On the agenda: Jackson Regular Town Council Workshop — Flock Safety (Oct 19)

Regular Town Council Workshop
October 19, 2026
1:30 PM
Town Council Chambers
Chair: Arne Jorgensen
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I.

ZOOM LINK FOR PUBLIC PARTICIPATION
The Town reserves the right to close Public Comment via Zoom at any time. In-person comment will continue to be taken and
written comments can always be submitted to Town Council by emailing [email protected].

A.

II.

To join, click link or copy it to your
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Or join at zoom.com with Webinar ID: 894 1671 5626 and Password: 83001 or by phone: 669 444 9171

CALL TO ORDER AND ROLL CALL
A. Employee Introductions
1. Monica Lohn, Customer Services Specialist
2. Tait Myers, Street Operator & Utility Locator
3. Morgan Howerton, Transit System Supervisor & Dispatcher

III.

WORKSHOP ITEMS
A. Town Employee Housing Strategy (David Garcia, 90 mins)
B. Community Initiatives Process & Funding (Susan Scarlata, 45 mins)

IV.

MATTERS FROM MAYOR AND COUNCIL
A. Board and Commission Reports
B. Moose-Wilson Corridor Comprehensive Management Plan Record of Decision
Amendment

V.

UPCOMING AGENDA UPDATE
A. Town Council's Working Calendar 2026

VI.

ADJOURN

Please note that at any point during the meeting, the Mayor may change the order of items listed on this
agenda. In order to ensure that you are present at the time your item of interest is discussed, please join
the meeting at the beginning to hear any changes to the schedule or agenda.

Monica Lohn:
Originally from Chile, Monica has called Jackson Hole home for many years. She brings a diverse
background in public service, administration, aviation, and healthcare, most recently working
with Teton County Planning and Building. Guided by the Golden Rule, Monica is excited to
continue serving the community and helping others through her work with the Town.

Tait Myers
Tait is originally from Minnesota however he has been working seasonally in Jackson for the
past three summers. During that time he has developed a great appreciation for the community
of Jackson and is looking forward to helping serve the community that has become his home.
Tait is very excited to be joining the water and streets departments as utility locator and street
operator.
Morgan Howerton
Originally from Georgia, Morgan has just moved to Jackson to work at START after focusing on
domestic and international travel for the last few years. She last worked in Crested Butte,
Colorado for their public transportation system and recently completed her Master's in Parks,
Recreation, and Tourism Management. In her free time, she focuses on making stained glass,
riding motorcycles, and trying any and all new things

Meeting
Date:

October 19, 2026

Meeting Title:

Town Council Workshop

Submitting
Department:

Administration

Presenter:

David Garcia

Public
Comment:

Yes

Agenda Item:

Town Employee Housing
Assessment and Strategy

Purpose or Policy Considerations.
The purpose of this item is for Council to consider accepting the Town of Jackson Employee Housing Assessment
and Strategy.
The strategy and this staff report are meant to be read together. The strategy is the substance, the survey results, the
opportunities and challenges, and the five recommendations with their costs and timing. This report does not restate
it. Staff recommend Council read the strategy first, then return to the Analysis and Key Questions below, which
identify the five decisions staff believe Council will want to work through and where staff's recommendation on each
one sits.

Recommendations.
Staff recommends that Council accept the Employee Housing Assessment and Strategy as presented.
Acceptance means Council accepts the strategy as the Town's guiding framework for employee housing. It does
not approve the individual recommendations within the strategy — each of those returns to Council for
separate action and funding consideration.

