Planning and Zoning Special Meeting (linked)

4 
HOUSING
Source: Compass Real Estate

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Housing   41
Goal
Actively encourage a diversity of housing options to meet the needs 
of current and future residents while maintaining and enriching 
Waterford’s existing neighborhoods and promoting affordability.
Baseline 
Conditions
Waterford’s housing supply was built over 
multiple decades and consists of a variety 
neighborhoods spread across the Town’s unique 
villages such as Quaker Hill, Oswegatchie, 
and the Town Center. The Town’s land use 
is dominated by residential development, 
with residential properties occupying almost 
half of the Town’s land area. Waterford has 
approximately 8,500 housing units, over 
three-quarters (86%) of which are single-family 
units.
Waterford is mostly associated with older 
single-family neighborhoods, although the 
majority of recent residential development has 
been multi-family complexes or buildings. These 
developments have occurred primarily along 
major transportation routes such as Route 85 
and Route 1. 
Home ownership is valued by the Waterford 
community and many of Waterford’s residents 
have called the Town home for many 
generations. Ownership protects residents 
from rising rental costs, builds equity that 
provides financial security, and provides a 
stable environment for families with children. 
Ownership also provides neighborhood stability 
by minimizing resident turn-over, providing 
incentive for reinvestment, and providing stable 
school-aged populations. Home ownership in 
Waterford has long been desirable due to the 
Town’s coastal location and environmental 
assets, access to jobs and services, and the 
overall high quality of life. To maintain this 
desirability, public and private reinvestment 
in neighborhoods is vital. Maintaining an 
appropriate balance of owner and renter 
occupied homes contributes to Waterford’s 
stability and helps to provide appealing housing 
options for both long-time and new residents.
Figure 4.1. 
Waterford’s Villages 
Source: Town of Waterford

42   Waterford 2023 Plan of Preservation, Conservation and Development
Housing Type
While the majority of Waterford’s land area is occupied by single-family residences, there are clusters of 
multi-family housing units in Town. About 14% of the Town’s housing stock is non-single-family detached 
housing. This includes townhouses, two- to four-family homes, apartment buildings, assisted living 
facilities, and nursing homes.
Figure 4.2. 
Housing Type
Source: American Community Survey – 2021
Mobile home
3%
1-unit, detached
81%
1-unit, attached
6%
2 units
2%
3 or 4 units
1%
5 to 9 units
4%
10 to 19 units
1%
20 or more units
2%
85.70%
64.47%
58.90%
0%
20%
40%
60%
80%
100%
Waterford
New London County
CT
Figure 4.3. 
Single Family Detached Housing (2021)
Source: American Community Survey – 2021

Housing   43
Figure 4.4. 
Commercial Districts
East Lyme
New London
Montville
Ledyard
Groton
Waterford
Niantic River
Thames River
Long Island Sound
95
395
95
1
395
Commercial Districts
Locations Zoned for Commercial Development
Residential allowed in Commercial Zones

44   Waterford 2023 Plan of Preservation, Conservation and Development
Zoning
Waterford’s zoning is dominated by single-family residential districts that cover most of the Town’s 
geography with the exception of commercial areas such as Waterford Commons, the Crystal Mall 
Plaza, and industrial areas along the I-95 corridor and Cross Road. Multi-family residential districts are 
concentrated in the center of Town, primarily between Route 85 and Route 1, both of which are serviced 
by public water and sewer and public transit.
While Waterford has a number of multi-family residential districts and properties, the Town has a 
higher share of single-family homes than New London County and the State. Recent and proposed 
high-density multifamily housing projects will shift the Town’s balance of housing but its share of 
single-family housing is unlikely to change much relative to the Region.
AHEPA Senior Apartments located on Clark Lane, Source: Waterford 2022-27 Housing Plan

Housing   45
Figure 4.5. 
Residential Supportive Zoning

46   Waterford 2023 Plan of Preservation, Conservation and Development

Since 2010
3%
2000 to 2009
8%
1990 to 1999
11%
1980 to 1989
13%
1970 to 1979
10%
1960 to 1969
12%
1950 to 1959
17%
1940 to 1949
8%
1939 or earlier
18%
Waterford
New London County
1970 and after
Connecticut
28%
28%
43%
28%
25%
28%
47%
47%
Before 1950
From 1950 to 1970
26%
Housing   47
Housing Stock
Waterford has 8,732 housing 
units (according to the 
2021 American Community 
Survey). The Town’s housing 
stock was largely constructed 
prior to 1980 with 78% of 
units built before that year. 
Older homes are require 
more maintenance than 
new homes, are typically 
less energy efficient, and 
may carry environmental 
risks such as lead paint, all 
of which may increase the 
cost of occupying these 
homes. Housing construction 
in Waterford was strong 
between 1950 and 1990 
with more than half (56%) 
of Waterford’s current 
supply of housing being 
added during that period. 
Housing construction has 
since slowed with only 3% of 
Waterford’s housing stock 
constructed since 2010.
Housing permit activity 
over the period from 2012 to 
2022 reveals a significant 
spike in permits in 2019 (100 
permits). Since that spike, 63 
permits have been issued, 
with around 20 issued per 
year. The issuance of a 
building permit does not 
affirm that the unit was 
constructed within the same 
year or at all. Hence, housing 
permits issued over the 
past decade exceed units 
added to the Town’s supply 
(as documented by census 
data). 
Figure 4.6. 
 Housing by Year Built (2021)
Figure 4.7. 
Age of Units
Source: American Community Survey - 2021
Source: Partnership for Strong Communities 2022 Housing Data 
Profile Stratford
Housing Permits (2022)
Source: Connecticut Department of Economic and Community 
Development
12
16
14
8
17
23
26
100
20
23
20
0
50
100
2012
2013
2014
2015
2016
2017
2018
2019 2020 2021 2022

