TOWN OF EAST HADDAM
PLAN OF CONSERVATION AND DEVELOPMENT
3. The Environment 7
4. Sense of Community 18
5. Historic Character and
Preservation 20
6. Cultural Life and Recreation 23
7. Quality of Education 25
8. Economic Strength 26
9. Population – Demographics 28
10. Housing 32
11. Transportation 37
12. Municipal Facilities 40
13. Statutory Authority 44
Connecticut
General Statutes
Acceptance
procedure
Consistency with the State’s
Plan of Conservation and Development
Resources by Chapter 50
Appendices
Appendix I 1997
& 2006 Public Opinion Survey Results 53
Appendix II Eightmile
River Management Plan 56
Appendix III Local
Community Groups, Boards, 61
Committees, and Commissions
Appendix IV Historic
Preservation Efforts 63
Appendix V Cemeteries
of East Haddam 67
Appendix VI Parks
and Preserves with Public Access 68
Appendix VII Open
Space Ordinance 70
Appendix VIII Open
Space Priorities 75
Appendix IX Recreational
Facilities 77
Appendix X Functional
Road Classification 78
Appendix XI Maps 80
Appendix XII East
Haddam Village District Regulation 81
Appendix XII Meetings
and minutes 84
CHAPTER 1 - INTRODUCTION
INTRODUCTION Draft 4/17/07
This Plan of
Conservation and Development was prepared by the East Haddam Planning and
Zoning Commission with information and assistance from all of the Town's boards
and commissions, from community groups, and from the public. A list of the minutes of these meetings is
included in Appendix XII. The Planning
and Zoning Commission also used numerous sources and previous reports and
surveys to create this plan. These
sources are listed by chapter under “Resources by Chapter” at the end of the
document. Each chapter is broken down to
"Goals", "Background", and "Policies and
Recommendations".
The Plan, by
statute, requires that the "Growth Management Principles” from the State
Plan of Conservation and Development be incorporated in the Plan. Chapter 13 (Statutory Requirements) explains
how this plan incorporates these principals.
Background
In 2006, a
professionally administered, statistically reliable public opinion survey asked
a representative sample of townspeople to rate their quality of life in East
Haddam. Ninety-nine percent (99.0%) of
all respondents reported their quality of life in East Haddam is either “very
good” (47.0%) or “good” (52.0%).
In the same survey,
townspeople were asked to describe the reason(s) for their decision to live or
continue to live in East Haddam. The
2006 responses to this question were nearly identical to the responses received
in a public opinion survey and series of focus groups and public forums
conducted in 1997 in which townspeople were asked what they liked best about
East Haddam.
The values endorsed
by East Haddam residents in 1997 and 2006 are:
The 2006 and 1997
survey results are summarized in Appendix I.
This revision of
East Haddam’s Plan of Conservation and Development takes as its basic premises:
In addition to these
community values, this plan addresses population trends, housing, transportation,
and municipal facilities as required by state statute.
Implementation of
Recommendations
The overall purpose of the plan of conservation and development is to recommend goals and policies to guide the town’s decision making concerning the use of land throughout the town. The value of this plan is that it attempts to recognize and integrate considerations that effect the town’s population, overall character, natural environment, recreational opportunities, social fabric, educational system and economic well being. While the plan is an advisory document only, because of its comprehensive scope and the broad citizen input it represents, it should provide valuable guidance to the decision making process of the various town boards and commissions.
To facilitate implementation:
2. Every five years, the Planning and Zoning Commission should conduct public sessions with Boards, Commissions, and Community Groups to review the plan to see if recommendations are being followed and implemented.
CHAPTER 2 - RURAL
CHARACTER
4/17/07
Goals
Of the things they value about East Haddam, residents most frequently mention East Haddam’s rural character. It is a goal of this plan to preserve East Haddam’s rural character. East Haddam’s rural character involves several elements. The most important of these are enumerated below and are specifically addressed in the following chapters of this plan.
Policies and
Recommendation
CHAPTER 3 - THE ENVIRONMENT
Draft 4/17/07
Goal
East Haddam’s natural environment, including its forested
areas, geological features, agricultural lands, lakes, rivers, streams,
wetlands, and their various ecosystems, supports a wide diversity of plant and
animal species and is vital to the quality of life in East Haddam. Taking direction from East Haddam’s citizens,
as expressed in the 1997 and 2006 public opinion surveys, a major goal of this
plan is to (a) conserve East Haddam’s
natural environment and traditional agricultural lands and (b) protect and
ensure the integrity of East Haddam’s environmental assets and natural beauty,
while (c) managing growth according to the best environmental practices
available.
