Planning & Zoning Commission Agenda (linked)

DEPARTMENT OF PLANNING AND DEVELOPMENT 
1 
 
FIFTEEN ROPE FERRY ROAD 
WATERFORD, CT 06385-2886 
 
MEMORANDUM 
TO: Planning and Zoning Commission 
FROM: Mark Wujtewicz, Planning Director 
Eric Salmon, Planner 
DATE: May 22, 2026 
TITLE: Staff Report: Zone Map Amendment – Application PL-26-11 
IP-1 to IP-1, I-MF, & R-40;  
140 Waterford Parkway South 
 
EXECUTIVE SUMMARY 
An application has been made pursuant to Section 28.2 of the Zoning Regulations to amend the 
Zoning Map of the Town of Waterford for property located at 140 Waterford Parkway South. 
The application for map amendment (PL-26-11) proposes changing the present zone district 
classification of a portion of the parcel from IP-1 (General Industrial Park) to IP-1 (General 
Industrial Park), I-MF (Industrial Multi-Family), and R-40 (Low Density Residential) districts. 
The subject property currently contains approximately 188.81 acres zoned entirely IP-1 (General 
Industrial Park). The applicant’s proposal would revise the zoning boundaries as follows: 
• 
Approximately 16.2 acres to remain IP-1 (General Industrial Park) 
• 
Approximately 98 acres to become I-MF (Industrial Multi-Family) 
• 
Approximately 74.6 acres to become R-40 (Low Density Residential) 
The application was received by the Commission on May 12, 2026. 
The Public Hearing was advertised in The Day on June 9th and June 16th, 2026. 
The date of the Public Hearing is June 23, 2026. 
 

 
2 
 
 
A prior application, PL-26-5, for a zone map amendment was previously denied without 
prejudice by the Planning and Zoning Commission due to concerns related to the 
potential development density. The current application, PL-26-11, reflects revisions to the 
proposed zoning configuration and residential development approach. 
 
BACKGROUND 
Pertinent Regulations 
Connecticut General Statutes 
• 
CGS 8-3(a) 
Waterford Zoning Regulations 
• 
Section   5 – R-40 Low Density Residential District 
• 
Section 13 – General Industrial Park Zone (IP-1) 
• 
Section 16 – Multi-Family Residential Districts (R-MF) (C-MF) (CT-MF) (I-MF) 
• 
Section 18 – Multi-Family Development 
• 
Section 28 – Amendments 
 
DISCUSSION 
The applicant proposes to amend the zoning designation of portions of the property located at 
140 Waterford Parkway South. The property currently contains approximately 188.81 acres 
zoned entirely IP-1 (General Industrial Park). The applicant’s proposal is to revise the zoning 
boundaries to approximately 16.2 acres zoned IP-1 (General Industrial Park), 98 acres zoned I-
MF (Industrial Multi-Family), and 74.6 acres zoned R-40 Residential. 
The parcel is the site of the former Waterford Airport. The airport ceased operations in 1987. 
Subsequent to the closing of the airport, the Planning and Zoning Commission approved the site 
for a business park subdivision in 1990 known as Waterford Landing. Partial construction of the 
infrastructure took place but was not completed. The property has remained largely undeveloped 
since the abandonment of the work sometime in 1995. In accordance with Connecticut General 
Statute 8-26(c), the subdivision approval had expired and a Notice of Subdivision Expiration was 
filed on the Waterford Land Records (Exhibit 6). Subsequently, a site plan and special permit 
application (PL-20-16) for the construction of a concrete products manufacturing facility was 
submitted in August of 2020 and later withdrawn by the applicant in December of 2020. 