Background.
Housing that employees can afford is a critical factor in the Town’s ability to recruit and retain the people who
deliver municipal services. The strategy is a practical, ten-year plan to help Town employees find stable, quality
homes in Teton County, built on what employees say they need and on what the Town can realistically do. It
completes the project that began with the goal and objectives Council directed staff to incorporate on May 18,
2026. Those objectives are:
•
•
•
•
•
•

Location. Prioritize suitable housing opportunities in Teton County, Wyoming, to foster community and
enable rapid response when needed by having Town employees live where they work.
Rent / Own. Develop a mix of rental and ownership opportunities to meet the diverse needs of
employees and provide flexibility to move between units as life conditions change.
Type of units. Secure a mix of housing types — townhomes, apartments, duplexes, single-family homes,
and others — at different price points and bedroom sizes to accommodate various household makeups.
Affordability. Set rents and purchase prices at levels employees are comfortable paying, so employees
can live here and thrive.
Number of units. Secure housing for 70% of full-time Town employees and 100% of seasonal Town
employees, and consider housing assistance to ensure housing stability for all employees.
Occupant selection. Begin by prioritizing critical service providers and hard-to-fill positions, through a
transparent selection process, recognizing that all employees are important and that inventory will be
limited.

Staff Report
Page 2 of 8

•

•

Suitability. Invest in quality units that meet employees' livability standards, including sufficient
bedrooms and bathrooms, good sound separation, adequate storage and parking, and the ability to
have pets.
Stewardship. Adequately support funding and capacity to properly maintain housing units.

The strategy as funded meets several of these objectives but does not reach the 70% target. Analysis below
addresses that gap.
The strategy is separate from the Town’s community housing work through the Jackson/Teton County Housing
Department. Acceptance sets direction but does not appropriate funds. The strategy depends on three later
decisions: creating a Housing Manager position in the FY2028 budget, a 2028 SPET dedicated to employee
housing, and a standing General Fund commitment beginning in FY2030. Navigate LLC, the Town’s consultant for
the project will present the strategy and lead the discussion with Council.
The strategy was crafted with direction from employees, following initial policy direction from the Town Council.
Four sources of information shaped it:
1. Employee survey. A confidential survey ran April 6 through 20, 2026. Eighty-nine of the Town’s 176
employees responded, a 51% response rate.
2. Interviews. Navigate interviewed the Mayor and every Councilor in February 2026, and eleven
Department Directors and Administrators in March 2026.
3. Working Group. Ten employees with a range of housing and work experiences met with Navigate three
times to review and shape each phase. No supervisors were included, so employees could speak candidly.
4. Research. Navigate reviewed the Town’s unit inventory and leases, Employee Housing Fund financials,
Town-owned land, the compensation structure, and the programs of the Housing Department, the
Housing Trust, and Habitat for Humanity, amongst other sources.
This meeting is the last step in the process. The timeline is below:
Jan – Feb

Feb – Apr

Mar – May

May – Jun

Jun – Jul

Aug – Oct

Project Initiation

Goals &
Objectives

Housing Needs

Opps &
Challenges

Options &
Prioritize

Approval & Final
Strategy

• Kick-off
• Info gathering
• Senior Staff
meeting
• Working
Group
established

• Employee
• Council
Survey
• Data collection • Strategy
• Town Council
Interviews
&
review
Options
Meeting
• Dept Director
• Working
Interviews
• Housing
• Prioritization
• Draft / Final
Group meeting • Research
support tool
exercise
Employee
analysis
Housing
• Town Council
• Working
• Working
Strategy
Meeting
Group
meeting
Group meeting
• Dept Director
Update

The Strategy: Five Recommendations.
The strategy document begins with the survey results, painting the picture of the Town’s workforce housing
needs. Next, it explores Opportunities and Challenges facing the Town, providing background on key housing

Staff Report
Page 3 of 8

topics that lay the groundwork for the Recommendations. The five recommendations run at the same time,
drawing on different sources of money, relying on different people, and serving different employee needs.
Cost

New
placements

Consider a Housing Manager in FY2028, reporting to
the Deputy Town Manager, through the regular
budget process. Contract day-to-day property
management. Establish a Housing Committee.

Operating
cost, about
$160,000/year

—

Emergency Housing Fund open to all employees.
Written policies on bus passes, Town vehicles, eB. Provide housing
bikes, flexible schedules, and remote work. No new
support
stipend program; phase out the police stipend to
address equity concerns.

$50,000

—

$1,000,000

—

$5,300,000

13

$22,500,000

24

$28,850,000

37

Recommendation

What it does

A. Increase
capacity

C. Optimize the
existing program

Assess and grade the 17 older Town-owned units,
invest $1,000,000 in deferred maintenance, adjust
rents for condition and size from July 1, 2027, publish
the selection process, and set a three-month limit on
holding a unit vacant.

