741 Colonel Ledyard Highway

Ledyard, CT 06339-1511

TOWN OF LEDYARD

Planning & Zoning Sub Committee

Meeting Minutes - Final

Special Meeting

Thursday, April 30, 2026

6:00 PM

Council Chambers - Hybrid Format

CALL TO ORDER

Chairman Woody called the meeting to order at 6:00 p.m. at the Council Chambers, Town

Hall Annex Building and on Zoom.

II.

ROLL CALL

Nathaniel Woody

James Harwood

Beth E. Ribe

Present

In addition, the following were present:

Elizabeth Burdick, Director of Land Use & Planning, (via Zoom)

Marcelle Wood, Chairman of the Planning & Zoning Commissioner,

Kristin Clarke, Planning Consultant

Anna Wynn, Assistant to the Director of Land Use & Planning

Chairman of the Ledyard Planning & Zoning Commission, Marcelle Wood read the following

statement for the record:

At the Planning & Zoning Commission Regular Meeting of December 11, 2025, the

Commission discussed the formation of a Subcommittee, as outlined under the “Town of

Ledyard Planning & Zoning Commission By-Laws,” effective February 18, 2019, to address

necessary Zoning Regulation changes mandated by Public Act 25-1 (aka House Bill 8002). The

Subcommittee held their organizational meeting on January 8, 2026, comprised of

Commissioner Nathaniel Woody, Commissioner James Harwood and Commissioner Rhonda

Spaziani and were tasked at that time with drafting proposed zoning regulation amendments

regarding parking. The Subcommittee completed its assigned task on March 12, 2026, when it

delivered their final report to the full Commission, a report that was later accepted as a formal

application numbered PZ#26-2ZRA on April 9, 2026. Additionally, at the Planning & Zoning

Commission Regular Meeting of April 9, 2026, per New Business Item B. “Discussion of

Planning & Zoning Subcommittee regarding Housing Regulations”, Chairman Marcelle Wood

designated the existing Subcommittee to be tasked with drafting the necessary Zoning

Regulation amendments mandated by PA25-1 regarding Housing. The Planning & Zoning

Subcommittee for Housing proposed amendments is to be comprised of the following members:

Commissioner Nathaniel Woody, Commissioner Beth Ribe and Commissioner James Harwood.

Let it be noted that Commissioner Rhonda Spaziani has been replaced by Commissioner Beth

Ribe. The Planning & Zoning Subcommittee on Housing will be active until the completion of

their assigned task and delivery of their final report to the full Commission.

Chairman Wood and the Subcommittee members discussed electing a Chairman of the

Subcommittee.

MOTION to appoint Commissioner Nathaniel Woody as Chairman of the Planning & Zoning

Subcommittee regarding Housing

RESULT:

3-0 APPROVED AND SO DECLARED

MOVER: Harwood

SECONDER: Ribe

AYES: 3 Woody, Harwood, Ribe

III.

BUSINESS OF THE MEETING

Discussion of Proposed Amendments to the Ledyard Zoning Regulations regarding Housing

(PA25-1, aka HB 8002), presentation by planning consultant Kristin Clarke

Planning Consultant, Kristin Clarke, gave a brief overview of her professional experience

and background. She gave an overview of Public Act 25-1. She gave an overview of the

timeline for required changes.

Kristen Clarke and the Subcommittee began discussing serval suggested definitions to

include in the Ledyard Zoning Regulations including:

Summary Review: means able to be approved in accordance with the terms of a zoning

regulation or regulations, including, but not limited to, requirements concerning setbacks, lot

size and building frontage, applicable to a proposed development, and without requiring that

a public hearing be held, a variance, special permit or special exception be granted or some

other discretionary zoning action be taken, other than a determination that a site plan is in

conformance with applicable zoning regulations and that public health and safety will not be

substantially impacted.