 
3 
 
A previous zone map amendment application, PL-26-5, proposing a similar rezoning of the 
property was denied without prejudice by the Commission due to concerns regarding the 
potential residential density that the extent of the rezone could create. The current application 
proposes a revised zoning layout that incorporates a combination of I-MF and R-40 zoning 
districts in an effort to provide a transition in density and housing types across the site. 
The uses permitted within the proposed I-MF Zone District include Multi-Family Development 
in accordance with Section 18 of the Zoning Regulations in addition to all uses currently 
permitted or specially permitted within the IP-1 Zone District. The proposed R-40 Zone District 
would provide for lower-density residential development consistent with surrounding residential 
areas and environmental constraints present on portions of the site. 
Pursuant to Section 8-3a of the Connecticut General Statutes, before the Commission acts upon 
an application to change the zoning map of the Town of Waterford, it must consider whether the 
amendment being proposed is consistent with the 2012 Waterford Plan of Preservation, 
Conservation and Development, herein after referred to as the Plan. 
The Community Structure Map of the 2012 Plan of Preservation, Conservation and Development 
identifies areas for Possible Future Mixed Use Nodes (Exhibit 7). The parcel included in the 
Zone Map Amendment is located within close proximity to two of these areas identified on the 
Map. “Mixed Use” for the purposes of the Plan refers to residential uses combined with 
nonresidential uses such as commercial, industrial, office, or institutional uses. 
The proposed creation of an I-MF (Industrial Multi-Family) District on a portion of the property 
would allow for multifamily residential development opportunities while maintaining 
compatibility with surrounding commercial, business, industrial, and medical uses. Retaining a 
portion of the site as IP-1 allows for continued industrial and employment-related opportunities 
within the development area. 
The proposed addition of residential zoning districts to the existing industrial zoning framework 
also provides an opportunity to create mixed-use and village-style development patterns. The 
inclusion of multifamily and residential development opportunities will increase the potential for 
supporting development that may occur within the areas identified as Future Mixed Use Nodes 
on the Community Structure Map. This is consistent with a stated goal of the Plan by 
“Increasing Opportunities for Mixed Use and Village Style Development.” (Page 52) 
The 2012 POCD specifically encourages opportunities to implement “smarter growth” principles 
in areas served by existing infrastructure. The Plan identifies several concepts associated with 
this development approach, including mixing land uses, creating a range of housing opportunities 
and choices, encouraging compact building design, creating walkable neighborhoods, and 
directing development toward existing developed areas.   
The POCD further states that mixed-use “village-type areas” should be considered in locations 
supported by utility infrastructure where development can be integrated into the overall structure 
of the community while creating pedestrian-friendly environments and a strong sense of place. 
The subject property is located within an area served by existing utility infrastructure and in 

 
4 
 
proximity to existing commercial, medical, business, and residential development patterns 
identified in the POCD as appropriate for future mixed-use opportunities.   
The 2015 Supplement to the POCD reinforces the Town’s objectives related to promoting 
business and economic development, supporting concentrated development patterns, and 
encouraging mixed-use nodes in appropriate locations. The proposed zoning configuration 
maintains areas for industrial and employment-related uses while also expanding opportunities 
for residential and multifamily development consistent with the overall land use framework 
identified in the POCD.   
The Future Land Use Plan contained within the 2012 POCD identifies several overarching 
planning objectives applicable to the proposed amendment, including protecting natural 
resources, diversifying Waterford’s housing portfolio, supporting mixed-use nodes, enhancing 
community character, and guiding development toward areas supported by appropriate utility 
infrastructure. The proposed zoning amendment is generally consistent with these stated 
planning objectives. 
The area of the proposed zone change is within the existing sewer and water service areas as 
shown in the Plan. The Plan states that multifamily developments may be considered appropriate 
in areas where adequate infrastructure is available. (Page 56) 
Another stated goal in the Plan is to “Encourage a variety of housing types and densities to meet 
the housing needs of current and future residents.” The proposed zone map amendment would 
provide opportunities for a broader range of housing types and densities by allowing both 
multifamily and lower-density residential development in areas where adequate infrastructure 
currently exists to support such uses. (Page 52) 
The Jordan Brook watercourse and the FEMA-designated floodway surrounding it are 
considered significant conservation priorities in Waterford. Multifamily and clustered residential 
development provide flexibility in siting residential buildings and infrastructure in a manner that 
preserves and protects sensitive natural resources while increasing open space opportunities. 
A stated goal in the Natural Resources chapter of the Plan is to “Preserve, protect, and enhance 
natural resources in order to maintain environmental health and support our overall quality of 
life.” (Pages 16–18) 
 