Background
East Haddam's rich and diverse environment has drawn attention from many private and government agencies. The environment is recognized for the diversity of wetlands and watercourses and the high percentage of forest cover that still exist.
The State Plan of Conservation set several objectives under this management principle. The State Plan has designated areas as Development Areas and Conservation Areas. East Haddam has over ninety - five percent of its land designated as a Conservation Area.
The Conservation Areas are broken into four main categories:
(1) Existing Open Spaces. The State has an overall goal of preserving 21% of the state's land.
(2) Preservation Areas, which include wetlands, floodplain, lake resources, and Long Island Sound resources. Due to the critical nature of their resources, the goal for "Preservation Areas" is to manage the areas to the greatest degree feasible as no-build areas and no-net-loss areas.
(3) "Conservation Areas". Conservation Areas are areas that have not been protected and include prime agricultural lands, contiguous forest blocks, significant sand and gravel resources, historic areas, trap rock ridges, greenways, the fringe of the 100 year flood plain, scenic and recreation river corridors, and areas protected by conservation easements.
(4) Rural Areas. "The State Plan seeks to properly scale responses to identified economic and social issues and to concentrate development activities within or adjacent to traditional village areas in order to maintain rural character and to protect environmentally sensitive places. Techniques such as open space development (cluster development with its primary aim of the preservation of open space), regulations to encourage new development that meshes with historical development, mixed use development in community centers, and traditional street networks are some of the methods recommended to maintain rural character and the resources that define that character. Additional guidelines include use of best available design practices and control methods to nonpoint water pollution sources; encourage greenway projects; vigorously pursue sewer avoidance programs and limit development to those uses and densities that ensure indefinite functioning on-lot systems (septic and water)."
Wetlands and Watercourses Wetlands and watercourses are prominent parts of the East Haddam landscape. Wetland soil groups are distributed fairly evenly throughout the Town. There are several tributary streams which have significant wetland soil concentrations along their banks. Succor Brook, Hungerford Brook, Hemlock Valley Brook, Roaring Brook, Cranberry Meadow Brook, Lake Hayward Brook, Early Brook, Pine Brook, and Molly Brook are the tributaries with the highest wetland soil concentrations. The Moodus River, the Eightmile River, the Salmon River, and the Connecticut River all are within the boundaries of East Haddam.
East Haddam has three lakes: Bashan, Hayward, and the Moodus Reservoir. Bashan Lake is a natural lake raised by a dam built around 1860 to a depth of 48 feet and a surface area of 276 acres. Lake Hayward (formerly Shaw Lake) is also a natural lake raised by a dam in 1877. The lake has a maximum depth of 37 feet and a surface area of 189.9 acres. The Moodus Reservoir is an artificial waterbody created with a dam in 1882. The dam was created to provide water power to fourteen mills along the Moodus River. The Reservoir is divided by a causeway into the Upper and Lower Moodus Reservoirs with a total area of 451 acres and a maximum depth of 10 feet. A very small section of East Haddam borders Pickerel Lake which is located in Colchester.
Forest Land East Haddam is fortunate to have a very high percentage of the land mass in forest cover. This forest cover is a third generation of forest cover that has had a chance to mature since the agricultural times of pre-1920. The Eightmile River Watershed has for cover over 85% of the land mass while the rest of the watersheds average between 60% to 80% coverage. These contiguous forested areas provide habit for a vast array of wildlife.
Policies and
Recommendations:
The Planning and Zoning Commission
with assistance of the Conservation Commission, Department of Environmental
Protection, and related public agencies and private organizations shall
continue to update and enhance the existing natural resources inventory.