Owner Occupied
80%
Renter Occupied
20%
Moved in 2015
or later
32%
Moved in 2010
to 2014
14%
Moved in 2000 
to 2009
21%
Moved in 1990
to 1999
16%
Moved in 1989
and earlier
17%
48   Waterford 2023 Plan of Preservation, Conservation and Development
Home Ownership
Owner-occupied 
homes comprise 80% of 
Waterford’s housing stock 
with 20% of homes being 
renter-occupied. Data is not 
available regarding the share 
of single-family homes that 
are owned versus rented, 
but it is likely that most of 
Waterford’s single-family 
homes are owner-occupied. 
Waterford’s home ownership 
rate is several percentage 
points higher than home 
ownership rates in both New 
London County and the 
State. This is directly related 
to the Town’s higher share 
of single-family detached 
housing which is associated 
with higher ownership rates 
than multi-family housing.
Housing Tenure
Waterford’s housing tenure 
is comparable to both New 
London County and the State. 
One-third (33%) of residents 
have lived in their homes 
since 1999 or earlier, about a 
fifth (21%) of residents moved 
into their homes between 
2000 and 2009. Waterford 
saw a significant turnover of 
housing occupancy between 
2015 and 2018, when 25% of 
households moved into their 
current housing. These figures 
suggests a healthy turn-over 
in housing which affords 
home ownership and rental 
opportunities for existing 
residents seeking different 
housing in Town and for 
prospective residents seeking 
housing in Waterford.
Source: American Community Survey - 2021
Figure 4.9. 
Owned vs Rental Housing (2021)
Figure 4.10. Home Ownership Rate (2021)
Source: American Community Survey - 2021
80.0%
67.0%
66.1%
0%
20%
40%
60%
80%
100%
Waterford
New London County
CT
Source: American Community Survey - 2021
Figure 4.11. 
Tenure in Housing (2021)

$0
$100,000
$200,000
$300,000
$400,000
Waterford
New London County
 Connecticut
Median Home Sales Price Jan 2023 - Jan 31, 2023
Median Owner- Occupied Home Values - ACS 2021
Housing   49
Housing Cost
On average, housing in 
Waterford costs more than 
housing in New London 
County and across the State. 
The Town’s median gross 
rent of $1,365 is about 13% 
higher than the County and 
about 8%  higher than the 
State. Since 2010, median 
gross rents in Waterford have 
increased at a higher rate 
than both the County and 
State.
Home sales prices have 
seen a sizable increase since 
the beginning of the COVID 
pandemic, with Waterford 
seeing a median home sales 
price value of $340,488 as 
of April 2023. This is below 
Connecticut’s median home 
sales price of $350,658, 
but above New London 
County’s median sale price 
of $339,433 during the same 
time period. Waterford saw 
a 5.4% increase in home 
sale prices in 2022, with the 
average listing being on the 
market for eight days before 
going to pending status. This 
is a shorter on-market period 
than the average in both New 
London County and the State. 
Median owner-occupied 
home value in Waterford 
is lower than the median 
sales price.  According to the 
American Community Survey, 
the median home value in 
Waterford was $263,000 in 
2021.  This value is higher 
than median across the 
County but lower than the 
State.  The age of Waterford’s 
housing stock plays heavily 
$928 
$974 
$982 
$1,365 
$1,192 
$1,260 
 $600
 $700
 $800
 $900
 $1,000
 $1,100
 $1,200
 $1,300
 $1,400
 $1,500
Waterford
New London County
CT
2010
2021
Source: American Community Survey - 2021
Figure 4.12. 
Median Gross Rent 2010 vs 2021
 $600
 $700
 $800
 $900
 $1,000
 $1,100
 $1,200
 $1,300
 $1,400
 $1,500
$1,365 
Waterford
$1,192 
New London County
$1,260 
CT
Source: American Community Survey - 2021
Figure 4.13. 
Median Gross Rent (2021)
Source: American Community Survey – 2021, Zillow Home Values 
2022
Figure 4.14. Median Home Sales Price and Value

50   Waterford 2023 Plan of Preservation, Conservation and Development
In 2022, Waterford was selected by CT Magazine as a Top 15 Real Estate 
“Hot Spot” in the state and recognized nationally as a Realtor.com Top 
50 Hottest Housing Market in the U.S. and third hottest housing market in 
Connecticut!
`
Less than $500
6%
6%
$500 to $999
11%
$1,000 to $1,499
47%
$1,500 to $1,999
29%
$2,000 to $2,499
7%
$2,500 to $2,999
0%
$3,000 or more
0%
Source: American Community Survey - 2021
Figure 4.16. Gross Monthly Rent (2021)
into the median value with 
older homes typically being 
smaller and often valued less 
than newer housing stock.
Waterford’s housing stock 
varies considerably in cost 
as measured by both rental 
cost and housing value. 
Over half of the Town’s rental 
housing (65%) costs less 
than $1,500 per month, with 
18% of rental housing costing 
less than $1,000 per month. 
Approximately 29% of rental 
housing in Waterford falls 
between $1,500 to $1,999 per 
month. Only 7% of the Town’s 
housing stock costs $2,000 
per month or more.
The largest share (39%) of 
Waterford’s owner-occupied 
housing is valued between 
$200,000 and $299,999 
and 25% of the Town’s 
owner-occupied housing is 
valued at less than $200,000.  
This distribution in values 
suggests that the Town’s 
housing stock is affordable 
to a wide spectrum of 
households with varying 
incomes, although this does 
not imply that sufficient 
housing is available for 
purchase to meet the needs 
of lower-income buyers.
Less than $50,000
3%
$50,000 to $99,999
2%
$100,000 to $149,999
6%
$150,000 to $199,999
14%
$200,000 to $299,999
39%
$300,000 to $499,999
31%
$500,000 to $999,999
4%
$1,000,000 or more
1%
Source: American Community Survey - 2021
Figure 4.15. Owner-Occupied Housing Value