 
 

 
5 
 
RECOMMENDED ACTION 
Based on the information provided, staff recommends the Planning and Zoning Commission find 
that: 
Findings 
1. Application PL-26-11 meets the requirements of Section 28 of the Waterford Zoning 
Regulations. 
2. Application PL-26-11 meets the requirements of Connecticut General Statutes Chapter 
124 §8-3 governing changes of zoning regulations and districts. 
3. The proposed Zone Map Amendment is consistent with the 2012 Plan of Preservation, 
Conservation and Development in that it is located within an area identified for future 
mixed-use and concentrated development opportunities supported by existing 
infrastructure and surrounding commercial, industrial, medical, and residential uses. 
4. The proposed zone map amendment is consistent with stated goals of the POCD 
encouraging opportunities for mixed-use and village-style development, walkable 
development patterns, compact building design, and directing development toward areas 
with adequate infrastructure capacity. 
5. The proposed amendment supports the POCD goal of preserving, protecting, and 
enhancing natural resources by allowing flexibility in the siting and configuration of 
residential development and infrastructure while maintaining significant open space and 
environmentally sensitive areas. 
6. The proposed zone map amendment is consistent with the stated goals of the POCD and 
the 2015 Supplement to encourage a variety of housing types and densities, promote 
economic development opportunities, and support future mixed-use development nodes 
within areas served by existing utility infrastructure. 
 
Proposed Motion 
The Commission approve Application PL-26-11 to amend the Zone Designation for property 
located at 140 Waterford Parkway South from IP-1 (General Industrial Park) to approximately 
16.2 acres of IP-1 (General Industrial Park), 98 acres of I-MF (Industrial Multi-Family), and 74.6 
acres of R-40 (Low Density Residential) as shown on Zone Change Plan, (Exhibit 2), and adopt 
Findings 1 through 6 of the Staff Report dated June 23, 2026. 
Effective Date: July 22, 2026 
 




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                           WATERFORD, CT
PROFESSIONAL SEAL
CONTACT INFORMATION
LEBANON, CONN 06249
191 NORWICH AVENUE
YANTIC RIVER CONSULTANTS, LLC
www.yanticriverconsultants.com
Web:
yanticriver@gmail.com
Email:
(860) 367-7264
Phone:
SCALE:   1" =   200'
PROJECT NUMBER:
00162 - 001  
 200
0
 200
 400
 600
DATE
DESCRIPTION
        
                                             
SHEET
DATE
REVISED
 5/5/26 
        
OF
   2
2   
REVISION SUMMARY
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
        