The Subcommittee and Ms. Clarke discussed the difference between summary review and

site plan review. They concurred that there is a fine line between the definition of summary

review and site plan review. Commissioner Harwood commented that he felt this definition

allowed more jurisdiction for Town planners to do a review and agent approvals before an

application is required to come before a full Commission. Ms. Clarke said she can do more

research into the difference between these two definitions and commented that other towns

are having similar questions. The Director of Land Use & Planning, Elizabeth Burdick,

attending via Zoom, commented that not only does the definition of summary review in the

Connecticut General Statutes state that a public hearing cannot be required, but also that a

variance cannot be required or a Special Use Permit, or any other discretionary zoning action

be taken. She said that they will have to go through each individual use and see which would

meet the requirements of a summary review process. Chairman Woody noted language at the

end of the definition that states public health and safety and felt that any application that

would potentially impact these would go to the full Commission. He stated that staff would

not want the liability of making an agent determination concerning public health and safety.

Transit community middle housing development means a residential building containing

not less than two dwelling units but not more than nine such units, including, but not limited

to, townhouses duplexes, triplexes, perfect sixes and cottage clusters

Ms. Clarke commented that she is still in the process of determining if Ledyard will be

eligible to be a transit community or a transit adjacent community and which thresholds they

meet. Chairman Woody stated that regardless the Ledyard Zoning Regulations need a middle

housing definition.

Developable land means land, including any land owned by the state or a political

subdivision of the state, including a municipality, that, as of January 1, 2026, can be feasibly

developed or redeveloped into a residential development or a mixed-use development, as

defined in section 8-13m of the general statutes, provided the feasibility of such development

or redevelopment is based on commercially reasonable assumptions. "Developable land"

does not include:

(A) Land already committed to a public use or purpose, whether publicly or

privately owned;

(B) open space, parks and recreation areas that are dedicated to the public or

subject to a recorded conservation easement;

development, provided any such restriction or prohibition is not imposed by

any zoning regulations or ordinance adopted by a municipality;

(D) wetlands or watercourses, as defined in chapter 440 of the general 595

statutes; and

(E) areas of one-half or more acres of contiguous land that are unsuitable for

development due to topographic features, such as steep slopes;

Chairman Woody commented that a developable land definition will need to be included for

affordable housing calculations and for parking districts. Ms. Clarke stated that the state

office and the Council of Governments are putting together a website with individual town

data regarding developable land.

Priority housing development zone means a zone adopted by a zoning commission

pursuant to this section and sections 9 and 10 of this act as an overlay to one or more existing

zones in an eligible location;

Ms. Clarke commented that the intent of this definition is to take away the 10% affordable

housing requirement created by 8-30g and put in place a required certain number of units

instead. She said similarly the state has incentivized the incorporation of this overlay zone by

allotting points towards moratorium. She also commented that this is an optional definition

the Commission can incorporate. She said it would make sense for the Commission to

incorporate this definition into the regulations even if they do not plan to use it immediately.

Middle Housing means duplexes, triplexes, quadplexes, townhouses, and cottage clusters

Chairman Woody stated that he would like to see the size of the housing defined like the

transit community middle housing development definition. Ms. Clarke said she would make

the adjustment.

Multifamily housing means a building that contains or will contain three or more residential

dwelling units;

Chairman Woody stated that Commission has struggled with the definition of multifamily

housing in the past and used the example of a duplex and a single-family house on the same

parcel and if that would be considered multifamily housing. He asked if the Public Act 25-1

would impact Ledyard’s current definition of multifamily housing. Ms. Clarke said she will

do additional research into that question and get back to the Subcommittee at the next

meeting with clarification.

Greyfield: defined as a previously developed commercial retail or office property that is

economically nonviable, underutilized, or obsolete, often featuring large, outdated asphalt

areas. Greyfield’s generally lack significant environmental contamination but suffer from

disinvestment, such as vacant malls or struggling strip centers (Source: Partnership from

Strong Communities)

Ms. Clarke said that this definition is not defined in the Connecticut General Statutes but it is

mentioned. She commented that the suggested definition was taken from Partnership for

Strong Communities. She commented that similarly to the brownfield program, there will be

state funding for a greyfield program for the rehabilitation and reutilization of buildings to

convert into residential and other mixed use development. Chairman Woody stated that he

can only think of one or two properties in Ledyard that would fit this definition. He

commented he would like to know more about this definition and if it only pertains to

buildings or a certain size. Ms. Burdick commented that the vacant Stonington Institute

building off of King’s Highway in Gales Ferry would fit this definition. Ms. Clarke said she

would see if the Department of Economic Community Development has published their

guidelines yet.