Natural Resource Maps in this inventory should include: (See Maps in Appendix XI)
a. Existing Land Use - The inventory includes residential, commercial, industrial, agricultural, recreational, municipal lands, open space, and undeveloped parcels.
b. Existing Zoning Map - This map covers the Districts and Zones in East Haddam.
c. Existing Open Space - An inventory of the various open space parcels and the acreage of each parcel.
d. Conservation & Development Areas - This map contains an overlay of what the State of Connecticut Plan of Conservation and Development considers "Conservation Areas" and "Preservation Areas".
d. Watercourses, Inland Wetlands, Floodplain Areas The map includes the outline of the major drainage basins that cover the Town, all soils designated as wetlands from the Inlands Wetlands and Watercourses Act - CGS Section 22a-36 and 22a-45, and watercourses visible through the Geographical Information System. Watercourses include lakes, ponds, rivers, streams, and most intermittent streams and most vernal pools.
e. Waterbodies - Lakes, Rivers, and Brooks
f. Major Drainage Basins
e. Soils With Limitations For Development - This map includes layers of topography, areas in excess of 25% slope, areas of shallow soil to ledge, inland wetlands, watercourses, and existing open space.
f. Map of existing State Highways and Town Roads
a. The Open Space Committee has created a protocol for property purchases and a format to prioritize the watershed and specific areas throughout the Town. This goal is in conformance with the various state and local agencies' plans. The Town also voted to implement a $5 million dollar bond for open space acquisition purchases. Future bonding or other fund dedication will be necessary to continue the goal of open space preservation. The Town, with assistance of State and private organizations, shall continue to pursue open space acquisitions of properties that meet the criteria of the ordinance. See Appendix VII & VIII – Open Space Ordinance and Priorities
b. Taxation of excess property. The Town shall keep in effect the present tax incentives for excess property. Public Act 490 is the Connecticut law (Connecticut General Statutes Sections 12-107a through 107-f) that allows farm, forest, or open space land to be assessed at its use value rather than its fair market or highest and best use value (as determined by the property's most recent "fair market value" revaluation) for purposes of local property taxation. Without the lower use value assessment, most landowners would have to sell the land because they would not be able to afford the property taxes on farm, forest, or open space land. When the legislature passed Public Act 490 in 1963, it included (and continues to this day) in the law's wording that "it was in the public interest to encourage the preservation of farm, forest, and open space land." Thus, in this respect it is very fair. Additionally, even with the lower property taxes collected, the towns do not sacrifice property tax revenues because of Public Act 490. Studies done across the nation, and closer to home by the American Farmland Trust, have conclusively proven that property tax revenues generated by farm, forest, or open space land, are far greater than expenditure by the town to service that land.
5. Preserve
areas of special importance. Prior
to the approval of any public or private project, (a) coordination shall be
made with the State of Connecticut Natural Diversity Database and the State
Historic Preservation Office, and (b) the review shall use the biodiversity
study conducted by the Eightmile River Watershed Committee to further
biodiversity protection.
6. Use of the Four Step Development Process. Any future development project designated by
the State Plan of Conservation Development as Preservation Areas, Conservation
Areas, and Rural Areas shall continue to use the “Four Step Development
Process” that is part of the East Haddam Subdivision Regulations. The design process identifies historical,
cultural and natural resources, potential open space corridors, views and
vistas, sensitive wildlife areas, Conservation Areas, and other areas that
should not be adversely impacted by development.
Step
One: Identifying Conservation Areas
Conservation Areas limited to regulatory
jurisdiction such as wetland and floodplains; and Conservation Areas including
those unprotected elements of the natural landscape such as steep slopes (20%
or greater), mature or productive forestland, potential contiguous open space
or connective green belts, prime farmland, land that protects critical or
threatened species or communities of special concern as identified by the
Department of Environmental Protection, areas that have recreation value as
recommended in the Recreation and/or Open Space Plan component of the Plan of
Development; wildlife habitats, and cultural features such as historic and
archeological sites; and scenic views
and vistas. This phase will require the
property boundary to be located, the wetland areas delineated, and the services
of professionals such as a biologist and/or a landscape architect to determine
the potential Conservation Area.
Step
Two: Locating Developable House Sites
The second step involves locating
approximate house sites on suitable soils outside of the Conservation
Areas. Random soil testing throughout
the property in a grid of approximately 200 feet apart will give a general
indication of the areas suitability for development.
Step
Three: Aligning Streets and Driveways
The third step consists of tracing a logical alignment for the location of streets to serve the house sites, which street pattern is in harmony with the natural topography to minimize cuts and fills.
Step
Four: Drawing in the Lot Lines
The final step is to draw in the
lot lines.