Down payment assistance, a small, shared
D. Help employees appreciation mortgage program, and rights of
purchase
purchase. Employees join the community housing
lists at onboarding.
E. Expand Townowned inventory

Three single-family homes at Flat Creek Drive, about
12 units at the START facility (mostly seasonal), three
existing homes bought to rent to employees, and the
six Nelson Drive rights of rental.

Total

New placements: 29 year-round and 8 seasonal. Source: Employee Housing Assessment and Strategy,
Recommendations, Timing and Funding.

Analysis & Key Questions.
Staff expects Council to want to discuss the five questions below.
1. Does the plan fulfill the Objective to secure housing for 70% of year-round employees and 100% of seasonal
employees?
For year-round employees, no. The funded plan adds 29 year-round placements. Over the same period, staff
growth of 2% a year and an estimated 40% of the 27 employees who own a market home in the valley retiring or
leaving the Town raise the number of units the Town needs. The plan results in housing 53% of year-round
employees in FY2035, roughly where the Town is today. Putting every new employee on the community housing
lists at onboarding lifts FY2035 to about 58%.
Reaching 70% in FY2035 takes about 22 more placements, and roughly $17 million in additional funding at the
plan’s blended cost of $779,730 a placement. That is about $2 million a year beyond the 2028 SPET and General
Fund commitment outlined in the plan. No source has been identified for these additional funds. Most of the
challenge is keeping pace: with flat headcount and no retirements, the same plan would reach 68%, or 74% with
employees accessing community housing programs.

Staff Report
Page 4 of 8

For seasonal employees, yes. Reserving 400 W. Snow King for seasonal use provides 14 units, and the START
facility adds 8 more, for 22 dedicated seasonal units. That depends on the START facility, which is a long-term
project that relies on the 2028 SPET.
The strategy recommends measuring rather than modeling. The growth and retirement rates are estimates, so
the Housing Manager would report annually and repeat the employee survey every two years.
It is also candid about its limits. On its own, the funded plan does not reach the Council’s 70% target, and the
report says what it would take to close that gap.
Key Question 1: Is Council comfortable accepting a strategy that funds meaningful progress but does not, on
identified funding, reach the 70% goal? How does Council want to approach the remaining gap of about $17
million?
2. Do we focus on quality or quantity?
The strategy comes down on the side of quality. As one employee put it, “what do employees want in housing?
It’s simple: we want what you want.” By way of example: the Working Group saw three concepts modeled on
the same one-third-acre Town-owned parcel: three single-family homes (about 1,800 square feet, three
bedrooms, two-car garage), eight two-bedroom townhomes (about 1,200 square feet), and twelve one- and
two-bedroom condominiums (500 to 900 square feet, one covered space). The group strongly supported the
single-family homes, supported the townhomes, and did not support the condominiums.
Quality costs more per home. The three Flat Creek Drive homes proposed are budgeted at about $1,170,000
each and may mean building below the maximum density zoning allows. The case for it is the match to what
employees want. Only 10% of existing Town units have three bedrooms, while 54% of employees who want to
rent want that size. A home an employee will not stay in does not produce the return the Town is investing for,
which is retention. Durable, energy-efficient construction also costs less to operate over the decades the Town
will own the homes, and it supports the Town’s net zero goal.
This is not a rejection of small homes. The START facility and 400 W Snow King Ave and other locations are
where one-bedroom and seasonal units fit and can be considered.
Key Question 2: Does Council endorse quality as the design standard for Town-developed employee housing,
accepting fewer homes per dollar in exchange for homes employees will stay in?
3. Why create a new position before any homes are built?
The Housing Manager is the foundation of the strategy. Employee housing work now is spread across Internal
Services, Legal, Facilities, Finance, and the Town Manager’s office, and no position carries it as a primary
responsibility. Every other recommendation in the strategy assigns work to the new position. Another approach
would be to clearly assign the identified tasks to existing positions, through reassignment with clear
accountability for tasks from the Deputy Town Manager or other senior level position.
The cost is modest compared to the program. For example the position could be budgeted at the Grade 7
midpoint, about $160,000/year (salary and benefits). Over eight years that is roughly $1.3 million, or about 4%
of the $28.85 million the position would help deliver. The strategy suggests funding it from the Employee
Housing Fund, in part by reducing the annual General Fund transfer out of the fund to compensate participating
departments to reflect work the position takes on. Town-owned residential units are not exempt from property
tax, the exemption applies only to government buildings, so property tax is an ongoing cost against rental revenue,
and rent alone does not cover the position.
The position does not delay homes. Six placements arrive in FY2027 from the Nelson Drive commitment already
made, and design work on Flat Creek Drive begins in FY2028. Year 1 includes no construction by design. It is
policy and communication work that employees will notice first, and the Deputy Town Manager and Internal
Services carry it before the position exists.