Housing   51
$96,000
$78,828
$83,771
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
Waterford
New London
County
CT
Source: American Community Survey - 2021
Figure 4.17. 
Median Household Income (2021)
39.7%
46.4%
51.2%
20.3%
26.8%
30.4%
23.5%
21.1%
20.6%
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
Waterford
New London County
CT
Renters
Owners (Mortgage)
Owners (No Mortgage)
Source: American Community Survey - 2021
Figure 4.18. Housing Cost Burden Households
Housing 
Affordability
The median household 
income in Waterford in is 
$96,000, which is greater 
than both that of the 
County and State. Since 
2010, median household 
income in Waterford has 
risen by nearly $26,000. This 
household income increase 
is higher than the increase 
experienced in the County 
and across the State. 
Households that are housing 
cost-burdened spend more 
than 30% of their income 
on housing. In Waterford, 
approximately 20% of owner 
households are considered 
to be cost burden. This is 
below the State’s rate (30%) 
and the County’s (27%). Over 
39% of rental households in 
Waterford spend 30% or more 
of their income on housing 
compared to 46% in New 
London County and 51% in the 
State. The share of housing 
cost burdened homeowners 
without a mortgage in 
Waterford is slightly higher 
than both the County and 
the State. It is assumed that 
these are older residents 
who are retired and on fixed 
incomes. 
Waterford’s share of 
affordable housing, as 
classified under C.G.S. Section 
8-30g, is 5.62% of its housing 
stock as of 2021. Affordable 
housing as defined by 8-30g 
is comprised of government 
assisted housing units, tenant 
rental assistance households, 
CHFA/USDA mortgages, and 
3.8%
4.0%
4.5%
4.4%
4.7%
4.3%
4.4%
4.5%
4.81%
4.85%
5.62%
10.7%
10.9%
11.3%
11.3%
11.6%
11.0%
11.0%
11.2%
11.7%
11.7%
11.70%
0%
2%
4%
6%
8%
10%
12%
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Waterford
Statewide Town Average
Source: American Community Survey - 2021
Figure 4.19. Share of Affordable Housing (2011-2022)

52   Waterford 2023 Plan of Preservation, Conservation and Development
Source: American Community 
Survey – 2021
Percentage of Affordable 
Housing (2021)
deed restricted units. These combine for a total of 485 affordable 
units in Town. The share of affordable housing units in Waterford 
has been relatively stable over the last several years although it 
has increased slightly since 2002. Because Waterford does not 
have an affordable housing stock of at least 10%, it is not exempt 
from the State’s affordable housing appeals process. 
Waterford’s share of affordable housing is, and has been, 
consistent with the Statewide town average for several years. 
Waterford has a comparable share of affordable housing when 
compared to surrounding towns, with the exception of the City of 
New London.
Accessory Dwelling Units 
In May of 2023, the Town of Waterford updated its zoning 
regulations to allow for accessory dwelling units. As such, ADUs 
shall be permitted in all districts where single family homes are 
permitted, in accordance with the standards contained herein, 
and in compliance with all applicable state, local, health, building 
and housing codes. ADUs may be within a single family home or 
may be detached units, but no more than one attached and one 
detached ADU shall be permitted on a single parcel of land. 
Waterford
5.62%
New London
22.52%
East Lyme
6.15%
Montville
5.16%
Groton
23.22%
Ledyard
4.34%

Housing   53
Key Issues and Trends
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.
 y
People have different housing needs at 
different ages / life stages and Waterford’s 
age composition has more older residents 
than ever before. 
 y
People are living longer and may have to 
afford housing over a longer period of time.
 y
Younger persons and families may not be 
able to find housing in Waterford that meets 
their criteria (including cost).
 y
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.
 y
With smaller household sizes, people may 
want smaller (or less expensive) units than 
were built in the past.
 y
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.
 y
Overall, Waterford has 485 housing units that 
meet State criteria for “affordable housing.” 
 y
All of the units of “affordable housing” which 
meet State criteria were created by entities 
and organizations other than the Town of 
Waterford.
 y
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%)
Plans of Conservation and Development (and 
other studies) in Waterford over the past two or 
three decades have recognized these issues 
and challenges.  While the Town has been 
active working towards many of these issues, 
more can and should be done to address the 
housing needs that are currently presented in 
Waterford.
Relevant Housing-
Related Initiatives In 
Waterford
2022-27 Housing Plan
In 2022, the Planning and Zoning Commission 
adopted the Waterford Housing Plan.  This Plan, 
which was prepared by Waterford’s Planning 
and Zoning Commission, recommended 
strategies to help Waterford increase the 
number of affordable housing units in 
Waterford.  Since statutes require that this 
Plan be updated every five years, it will be a 
companion to this element of the POCD in term 
of housing strategies.
Fair Housing Policy 
Statement
In 2020, Waterford’s First Selectman’s Office 
signed a fair housing policy statement for 
the Town. The policy states that the Town 
of Waterford will promote fair housing 
opportunities and will encourage racial and 
economic integration in all its programs and 
housing development activities. 
Design Review Board
Since 20XX, Waterford has had a Design Review 
Board who’s purpose is to provide guidance to 
the Planning and Zoning Commission to assist 
with application review and with regard to the 
compatibility of building and site design as it 
pertains to community character, community 
structure and other elements of the current Plan 