                                             
           REQUEST FOR ZONE CHANGE          
         140 WATERFORD PARKWAY SOUTH        
                     PREPARED FOR                     
 MATHON FUND I, LIQUIDATING TRUSTEE, OWNER / APPLICANT
             DEVELOPMENT CONCEPT            
140 WATERFORD PARKWAY SOUTH (M/B/L 111//9514)         
YORKSHIRE       DRIVE
DEVONSHIRE       DRIVE
WATERFORD PKWY SOUTH
WATERFORD PKWY NORTH
MAP REFERENCES:
INLAND
WETLANDS
INLAND
WETLANDS
INLAND
WETLANDS
INLAND
WETLANDS
INLAND
WETLANDS
FEMA ZONE AE
FEMA FLOODWAY
1.
EXISTING INFORMATION FOR THE PARCEL AT 140 WATERFORD PARKWAY SOUTH FROM A MAP 
ENTITLED "LAND OF MATHON FUND, LLC, 140 WATERFORD PARKWAY SOUTH, WATERFORD,
CONNECTICUT, ALTA/ACSM LAND TITLE SURVEY", SHEET AL-1, DATED 08/12/2021 AS REVISED
THROUGH 9/16/2021, PREPARED BY BL COMPANIES.
2.
GENERAL PARCEL DATA OBTAINED FROM CT ECO WEBSITE WITH MAP, LOT, AND OWNERSHIP DATA
FROM THE TOWN OF WATERFORD GIS WEBSITE AND TAX ASSESSOR.
3.
INLAND WETLAND INFORMATION OBTAINED FROM MAP ENTITLED "EXISTING CONDITIONS SURVEY,
PROPERTY OF MATHON FUND I, LLC, PREPARED FOR FABCON PRECAST C/O JEFF PRINCE, 140
WATERFORD PARKWAY SOUTH, WATERFORD, CONNECTICUT", SHEET 3  OF 42, DATED 07/17/2020 AS
REVISED THROUGH 10/30/2020, PREPARED BY LOUREIRO ENGINEERING ASSOCIATES, INC.
4.
2023 ELEVATION/LIDAR DATA OBTAINED FROM NOAA.
5.
SITE LOCATION MAP FROM CT DOT TOWN ROAD MAPS FOR WATERFORD, CT.
6.
ZONING MAP AND INFORMATION REFERENCED FROM "TOWN OF WATERFORD ZONING MAP" REVISED
THROUGH AUGUST 30, 2022.
7.
FEMA SPECIAL FLOOD HAZARD AREA INFORMATION OBTAINED FROM F.I.R.M. MAP PANEL 482 OF 554,
EFFECTIVE JULY 18, 2011.
PID 8985
PID 8921
PID 8991
PID 4380
PID 4379
PID 9495
PID 9472
PID 9473
PID 9471
PID 9470
PID 9469
PID 2466
PID 2465
PID 2467
PID 9468
PID 9467
PID 9466
PID 9465
PID 9464
PID 3842
PID 3844
PID 9495
PID 9495
PID 9463
PID 9462
PID 9461
PID 9460
PID 9458
PID 9457
PID 1998
PID 1996
PID 1997
PID 1999
PID 2000
PID 2001
PID 2002
PID 2443
PID 2726
PID 8984
FEMA ZONE AE
FEMA ZONE AE
FEMA FLOODWAY
IDENTIFIED IN POCD
FUTURE MIXED-USE NODE
VETERANS  
        