7. Implement a stewardship program for open space which is preserved under the town’s auspices, including compiling a complete inventory and location and boundary mapping. Connecticut General Statutes Section 7-131a designates the Conservation Commission as the steward of all municipally owned open space. The Commission also oversees any municipally held conservation easements. The Conservation Commission, with assistance from other commissions and boards, should develop management plans for all town owned parcels and parcels held in conservation easements. The management plan should balance the environmental integrity of the parcel with the recreational needs of the community.
The Conservation Commission should
also manage Town owned forest lots.
Forestry products are a renewable resource and if conducted as a
selective harvest causes little overall disruption. Funds derived from forest product sales
should go back to the open space acquisition fund.
8. Fulfill East Haddam’s commitments under
the Eightmile River Watershed Management Plan.
"The Eightmile River Watershed Management Plan goal is to preserve the resources of the Eightmile River Watershed and support achievement of Wild & Scenic designation by developing a management plan that is guided by three fundamental principles:
(1) Resource Conservation and protection should be fully integrated with traditional patterns of use, ownership, and jurisdiction, relying on existing authorities.
(2) Management of the Eightmile River Watershed should be based on a cooperatively developed plan that establishes resource protection standards and identifies key actions accomplished through cooperation among all public and private organizations with an interest in the river.
(3) Any land conservation initiatives related to a Wild and Scenic designation will be based solely on voluntary, willing seller arrangements. There will be no acquisition of lands through federal condemnation in conjunction with a Wild & Scenic River designation."
The Eightmile River Watershed Management Plan developed a recommendation of Tier One and Tier Two management tools. They are summarized in Appendix II. Some of these management tools have been implemented and this has been noted in Appendix II. Those tools which have been implemented should remain in place unless science driven research determines that changes should be made.
9. Protect
Ground Water Resources, including identified aquifer protection areas.
East Haddam contains two major types of water-bearing materials:
unconsolidated deposits and bedrock aquifers.
An aquifer is a geological deposit or formation that contains sufficient
saturated permeable material to yield usable quantities of water to wells. Stratified drift (layers of sand, gravel, and
silt) is the most productive source of ground water for individual wells in the
Town. The highest yields are generally
obtained from thick coarse-grained deposits located near the larger
rivers. Unfortunately stratified drift
deposits generally conduct water and pollutants easily and are highly
susceptible to contamination. The
Department of Environmental Protection recommends that high-risk uses such and
industrial and commercial sites be prevented over aquifer recharge zones. They also recommend that protection be
provided for by land acquisition or low-density development. For areas designated as Existing Preserved
Open Space, Preservation Areas, Conservation Areas, and Rural Lands, the State
Plan recommends that each municipality encourage new land uses that are
low-density development or preserved open space. A general density guideline for potential
water supply watersheds requires a minimum lot size of one dwelling unit per
two acres of "buildable" area and encourages cluster style
development to lessen impervious surfaces and avoidance of development in more
sensitive areas. They also recommend
that the design of septic systems be done to function indefinitely and for the
avoidance of sewage collection systems except when it is essential to solve
existing area-wide problems. The Town
has four identified aquifer areas. The
identified aquifers are the Eightmile River Aquifer, the Moodus River Aquifer,
the Salmon River Aquifer, and the Moodus Reservoir Aquifer. All contain stratified drift and are zoned
for residential use. Although the Moodus
River, Salmon River, and Moodus Reservoir Aquifers are zoned as a R1 (1 acre
minimum areas), the overall buildout potential is greater than 1 unit per two
acres.
10. Continue to implement Best Management
Practices for stormwater management, soil erosion and sediment control. The Planning and Zoning Commission and Inland
Wetlands and Watercourses Commission have committed through their regulations
the adoption and enforcement the 2002 Connecticut Guidelines for Soil Erosion
and Sediment Control as amended and the 2004 Connecticut Stormwater Quality
Manual. All new applications and
construction is required to conform to these guidelines.
11. Septic
System Disposal and Well Water Consumption. In accordance with existing Water Pollution Control Authority (WPCA)
policy, all of East Haddam except those areas now serviced by the sewer
treatment plant remains as a designated sewer avoidance area. The State Plan of Conservation and
Development and the Department of Environmental Protection stress that for
those areas designated as Conservation Areas, the towns should avoid the
introduction of sewage collection systems or water lines except to solve
existing area wide problems and all feasible alternatives have been
explored. The WPCA, with assistance of
the Chatham Health District, is in the process of developing a systematic
protocol of investigation by minor drainage areas to investigate potential
pollution problems in lake watersheds.