54   Waterford 2023 Plan of Preservation, Conservation and Development
of Preservation, Conservation and Development, 
as well as its long-range goals and policies.
Human Services
Waterford’s Human Services Department 
provides the community with a variety of 
resources such as housing placement, 
community assistance programs, veteran and 
senior services, and a variety of other services.
Senior Citizen’s 
Commission
Waterford’s Senior Citizen’s Commission study’s 
the needs of, sponsors, initiates and coordinates 
programs of the senior citizens of Waterford.
Thoughts from the 
Waterford Community
Through the Plan’s community engagement 
process, a number of ideas and desires 
regarding neighborhoods and housing were 
discussed. The need to maintain the unique 
attributes Waterford’s villages and residential 
neighborhoods was emphasized. 
Residents also expressed concerns about 
weaknesses and threats to the Town’s 
neighborhoods and housing. These include high 
property tax rates, housing choice and cost for 
seniors and young adults as well as workforce 
housing. Some residents voiced concerns over 
multi-family housing developments, stating that 
the Town does not need any more housing.
Many ideas and opportunities regarding 
neighborhoods and housing were identified 
by residents and stakeholders including the 
need to promote a greater diversity in housing 
options and prices and focusing on mixed-use 
development to provide greater residential 
options in appropriate locations. 

Housing   55
Strategy #1. Protect existing residential neighborhoods
 
Î Encourage the preservation and enhancement of Waterford’s residential neighborhoods.
 
Î Enhance existing residential neighborhoods through streetscape design, tree planting, and other 
beautification initiatives.
 
Î Continue to pursue Community Development Block Grant (CDBG) funding programs when funding 
does become available. 
Strategy #2. Establish an Affordable Housing Committee
 
Î Establish a committee to focus on affordable housing within the community. The committee could 
include a variety of representatives from Planning and Zoning, Board of Selectman, Senior Services, 
Youth and Family Services, residents with experience in housing and public policy, residents with 
experience in building and development, and residents with experience in residential real estate. 
Strategy #3. Implement inclusionary zoning
 
Î Require affordable units in any new residential development by adopting a zoning regulation 
requiring that a certain percentage of any new residential development meet State affordability 
criteria.
 
Î Consider accepting multiple residential lots instead of an affordable unit.
 
Î Consider the use of density bonuses for providing affordable units.
 
Î Allow/Require payment of a fee in lieu of affordable units through zoning regulations.
Goal
Actively encourage a diversity of housing options to meet the needs 
of current and future residents while maintaining and enriching 
Waterford’s existing neighborhoods and promoting affordability.
Strategies & Action Steps

56   Waterford 2023 Plan of Preservation, Conservation and Development
Strategy #4. Guide residential development
 
Î Change zoning to encourage or require establishment of walkable, pedestrian-friendly, mixed-use 
nodes with a variety of housing options where public water, public sewer, road capacity, bus 
transit, is available, while maintaining / enhancing the overall “sense of place.
 
Î Identify locations where higher density residential development should be considered.
 
Î Encourage housing in areas where factors support housing options.
 
Î Discourage housing in areas with environmental factors that may not be suitable for housing. 
Strategy #5. Update multi-family housing regulations
 
Î Increase the number and variety of multi-family units by undertaking a comprehensive review/
revision the multi-family regulations.
 
Î Consider encouraging/allowing smaller scale multi-family housing which maintains the scale and 
appearance of residential neighborhoods but bridges the gap between single-family housing and 
large-scale multi-family developments.
 
Î Encourage adaptive re-use of existing buildings such as commercial properties on major 
roadways.
Strategy #6. Provide a diversity of housing choices
 
Î Encourage a variety of housing for residents of different age and income groups.
 
Î Seek to provide housing for an aging population. Continue to allow for assisted living facilities and 
life care facilities in appropriate locations.
 
Î Consider ways to provide housing opportunities for Waterford’s younger residents, families, and 
workforce.

Housing   57
Strategy #7. Utilize a variety of strategies
 
Î 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.
 
Î Consider the use of property tax incentives for affordable housing.
 
Î Support and facilitate Aging in Place. Continue to offer tax relief for lower income seniors and 
disabled. Maintain / expand Town services (Social / Nutrition / Health / Education / Transportation, 
etc.) which can help older residents age in place.
 
Î Support owner/tenant assistance programs such as CHFA/USDA Mortgages, “Tenant-Based” rental 
assistance and “Project-Based” rental assistance.
 
Î Encourage livability improvements such as universal accessibility standards (zero step thresholds, 
lever door handles, handicapped accessible bathrooms, higher toilets, lower light switches, first 
floor master bedrooms, etc.).

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5 
COMMUNITY 
SERVICES

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Community Services   61
Goal
Provide services to residents, property owners, business owners, 
workers, and visitors that meet evolving community needs.
Baseline 
Conditions & 
Existing Services
The Town of Waterford provides a range of 
services and facilities to its residents, property 
owners, and visitors. Town services are provided 
from many facilities across the community. 
These include municipal buildings such as 
Town Hall and the Department of Public Works 
complex, the Waterford Community Center and 
Waterford Library, public facilities such as fire 
stations and police station, parks and recreation 
facilities, schools and school grounds, and the 
Town’s beaches. Planning for the continued and 
future delivery of these services is an important 
function of this Plan.
Civic Triangle
Waterford’s Civic Triangle is comprised of the 
Town Hall, Police Department, Fire Marshall, 
Library, and Community Center. The Civic 
Triangle is located generally between Boston 
Post Road (Route 1), Rope Ferry Road (Route 
156) and Avery Lane. These facilities provide a 
centralized location for Waterford’s community 
services. Below is a brief overview of the various 
facilities and services offered within the Civic 
Triangle Campus:
Town Hall
Waterford Town Hall houses offices for the town 
clerk, the tax assessors and collectors, the First 
Selectman, and offices for various Town staff.  
The Town of Waterford offers its residents many 
publicly provided community services. 
Waterford Town Hall, Source: FHI Studio