MEMORIAL
       
   HIGHWAY (I-95)
FUTURE IP-1
DEVELOPMENT
CLUBHOUSE
A
A01 - A44
B
B01 - B44
C
C01 - C44
D
D01 - D44
E
E01 - E44
F
F01 - F44
G
G01 - G44
H
H01 - H44
I
I01 - I44
J
J01 - J44
K
K01 - K44
L
L01 - L44
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
TH
EXISTING PROPERTY LINE
EXISTING ROW LINE
REHABILITATION
EXISTING ROAD
EAST LIMIT OF
ROAD REHABILITATION
WEST LIMIT OF EXISTING
ROAD REHABILITATION
SOUTH LIMIT OF EXISTING
PROPOSED ROW LINE
CONNECTION
NEW LOOP ROAD
60'
60'
POTENTIAL FUTURE MF
DEVELOPMENT AREA
PHASE 1
PHASE 2
R-40
IP-1
IP-1
R-20
IP-1
R-20
IP-1
R-20
R-20
C-R
IP-1
I-MF
I-MF
R-40
I-MF
R-40
IP-1
I-MF
R-40
IP-1
I-MF
I-MF
R-20
R-40
IP-1
I-MF
JORDAN BROOK
JORDAN BROOK
JORDAN BROOK
NEVINS BROOK
AMPHIBIAN OR REPTILE (TYP.)
NDDB LISTED SPECIES
SURVEYED LOCATION OF
ARCHAEOLOGICAL SITE (TYP.)
SURVEYED LOCATION OF
CONSERVATION
AREA
CONSERVATION
AREA
CONSERVATION
AREA
CONSERVATION
AREA
ZONING TABLE NOTES:
EXISTING ZONE:
GENERAL INDUSTRIAL PARK ZONE (IP-1)
PROPOSED ZONES:
IP-1 / I-MF / R-40
REQUIRED
PROPOSED
ITEM
STANDARD (IP-1)
(IP-1)
UNDEVELOPED
CONCEPT ZONING TABLE
1.
ZONING TABLE PREPARED AS PART OF CONCEPT DEVELOPMENT PREPARED FOR A ZONE
CHANGE REQUEST FROM IP-1 TO IP-1 / I-MF / R-40. FINAL DEVELOPMENT LAYOUT AND ZONING
COMPLIANCE TABLE WILL BE SUBMITTED AS PART OF SITE PLAN APPLICATIONS. LAYOUT AND
ZONING COMPLIANCE INFORMATION SUBJECT TO CHANGE.
2.
OPEN SPACE INCLUDES WETLANDS AND WATERCOURSES.  
EXISTING USES:
VACANT / FORMER AIRPORT
PROPOSED USES:
FUTURE IP-1 DEVELOPMENT PER SECTION 13
MULTI-FAMILY DEVELOPMENT PER SECTION 16.1.4
R-40 UNDEVELOPED PER SECTION 5
PRIMARY ACCESS LOOP
PRIMARY ACCESS LOOP
PRIMARY ACCESS LOOP
BOULEVARD ENTRANCE
TOWNHOUSE ACCESS
TOW NHOUSE
ACCESS
TOTAL LOT AREA
8,222,467 SF (188.8 AC)
IP-1
704,870 SF (16.2 AC)
I-MF
4,269,832 SF (98.0 AC)
R-40
3,247,765 SF (74.6 AC)
OPEN SPACE / CONSERVATION
78.7 AC± (42%)
GENERAL INDUSTRIAL PARK ZONE (IP-1)
MIN. LOT AREA:
80,000 SF
>80,000 SF
MIN. LOT FRONTAGE:
200 FT
>200 FT
MIN. LOT WIDTH:
250 FT
>250 FT
MAX. BLDG COVERAGE:
30%
<30%
MIN. FRONT YARD:
STANDARD ROAD:
95 FT
>95 FT
I-95 FRONTAGE ROAD:
150 FT
>150 FT
MIN. SIDE YARD:
40 FT
>40 FT
MIN. REAR YARD:
75 FT
>75 FT
MULTI-FAMILY RESIDENTIAL DISTRICT (I-MF)
MIN. LOT AREA:
60,000 SF
4,269,832 SF (98.0 AC)
MIN. LOT FRONTAGE:
150 FT
>150 FT
MIN. LOT WIDTH:
N/A
>150 FT
MAX. BUILDING COVERAGE: 25%
6%±
MIN FRONT YARD:
STANDARD ROAD:
75 FT
95 FT±
I-95 FRONTAGE ROAD:
150 FT
N/A
MIN. SIDE YARD:
50 FT
223 FT±
MIN. REAR YARD:
75 FT
77 FT±
DENSITY:
8/AC (784 UNITS)
6.1/AC (600 UNITS)
BUILDING SEPARATION:
30 FT MIN. 
30 FT
MAX. UNITS PER BLDG:
45 UNITS
44 UNITS
MAX. BUILDING HEIGHT:
40 FT
<40 FT
MAX. BUILDING STORIES:
3 STORIES
3 STORIES
UNIT MIXTURE:
2-BEDROOM UNIT:
60% MAX.
32% (192 UNITS)
OPEN SPACE:
20% (19.6 AC)
39%± (38 AC)
MAIN EASEMENT
EXISTING SEWER
20'
20'
WATER MAIN EASEMENT TO 20'
INCREASE WIDTH OF EXISTING