Staff Report
Page 5 of 8

Key Question 3: Does Council support staff bringing forward a Housing Manager position for consideration in
the FY2028 budget process?
Staff recommend Council consider the position in FY2028. If rental revenue does not fully cover the cost, the
balance would come from the General Fund. Any decision on the position itself would occur through the
regular budget process.
4. Why does the strategy recommend against stipends?
Employees want them. Sixty-eight percent of survey respondents support stipends, the most requested form of
housing support.
The strategy recommends no new ongoing stipend program, mainly because of opportunity cost. An illustrative
stipend of $1,500 per employee per month for about 150 year-round employees would cost roughly $2.7 million
a year, or more than $27 million over ten years recommended, with nothing owned at the end. The same money
invested each year would buy roughly two to three homes or five rights of purchase. A stipend also relies
entirely on the existing market, does not add any homes, and does not provide stability the way a secured unit
does.
Instead, the strategy offers support to every employee: an Emergency Housing Fund, no-cost START bus passes,
clear vehicle policies, flexible schedules, and remote work by position. It also recommends meaningful additions
to the Town’s rental inventory. While commitments to current officers would be honored, the strategy
recommends phasing out the Town’s one stipend, $500 a month for sworn patrol officers in their first two
years. Six of eleven Department Directors raised the fairness of that stipend unprompted. The department has
stabilized after a pay adjustment, and a proposed Housing Department rules update would give first responders
preference for deed-restricted homes.
Employees asked the Town to revisit stipends if it is not investing a comparable amount in homes it builds or
buys; this is noted in the report.
Key Question 4: Does Council agree not to create a new stipend program and to phase out the police stipend,
in favor of homes and support available to every employee?
5. Is Council prepared to commit to the funding the plan depends on?
Of the $29.0 million identified, $13.0 million is in hand: about $3.0 million in the Employee Housing Fund and
$10.0 million from the 2022 SPET. The other $16.0 million requires future action: a 2028 SPET of about $10.0
million, which voters would decide, likely in November 2028, and a General Fund commitment of $1.0 million a
year from FY2030. If the 2028 SPET does not pass, the START facility and most later purchases would need to be
revisited.
A fifth cent of general sales tax is under discussion but is not assumed anywhere in the plan.
Key Question 5: Is Council prepared to plan now for a 2028 SPET with language that allows ownership, and to
consider $1.0 million a year from the General Fund beginning in FY2030?
Key Question 6: Does Council support the five recommendations as the Town's implementation approach for
employee housing?
Next steps: If Council accepts the strategy, staff would return at a future meeting with a resolution adopting the
eight objectives and the five recommendations, reflecting any changes Council directs at this meeting. The
resolution is the formal adoption step; acceptance tonight sets direction and allows staff to begin the work
described under Staff Impact.

Staff Report
Page 6 of 8

Possible Alternatives.
Alternative 1: Accept the Strategy as amended by Council during discussion.
Alternative 2: Take no action. The Town could continue managing employee housing as it does today, with the
work distributed across Internal Services, Legal, Facilities, Finance, and the Town Manager's office and no
position carrying it as a primary responsibility. The share of employees housed would likely decline from the
current 53% as staff grows and employees who own market homes retire or leave. The 2022 SPET funds would
remain available but without a strategy directing their use.