Ms. Clarke and the Subcommittee began discussion regarding required zoning regulation text

changes due by July 1, 2026, including the following:

HB Sections 16, 17, & 41: Summary Review (as-of-right) of Certain Housing

Developments

Note: This required regulation change will affect Chapter 6: Non-Residential Zoning District

Regulations.

· Zoning regulations adopted or amended pursuant to section 8-2, as amended by this

act,

o shall allow for the development of a transit community middle housing

development, as defined in section 11 of this act, or a mixed-use development,

on any lot that is zoned for commercial or mixed-use development, subject

only to summary review, as defined in section 8-2r, as amended by this act,

and

o may allow for the development of a transit community middle housing

development on any lot that allows for residential use subject only to such

summary review.

Allows ¼ credit toward housing affordable threshold for each middle housing unit

allowed in a transit community.

Once a municipality experiences an award of ‘credit’ moratorium, adopted a transit

community middle development a town cannot repeal or substantially modify a

middle housing development.

The Subcommittee and Ms. Clarke continued discussion of the differences between the

Regulation’s current definition of site plan review versus summary review. Chairman Woody

commented that be thinks the current regulations probably meet these requirements since

multifamily housing is all by right in the Ledyard Zoning Regulations. He said the

consideration for both the Subcommittee and the full Commission will be if they want to

separate multifamily housing into middle housing and housing greater than. The

Subcommittee members concurred with the decision to separate out the definition of

multifamily housing.

HB Section 18: Various Zoning Changes Required

Subsection (d) of section 8-2 of the general statutes is repealed and the following is

substituted in lieu thereof (Effective July 1, 2026). Zoning regulations shall not:

Manufactured Homes

Impose conditions substantially different from conditions and requirements imposed on

(A) single-family dwellings;

(B) lots containing single-family dwellings; or

developments or planned unit developments;

Ms. Clarke commented that upon initial review, it appears that Ledyard’s Zoning

Regulations meet this new requirement. She added that the Subcommittee may want to add

language regarding tiny homes and modular homes to the regulations. Chairman Woody

commented that in the past there was push back about allowing tiny homes through the

regulations but that the allowance of tiny homes will need to be called out specifically in the

regulations by the requirement of Public Act 25-1. The Subcommittee members concurred.

Ms. Burdick commented that the current language in the regulations regarding the

replacement of mobile manufactured homes is already unlawful and will need to be

amended. She summarized the section of the regulation and said that it essentially states that

a mobile home cannot be replaced unless it is in a mobile home park. She said that all mobile

manufactured homes. regardless of size, must be treated the same as new single-family

homes.

Minimum Floor Area

Establish for any dwelling unit a minimum floor area that is greater than the minimum floor

area set forth in the applicable building, housing or other code;

Chairman Woody commented that he doesn’t think the Regulation’s have any language

about minimum floor area at this time. He asked if minimum floor area would also apply to

apartments. Ms. Clarke said that the minimum area per unit cannot be greater than appliable

building and fire code. Ms. Burdick commented that she believes that building code only

requires a minimum of 7 feet in width. Ms. Clarke and the Subcommittee concurred that this

required change is not applicable as it is not currently included in the regulations.

Maximum Number of Units in Municipality

Place a fixed numerical or percentage cap on the number of dwelling units that constitute

multifamily housing over four units, middle housing or mixed-use development that may be

permitted in the municipality;

Ms. Clarke and the Subcommittee concurred that this change is not applicable as the current

Regulation’s do not contain language dictating a maximum number of units in the

municipality.

Minimum Parking for Residential Developments

Require a minimum number of off-street motor vehicle parking spaces for any residential

development except as provided in section 19 of this act; or

Note: Ledyard has already updated the zoning regulations to align with required changes to

parking per PA 25-01.

