: 
 
the Civic Triangle area which acts as a community focal point, 
 
the areas of concentrated development in Quaker Hill, Mago Point, Pleasure Beach, Ridge-
wood Park, Jordan Village, Oswegatchie, and Cohanzie,  
 
greenspaces (open space or low-intensity areas), and 
 
major business areas such as Crystal Mall, Business Triangle, Millstone Point, and Route 1 at 
Clark Lane. 
 

January 1, 2012 
 
 
66
 
SUPPORT 
 
 
Community Facilities 
 
GOAL 
 
 
 
Provide adequate services and facilities to meet community needs.   
 
 
 
A Plan of Preservation, Conservation and Development reviews the physical aspects of community ser-
vices (such as education, public works, public safety, social, and recreation) to ensure that they are ap-
propriately located and sized to meet community needs.  These services and facilities contribute to Water-
ford’s character and quality of life.  
 
Since the 1998 Plan, Waterford has undertaken a school consolidation and modernization program, built 
a community center, and upgraded some buildings and systems to meet community needs. 
 
In the survey, residents indicated that they were very satisfied with quality and quantity of the following 
Town services: 
 
Service 
Good And  
Very Good  
Not Sure / 
Don’t Know 
Poor And  
Very Poor  
Fire services 
 93% 
5% 
2% 
Schools 
82% 
12% 
6% 
Park/recreation facilities such as fields 
80% 
8% 
12% 
Park/recreation activities such as classes or programs 
78% 
11% 
11% 
 
Town Hall 
 
Community Center