62   Waterford 2023 Plan of Preservation, Conservation and Development
These services include: 
 y
A full K-12 education system
 y
Broad Public Works functions including 
an extensive sewer coverage area and 
wastewater treatment facilities; household 
waste collection, disposal and recycling 
service; parks and recreation; conservation; 
and road and public building repair and 
maintenance
 y
Full-time Police Department
 y
Volunteer Fire Departments (5) and 
Emergency Management Services
 y
A robust Library and Community Center
 y
Extensive inventory of parks, beaches, forest, 
and open space properties with varied 
activities programmed by the Recreation 
and Parks Department
 y
Waterford Youth and Family Services 
Department that promotes general health 
and well-being of the Town’s population
 y
Animal Control Department and animal 
shelter
 y
A Planning and Development Department 
that reviews the development of Waterford’s 
commercial and residential structures
 y
General financial, legal and other 
administrative government functions
A review of the Town’s fiscal operating budgets 
from 2013 through 2023 reflects a local 
government that has proactively managed 
and improved Town operations in the midst 
of a stagnant state economy. The budget 
looks towards the future in both its capital 
expenditures, expectations for growth, and 
efforts to attain cost savings for taxpayers. 
Waterford’s adopted operating budget for 
fiscal year 2023 was $99,381,223. This budget 
represents an increase of over $4 million since 
2020. As with most Connecticut municipalities, 
the largest share of Waterford’s budget is spent 
on education (52%). The Town recognizes that a 
high-quality education system is crucial to its 
quality of life. Municipal expenditures comprise 
the other half of the Town’s budget (roughly 
48%).
Waterford Schools
Waterford is home to a large public school 
system that includes three elementary, 
one middle, and one high school. The 
Waterford School district has an enrollment 
of approximately 2,338 students and employs 
more than 234 full-time equivalent employees. 
School district enrollment in Waterford has 
been on the decline since 2013, a trend that is 
prevalent across the State. 
In 2010, the Town undertook a major school 
improvement project at Waterford High School. 
The project consisted of building a new high 
school and renovation of the sports field 
house. Various improvements to Waterford’s 
other schools, such as field improvements and 
facilities improvements have also occurred in 
the past decade. Waterford’s school system is 
top rated and is an attractive lure for families. 
Cohanzie Fire Company, Source: Town of Waterford

Community Services   63
District-wide Initiatives and Highlights
 y
Administration and staff applied for and 
received over $73,000 in grants to enhance 
the educational platform for the district 
and students. These 14 grants, which we 
applied for, are a vital instrument in bringing 
educational programs and opportunities to 
students in the district we otherwise might 
not be able to support.
 y
In alignment with the Board Goal to 
“Advocate for and build a district that 
promotes equity”, the district continued our 
focus on equity as a significant initiative 
in the 2021-2022 school year. The District 
Equity Team met for its second year and 
worked on creating a District Equity Plan 
to be embedded in the District Strategic 
Plan. A curriculum equity audit was infused 
in all curriculum revisions and a Black and 
Latino Studies course was implemented at 
Waterford High School.
 y
Waterford Public Schools partnered with 
United Community and Family Services to 
open two School-Based Health Centers in 
the fall of 2021 at Waterford High School and 
Clark Lane Middle School. The School-Based 
Health Centers, open to all Waterford Public 
Schools’ students, provided comprehensive 
physical and behavioral health and well 
care to students.
 y
The design and implementation of 
programs to meet the Social and Emotional 
needs of students remain a focus for the 
district. Effective School Solutions was 
implemented to provide a therapeutic day 
program for high needs students at WHS. 
Additional mental health staff was also 
added at the secondary level to support our 
students in this vital area.
Waterford Community 
Center
Waterford’s Community Center is a 
multipurpose center that offers a variety of 
social, educational, and recreational programs. 
The Center offers exercise classes, trips, and 
Turf Field at Waterford High School, Source: FHI Studio
500,000
540,000
580,000
2000
2200
2400
2600
2800
2011-12
2012-13
2013-14
2014-15
2015-16
2016-17
2017-18
2018-19
2019-20
2020-21
2021-22
CT
WATERFORD
Figure 5.1. 
Public Schools K-12 Enrollment
Source: CT Department of Education, Waterford 
Public Schools