Comprehensive Plan & Priority Alignment.
This item directly advances two Comprehensive Plan priorities:
- Chapter 3. Responsible Growth Management - Direct at least 60% of future growth into Complete
Neighborhoods to preserve habitat, scenery and open space and provide workforce housing opportunities.
- Chapter 5. Local Workforce Housing - Ensure a variety of workforce housing opportunities exist so that at least
65% of those employed locally also live locally. That's the community-wide target, not the Town's 70% employee
housing objective.
This item also aligns with Council's 2026 Guiding Principles derived from this year’s retreat, “Continuing to Work
on Housing and Transportation.”

Fiscal Impact.
Plan development: $34,000 contract with Navigate, LLC.
Adopting the strategy: The strategy commits $28.85 million over FY2027 through FY2035 against $29.0 million of
identified investment. About $4.0 million of that, the Nelson Drive rights of rental, is already committed, so
roughly $24.85 million would be new allocations. The condition assessment of the 17 scattered-site units fits
within the FY2027 budget. Everything else would be brought to Council through the budget process or the
ballot.
Source

Amount Status
Existing. Projected FY2027 ending
balance is about $2.93 million.

Timing

Employee Housing Fund

$3,000,000

FY2027

2022 SPET

Voter-approved. Limited to rental
$10,000,000 housing and land. $4.05 million
committed to Nelson Drive.

2028 SPET

$10,000,000

Recommended. Requires Council ballot
language and voter approval.

$5 million each in
FY2030 and FY2031

General Fund investment

$6,000,000

Recommended. $1 million a year,
reviewed every two years.

FY2030 through
FY2035

Total identified

$29,000,000 Committed in the plan: $28,850,000

Full amount
expected by June
30, 2028

• The first three years use money the Town has. Spending through FY2029 is $12.85 million against $13.0
million on hand. The remaining $16.0 million of spending, in FY2030 and after, depends on the $16.0
million of new sources.
• Not in the capital schedule: operating cost. The Housing Manager is about $160,000 a year, roughly $1.3
million over FY2028 through FY2035. A property manager is carried at a placeholder of about $60,000 a

Staff Report
Page 7 of 8

year (8% of rent) until quotes are obtained. Reducing the General Fund transfer after the position is
created saves about $37,000 a year. Whether rent covers these costs depends on property tax treatment
of Town-owned units and on repair spending returning to a normal level. Staff will confirm the tax
treatment before the FY2028 budget.
• Employee Housing Fund health. The Fund ran a deficit of $221,073 in FY2026, driven by a $ 231,375 rights
purchase and repairs of $544,173, more than double the prior year. The FY2027 adopted repair budget is
$301,673. The $1,000,000 catch-up is meant to bring spending back to a sustainable level.
• The gap to reach the 70% objective is unfunded. Closing it would take about $17 million, or about $2
million a year, with no identified source.

Staff Impact.
To date: 80 hours across multiple departments.
Implementation going forward: The Housing Manager absorbs most of the recurring work. What falls on other
staff is concentrated in Year 1 (FY2027), before the position exists, and is largely one-time policy and document
work. Hours below are from the strategy’s capacity analysis.
Period

Year 1 (FY2027)

Ongoing, from FY2028

FY2028 – FY2031

Projects

Who

Work and estimated hours

Deputy Town Manager, Internal
Services, Legal, External Affairs,
Facilities

About 140 hours: 40 to draft and adopt
housing support policies (with Legal review);
40 to scope the condition assessment
(Facilities coordinates access); 60 for the
selection process, inventory document, and
rents.
Internal Services adds community housing
list registration at onboarding.

Deputy Town Manager; Housing
Committee members

8 hours a month for the Deputy Town
Manager; 2 hours a month per Housing
Committee member (Internal Services,
Legal, Finance, Public Works, employee
representatives).

Housing Manager

Named tasks: 1,593 hours in FY2028 (89% of
a full-time position), 1,368 in FY2029 (76%),
1,313 in FY2030 (73%), and 823 in FY2031
(46%).
This does not include the annual report, the
biennial survey, or employee questions.