The Subcommittee and Ms. Clarke commented that the parking requirements have already

been completed by the Subcommittee earlier this year and a text amendment application has

already been received by the full Planning & Zoning Commission.

Design Regulations

Be applied to deny any land use application, including for any site plan approval, special

permit, special exception or other zoning approval, on the basis of

o a district's character, unless such character is expressly articulated in such

regulations by clear and explicit physical standards for site work and

structures, or

o the immutable characteristics, source of income or income level of any

applicant or end user, other than age or disability whenever age-restricted or

disability-restricted housing may be permitted.

Ms. Clarke commented that the current Regulations do not have any language about required

design characteristics but asked if the Commission wanted to add suggested design

guidelines in. Chairman Woody commented that suggesting or imposing design guidelines is

a slippery slope. He commented that the Commission would need to be fully cognizant that

the standards apply uniquely to each district, and any suggested design guidelines should try

to encompass pre-existing buildings. Ms. Clarke commented that in the Town of Salem they

are considering the addition of some design requirements for the conversion of commercial

buildings into residential. Chairman Woody replied that he doesn’t think the Planning &

Zoning Commission has the authority to apply design requirements to a conversion of a

commercial building into residential without also applying the same standards to new

residential construction. He commented that perhaps if the Commission wanted to

implement design requirements they be included with an overlay zone so that if developers

want to take advantage of the bonuses, they will have to adhere to certain design rules. Ms.

Clarke said she would do additional research and see what other communities are doing in

regard to design regulations.

HB Section 19 & 53 Minimum Parking Requirements

Note: The Town completed this update to the regulations earlier in 2026. The description

below is included for informational purposes.

Applications cannot be denied based upon parking.

Regulations may require minimum parking for developments of more than 16

units<file:///C:\Users\annaw\AppData\Local\Microsoft\Windows\INetCache\Content.

Outlook\NJHQ8HSZ\Memo%20Ledyard%20Zoning%20043026.docx> and subject

to a parking needs assessment, paid for by the applicant, that addresses:

(1) available existing public and private parking that may be used by residents

of the proposed development,

(2) public transportation options that may be used by residents of the

proposed development that mitigate the need for off-street parking,

(3) projected future needs for off-street parking for such proposed

development, and

(4) any relevant local traffic, parking or safety study.

Conditions may be imposed not exceeding;

1. One space per studio, one bedroom; two spaces for two or more bedrooms or

2. as developed by a parking needs assessment be paid for by the applicant.

Requirements of the assessment are identified in the statute.

Ms. Clarke said the Subcommittee has already addressed this through their text amendment

application regarding parking. She asked if the Subcommittee wanted to review required

changes with a multi-year timeline including Housing Growth Planning, formally known as

“Affordable Housing Plan” and Fair Rent Commissions. Chairman Woody replied that it is

outside the prevue of this Subcommittee to address those items as they have only been tasked

to handling regulation changes regarding Housing. Ms. Clarke asked if the Commission had

any additional comments or concerns. Chairman Woody stated that Subcommittee needs to

discuss priority housing zones. He asked that the members of the Subcommittee research

priority housing development zones and its potential benefits and plan to discuss them at

their next meeting. He asked if Ms. Clarke could do additional research into this for the

Subcommittee, she agreed. He commented he would like more clarification on the transit

community middle housing development as well. Ms. Clarke commented that she needs to

contact SCCOG and get more information but there is a potential that Ledyard could be a

transit adjacent community, meaning that if there is a bus or train station in Groton or on

Mashantucket land, it would count towards Ledyard’s credit.

The Subcommittee and staff briefly discussed scheduling their next meeting and meeting

room availability. The Subcommittee agreed to schedule a Planning & Zoning Subcommittee

on Housing Special Meeting to May 28, 2026 at 6:00 pm.

IV.

ADJOURNMENT

Chairman Woody stated that without objection the meeting is adjourned. The meeting was

adjourned at 6:54 p.m.

Respectfully submitted,