64   Waterford 2023 Plan of Preservation, Conservation and Development
games. The Community Center also houses 
many of Waterford’s other social programs 
such as Senior Services and Youth and Family 
Services. Craft Fair’s, Farmer’s Markets and other 
events are held at the Community Center.
Waterford Library
Waterford has had a public library since 1923 
when an association was incorporated by a 
small group of interested people to provide 
library services for the town. The Library has a 
through access to the ideas, information, and 
entertainment available from books as well as 
from a variety of other resources.
Waterford Youth and 
Family Services
Waterford Youth and Family Services was 
established by the Town Ordinance in 1991 to:
Craft Fair at Waterford Community Center, 
Source: FHI Studio
collection of over 85,000 items including books, 
videos, audio books, magazines and music CDs 
for adults, children and teenagers. It also offers 
a wide variety of entertainment, informational 
and cultural programs for all ages. 
The Library provides several online databases 
as well as public computers and Wi-Fi access. 
Meeting rooms are available for use by 
non-profit groups. Exhibits of local artists and 
organizations are featured monthly. The Library 
provides a book drop at the Quaker Hill Fire 
House for the convenience of its customers. 
Waterford residents and taxpayers may register 
for a library card and this card may be used at 
any public library in Connecticut.
The mission of the Waterford Public Library is to 
help the citizens of Waterford to enrich their lives 
Source: FHI Studio
 y
Increase the number and diversity of 
positive youth development programs
 y
Provide a coordinated means for the 
prevention of delinquency
 y
Reduce the amount of chemical abuse 
among youth
Waterford Youth and Family Services offers 
programming that supports the following areas:
 y
Family Connections
 y
Peer Relationships
 y
School Connections
 y
Community Connections
Human Services
In the past year (and especially since COVID-19), 
Waterford committed itself to focusing on 
helping residents with needs and taking 
an interdisciplinary approach to improving 
the overall quality of life of its residents. A 
designated Human Services Coordinator 
works with residents to remediate problems, 

Community Services   65
Source: Town of Waterford
As part of Waterford Youth and Family 
Services summer camp, Camp Dash, the 
Volunteer Leadership program is designed 
for youth entering 8th, 9th, and 10th grade. 
The program focuses on developing 
communication and leadership skills within 
the Summer Camp program.
administer social services programs, improve 
accessibility, and oversee mental health 
services in coordination with the contracted 
clinical director. Hundreds of residents are 
served and provided with programs and 
services that meet the unique needs of 
individuals, families, and seniors.
Veterans Services
Waterford is dedicated to its Veterans and 
their needs. The Department hosts a monthly 
coffeehouse at Filomena’s Restaurant. It is the 
largest gathering in the region. Over seventy 
Veterans are provided with a free, full breakfast 
and coffee service. Two additional coffeehouses 
for Veterans are hosted in a residential complex. 
These easily accessible meetings provide a 
licensed clinical social worker (LCSW), who is 
also a Vietnam War Veteran, to assist them 
with navigating the Veterans Affairs system 
and emotional well-being. Veterans are also 
provided with case management services, 
re-housing, food and meals, enrichment 
programs and transportation.
Waterford Community Food 
Bank
The Waterford Community Food Bank has 
served thousands of residents struggling with 
food insecurities. The food bank and its devoted 
group of volunteers have expanded its options 
to include paper goods, toiletries,  and kid 
friendly snacks.
Recreation and Parks 
Department
The mission of Waterford’s Recreation and Parks 
Department is that programs will be offered for 
all ages and interests giving each individual 
the opportunity to engage in a variety of 
activities. Through these activities, participants 
will be able to make constructive use of leisure 
time and contribute to positive physical and 
mental health, and good sportsmanship. The 
Recreation and Parks Department offers a 
plethora of programs for residents of all ages, 

66   Waterford 2023 Plan of Preservation, Conservation and Development
ranging from children’s yoga to senior citizen swim. The Department also manages Waterford’s beaches, 
organizes events such as the Harvest Festival, and sponsors Wednesday evening summer concerts 
at Waterford Beach Park. Table 5.1 provides an inventory of the parks and recreation facilities that are 
available to Waterford’s residents. 
Waterford’s Senior Services Department
Waterford’s Senior Services Department provides a wide variety of resources to Waterford’s senior 
citizens. This includes information about Medicare and social assistance programs, social programs 
such as card games, fitness and art classes and many many more programs. Wellness programs 
Source: Town of Waterford, The Day Magazine
Waterford’s Recreation and Parks 
Department is always seeking the 
community’s ideas for programs, events 
and classes. Residents can submit their 
ideas for new programs conveniently on the 
Town’s website at https://wysb.formstack.
https://wysb.formstack.
com/forms/rec_park_program_proposal
com/forms/rec_park_program_proposal
Source: Town of Waterford

Community Services   67
Source: Town of Waterford, The Day Magazine
Table 5.1. 
Public Parks and 
Recreation Facilities
Baseball/
Softball
Basketball
Fishing
Hiking/
Walking
Playground
Swimming
Tennis
Picnic Area
Kayak 
Launch
Fitness 
Rooms
Civic Triangle Park
Located between Boston Post Rd & 
Rope Ferry Rd
✓
✓
✓
✓
✓
Clark Lane Middle School
105 Clark Lane
✓
✓
Community Center
24 Rope Ferry Road
✓
✓
Dedrick Field Dayton Road
Across from Cohanzie School
✓
✓
✓
Great Neck School
165 Great Neck Road
✓
✓
✓
Grimsey Beah
47 Oswegatchie Road
✓
✓
✓
Jordan Mill Park-Governor's Landin
Look for marker sign sff of Trumbull Rd
✓
✓
Kiddies/Beebe's Beach
Located on Ni.annc River Road
✓
✓
✓
Leary Park
739 Vauxhall Street Extension
✓
✓
✓
✓
✓
✓
Mago Point Park
On River Street overlooking Niantic River 
Bay
✓
✓
Oswegatchie School
470 Boston Post Road
✓
✓
✓
✓
Pleasure Beach
Located on New Shore Road
✓
Quaker Hill Green
Intersection of Old Norwich Rd & Old 
Colchester Rd
✓
Quaker Hill School
 118 Old Norwich Road, Quaker Hill
✓
✓
✓
✓
✓
Ridgewood Park
30 Shore Orrve
✓
Sanctuary Basin
Located on Kingfisher Way
✓
✓
Stenger Farm Park
Located on Clark Lane across from 
school
✓
✓
✓
Veterans' Memorial Field
Boston Post Road
✓
✓
Waterford Beach Park
317 Great Neck Road
✓
✓
✓
✓
✓
✓
✓
Waterford High School
20 Rope Ferry Road
✓
✓
✓
✓
✓
✓