12. Support
the East Haddam Lakes Associations efforts to protect the lakes as
environmental and recreational resources.
a. Continue water monitoring programs of the lakes for sources of
pollution. (i.e. septic systems,
residential nonpoint sources, stormwater, and other potential sources.)
b. Continue to explore and implement methods of prohibiting,
mitigating, and eliminating invasive species.
c. Support education programs for property owners in the lake
watersheds. The programs include but are
not limited to retention and creation of buffers along water bodies, proper
lawn care practices to reduce fertilizers, and septic system maintenance.
d. Work with the Public Works Department and the private lake
associations to implement Best Management Practices on existing storm water
facilities.
e. All new projects (public or private) shall conform to the
Connecticut Stormwater Quality Manual and “Best Management Practices”
available.
f. Potential pollution sources should be analyzed on a subwatershed
basis with the assistance of the local health district, the Water Pollution
Control Authority, and the Land Use Office.
13. Develop and implement mechanisms to reduce
the effects of pollution on the environment
a. Promote energy conservation.
i. Travel - The State of Connecticut Plan stresses the need to reduce the number and length of daily vehicle trips generated from our residents. Development patterns should continue to be concentrated around the village centers. This is a key Smart Growth Initiative. Concentrating the Town’s schools, recreational facilities, entertainment entities, and commercial centers allows the community to gather in common areas to communicate and strengthen the sense of community, creates efficiency in travel distance and time, and continues to strengthen existing commercial centers.
ii. Energy Efficient Design Standards - The Town, through new public projects or rehabilitation of existing public facilities, should investigate energy efficient design standards as a construction standard. The private sector should be able to demonstrate how new construction or rehabilitation projects are energy efficient. This would include the use of energy efficient material, solar orientation, solar assisted forms of heating and electricity, geothermal, or other sources of energy conservation.
iii. The Planning and Zoning
Commission shall monitor energy conservation technologies and when proven
effective shall encourage the application of appropriate technologies by
incorporating them as regulatory requirements where possible.
b. Light Pollution – The Planning and Zoning Commission, through the site plan review process, shall approve plans that implement the effective management of outdoor lighting. These lighting plans shall maximize energy conservation, control glare and “skyglow” through shielding, and prevent light trespass without sacrificing safety or security.
c. Recycling - The Town shall continue implement the Best Management Practices for recycling. The State’s Plan of Conservation and Development has targeted the removal of 40% of the waste stream through recycling. The Town should continue to educate the residents of East Haddam on the positive environmental and fiscal benefits of recycling. These education programs should be coordinated between the Board of Selectmen, the Public Works Department, and the Conservation Commission.
d. Noise Pollution – The Connecticut General Statutes, under the Control of Noise Regulations (Title 22a Section 22a-69-1 to 22a-69-7.4) identify the limits of sounds that can be emitted from a specific premises and what activities are exempt from the Noise Regulations. The Planning and Zoning Commission, through the site plan review process, shall approve only those projects which comply with the Noise Regulations provided by the State.
e. Invasive Species – Every effort should be made by citizens, volunteer groups and associations to eliminate invasive species while not harming indigenous species.
14. The Planning and Zoning Commission, Inland Wetland and Watercourses Commission and Conservation Commission should cooperate in selecting or developing a pamphlet providing information on sound environmental, storm water management, etc. practices for distribution to individual property owners/homeowners.
CHAPTER 4 - SENSE
OF COMMUNITY & VOLUNTEERISM
4/17/07
Goal
It is the goal of this plan to maintain and nurture East Haddam’s sense of community and volunteerism by promoting a community culture that encourages and facilitates community involvement by all citizens of all ages and interests.
Background
East Haddam’s sense of community is a function of the fact
that East Haddam is a small town, so that it is possible to know many of one’s
neighbors. Our sense of community is evidenced
by the more than 75 active
community organizations, including church, athletic, arts, environmental,
civic, etc. groups. (Appendix III -
Local Community Groups, Commissions, and Boards)
Because of our size and the way town government is organized, it is possible for individual citizens and community groups to participate directly in the decision making processes of their town government. Many of East Haddam’s town government needs continue to be met largely through the volunteer efforts of its citizens. Hundreds of hour