68   Waterford 2023 Plan of Preservation, Conservation and Development
are provided through the Senior Services 
Departments and include programs such 
as blood pressure check ups and mindful 
meditation classes. Additionally, Senior Services 
provides transportation services. In 2022, 
the Waterford Senior Services transportation 
program provided 4,169 one way rides. Close to 
50% of the rides were for medical appointments. 
Three senior vans provided rides to a variety 
of activities including; exercise classes, card 
games and luncheons at the Community 
Center. Vans took seniors to the grocery stores, 
banks, barbers and the places they needed to 
go. Transportation services allow residents to 
remain independent and handle errands and 
social activities on their own.
Police Department
The Waterford Police Department covers 
approximately 33 square miles and also covers 
several bodies of water, including the Thames 
River, Niantic River and Long Island Sound. 
Waterford Police Officers use marked cruisers, 
unmarked vehicles, a patrol boat, jet-skis, ATV's, 
bicycles and other methods to protect and 
serve the Town of Waterford. The department 
is proud to have officers who have acquired 
additional training and qualifications in specific 
areas which benefit our and the surrounding 
communities. These specialized areas include 
an Accident Investigation Team, K-9 Units, 
Youth Education Instructors, Drug Recognition 
Experts and Police Instructors in numerous law 
enforcement subjects. The department also has 
officers who participate in and are assigned to 
task forces, cold case units and other regional 
and state efforts periodically. 
The primary mission of the Waterford Police 
Department is to “protect those who rely on us 
for their safety, and to serve our community 
in times of need. The Department works with 
the community to help deter crime, protect 
others and educate the public. The Waterford 
Police Department delivers professional and 
dedicated service to all in our community.”
Source: Town of Waterford
Smores at Harvest Fest, Source: Town of 
Waterford

Community Services   69
As part of their commitment to the community, 
the Waterford Police Department hosts events 
like “Coffee with a Cop” where refreshments 
are served and residents can socialize and 
ask questions. Additionally, the Department 
hosts a Citizen’s Police Academy where officers 
donate their time to build relationships with the 
community.
Fire Department
The Waterford Fire Department is a combination 
department, which utilizes volunteer, part time, 
and career members and is comprised of five 
(5) fire stations:
 y
Waterford Fire Company #1 (Jordan)
 y
Waterford Fire Company #2 (Quaker Hill)
 y
Waterford Fire Company #3 (Goshen) 
 y
Waterford Fire Company #4(Oswegatchie)
 y
 Waterford Fire Company #5 (Cohanzie)
The department protects the life and property 
of Town residents, businesses, industrial, and 
visitors from fires, motor vehicle accidents, 
and critical health threats through its primary 
operations in response to fire and medical 
emergencies.
Emergency Management
Waterford’s Emergency Management 
Department provides the Town with information 
about emergency services and aid for 
evacuations and emergency instructions. 
During the Covid-19 Pandemic, Waterford’s 
Emergency Management Department met 
regularly with Ledge Light Health District (LLHD), 
the Connecticut Department of Public Health 
(DPH), the State of Connecticut Governor’s 
Office, the State of Connecticut Department 
of Emergency Management and Homeland 
Security (DEMHS) - Region 4, and others to 
determine best practices and public safety 
during the unprecedented pandemic. COVID-19 
testing was offered by Ledge Light Health District 
at the Waterford Public Library beginning in 
September of 2021. Waterford Police, Youth & 
Family Services, Public Works, Recreation & 
Parks and the Fire Department assisted with 
the distribution of several thousand home test 
kits and N-95 masks to Waterford citizens at 
no cost. The Town of Waterford continues to 
be a Regional Distribution Center during area 
emergencies. A written agreement with the 
Waterford Police Department supporting a 
local Cub Scout car wash that was held at the 
Cohanzie Fire Department, Source: Town of 
Waterford
Waterford Fire Department talking to students 
about fire safety at Clark Lane Middle School, 
Source: Waterford Fire Department

70   Waterford 2023 Plan of Preservation, Conservation and Development
State of Connecticut was recently renewed for 
this purpose.
Department of Public 
Works
Waterford’s Public Works Department provides 
many important functions that have a direct 
impact on the welfare and quality of life of its 
residents. The goals of the Department are 
to; protect and prolong the life of Waterford’s 
assets, support the advancement of the 
quality of life and to provide cost effective 
and efficient services. The Department is 
comprised of: Highway Operations, Equipment 
Maintenance, Solid Waste, and Administration 
Divisions.  Public Works maintains transportation 
systems, essential infrastructure, and open 
space. It also provides waste removal. Utilities 
and water are provided by private companies. 
The Department also is involved with various 
community events and community involvement 
initiatives like Touch-a-Truck.
Source: Town of Waterford

Community Services   71
Figure 5.2. 
Community Facilities
East Lyme
New London
Montville
Ledyard
Groton
Waterford
Niantic River
Thames River
Long Island Sound
Harkness 
Memorial 
State Park
Community Center
Waterford Police
Department
Oswegatchie 
Fire Station # 4
Quaker Hill 
Fire Station # 2
Clark Lane
Middle School
Goshen Fire Station# 3
Cohanzie Fire Station# 5
Waterford Library
Jordan Fire Station #1
Emergency Services
Oswegatcie School
Quaker Hill School
Waterford High School
Friendship School
Great Neck School
Town Hall
95
395
95
1
395
Community Facilities
Fire and Medical Services
Schools
Police
Town Hall and Civic Uses
Waterford  Library
Community Center

72   Waterford 2023 Plan of Preservation, Conservation and Development
Thoughts from the 
Waterford Community
Through the Plan’s community engagement 
process, Waterford residents expressed many 
ideas and desires regarding community 
services in the Town. Repeatedly, residents 
emphasized Waterford’ public beaches and 
park facilities as assets to the community. 
Waterford is recognized by its residents as 
providing a variety of high-quality services 
and facilities not found in neighboring towns. 
Programing at the Community Center is “top 
– notch” and provides services for Waterford’s 
residents of all ages. Residents are also very 
proud of the Waterford School System and the 
programs that it provides to its students and 
families. Concerns over maintaining services 
were expressed by some residents.
Findings
 y
The Town has an array of community 
facilities serving many different ages and 
in different areas of the town. Many of these 
facilities are located within the Civic Triangle. 
It can be challenging for residents in other 
areas of town to travel to that location.
 y
Continuing to provide the level of services 
that residents expect continues to be 
challenging for the Town. 
 y
Waterford’s geography is spread across 
33 miles, it’s size makes it challenging at 
times to provide services to residents in the 
northern areas of town. 

Community Services   73
Strategy #1. Ensure that Waterford continues to adequately serve its 
residents and businesses with community services.
 
Î Continue to monitor the evolving needs of the community and seek input on desired services that 
could benefit Waterford’s residents. 
 
Î Collaborate with neighboring and regional municipalities and organizations to consolidate 
duplicate services where feasible.
 
Î Promote the shared use of public spaces and facilities.
 
Î Continue to ensure that Waterford’s facilities are ADA compliant. To date, the Library is not ADA 
compliant. 
Strategy #2. Ensure that the town’s finances are professionally and 
carefully managed to deliver the highest level of services and programs as 
efficiently as possible
 
Î Monitor future public investments in acquisition, new construction/ additions and improvements in 
relation to the delivery of service to the maximum number of Waterford residents and businesses 
and for the highest priority public service needs.
Strategy #3. Prioritize improvements to the Town’s facilities to meet diverse 
program needs.
 
Î Conduct a Town Facilities Master Plan to assess capacity to meet current and anticipated program 
needs, to identify energy and other efficiency improvements, and to explore opportunities for 
consolidation and reuse.
 
Î Address accessibility needs of the physically disabled population in utilizing Town facilities and 
services.
Strategies & Action Steps
Goal
Provide services to residents, property owners, business owners, 
workers, and visitors that meet evolving community needs.

74   Waterford 2023 Plan of Preservation, Conservation and Development
Strategy #4. Prioritize improvements to the Town’s school facilities to meet 
program needs.
 
Î Recommend the Board of Education complete an enrollment and space utilization study of all 
schools to determine current and projected facility needs.
 
Î Improve school facilities to ensure that high quality, modern, and fully accessible facilities are 
available to Waterford’s students.
 
Î Continue to invest in Waterford’s education system to maintain and elevate its status as a 
desirable place to raise a family.
 
Î Consider doing more workforce development programs at the High School. Provide more 
programming for jobs right out of school.
Strategy #5. Promote special events and activities.
 
Î Continue to encourage events and activities that contribute to the local quality of life in Waterford.
Strategy #6. Implement other programs to enhance the quality of life in 
Waterford.
 
Î Continue to encourage, promote and sponsor events that contribute to community spirit and 
pride.
 
Î Promote volunteerism by residents which helps to support community programs. Recognize local 
volunteers.
 
Î Promote philanthropy by residents which will help to enhance the community and its quality of life. 

8 
ECONOMIC 
DEVELOPMENT

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Economic Development   91
Goal
Foster a vibrant economy that provides residents with access to 
goods, services, and employment opportunities while diversifying 
the Town’s property tax base. 
Baseline 
Conditions
Waterford supports a diverse, thriving 
base of successful businesses, ranging 
from regional shopping destinations 
such as Waterford Commons, 
manufacturing, and industrial 
businesses such as Sonalysts and an 
abundance of family-owned legacy 
businesses. Waterford’s strategic 
location, excellent infrastructure system 
(roads and utilities), low property taxes, 
existing business base, and progressive 
regulations are significant assets 
in terms of retaining and attracting 
economic development. Despite a 
changing retail market and the increase 
in online commerce, Waterford’ top 
industry continues to be retail trade 
which employs approximately 2,885 
workers. This is well above the number 
of employees who are employed in the 
second highest industry, which is health 
care and social assistance industry, 
which employs 1,665 workers. Retail 
trade employment in Waterford greatly 
exceeds that of the County and State. 
Additionally, Waterford has a higher 
percentage of utilities, transportation 
and warehousing, and construction 
jobs than the County of the State, 
as can be seen below. Much of 
Waterford’s land area is zoned for 
commercial and industrial uses, aiding 
in the development of these types of 
businesses. 
Source: CT Data Collaborative, 2021 Waterford Town Profile
Employment Employers
Avg. Wages
Retail Trade
2,885
149
$27,943 
Health Care & 
Social Assistance
1,665
64
$45,548 
Accommodation 
& Food Services
874
55
$25,905 
Local 
Government
794
13
$58,555 
Transportation & 
Warehousing
464
10
$27,350 
All Industries
10,604
684
$55,146 
Table 8.1. 
Top Industries (2019)
Source: CT Data Collaborative, 2021 Waterford Town Profile
Total Active Business Registrations
1,745
New Business Registrations by Year
2001
124
2006
105
2011
90
2016
86
2002
98
2007
121
2012
68
2017
105
2003
92
2008
92
2013
87
201