Planning, Legal, Administration,
Housing Manager

Flat Creek Drive: about 25 hours a week of
Town staff time for roughly three years,
carried mostly by the owner’s
representative, with the Housing Manager
managing the contract.
Planning: 60 hours for the Town-owned sites
inventory. 2028 SPET scoping: 100 hours in
FY2028. Legal: loan documents, rights
agreements, and closings.

Staff Report
Page 8 of 8

Period
Contracted

Who

Work and estimated hours

Outside firms

Property manager, third-party home
inspector, real estate agent, and owner’s
representative with design and construction
team.

Attachments or Links.
Town of Jackson Employee Housing Assessment and Strategy (Navigate, September 2026).

Suggested Motion.
I move to accept the Employee Housing Strategy as presented.

TOWN OF JACKSON, WYOMING

Employee Housing
Assessment and Strategy
September 2026

Prepared by

NAVIGATE
Community Housing Solutions

Page 1

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Table of Contents
1. Executive Summary .............................................................................................................................................6
Overview ................................................................................................................................................................6
What we recommend..........................................................................................................................................6
10 years: progress towards goal, and cost ........................................................................................................7
2. Purpose ..................................................................................................................................................................7
3. Goal and Objectives............................................................................................................................................8
Goal ........................................................................................................................................................................8
Objectives..............................................................................................................................................................8
4. Housing Needs ....................................................................................................................................................10
Employee Demographics ..................................................................................................................................10
Number and Position ......................................................................................................................................10
Years Employed...............................................................................................................................................11
Unfilled Jobs and Turnover .............................................................................................................................12
Difficulty Recruiting and Retaining................................................................................................................14
Retiring Employees ..........................................................................................................................................14
Employee Household Characteristics and Housing Situation .......................................................................15
Household Size .................................................................................................................................................15
Tenure and Stability ........................................................................................................................................16
Housing Location ................................................................................................................................................19
Where Employees Live ...................................................................................................................................19
Where Employees Would Prefer to Live .......................................................................................................19
Housing Satisfaction ...........................................................................................................................................20
Town of Jackson Provided Housing ..............................................................................................................23
Housing Affordability ..........................................................................................................................................24
Household Income ..........................................................................................................................................25
Affordability of Current Housing ....................................................................................................................26
What Employees Pay ......................................................................................................................................27
Rents Compared .............................................................................................................................................30
The Cost of Ownership ...................................................................................................................................30
Housing Preferences ...........................................................................................................................................32
Town Housing Support ....................................................................................................................................32
Size of Home ....................................................................................................................................................34
Features ............................................................................................................................................................36
Seasonal Employees...........................................................................................................................................37
5. Opportunities and Challenges ..........................................................................................................................39
Page 2

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Employee Housing Inventory .............................................................................................................................39
Town-Owned Units ..........................................................................................................................................40
Master-Leased Units ........................................................................................................................................42
Winter Seasonal Beds .....................................................................................................................................43
Master Leases as a Tool ..................................................................................................................................43
Rights of Rental ................................................................................................................................................43
Rights of Purchase ...........................................................................................................................................44
Rental Rates ........................................................................................................................................................46
Selection Process ................................................................................................................................................47
Management and Capacity ............................................................................................................................48
Maintenance ......................................................................................................................................................48
Housing Support ..................................................................................................................................................49
Stipends ............................................................................................................................................................49
Emergency Housing Fund ..............................................................................................................................50
Shared Appreciation Mortgage ...................................................................................................................50
Down Payment Assistance ............................................................................................................................51
Indirect Assistance ..........................................................................................................................................51
Purchasing an existing market unit ...............................................................................................................52
Purchasing a deed-restricted Workforce unit to rent to employees ........................................................52
Housing Organizations and Community Housing ...........................................................................................53
Town-Owned Land .............................................................................................................................................54
400 W. Snow King Avenue: aim for use across both seasons ....................................................................55
Other Town Goals ...............................................................................................................................................55
What It Costs the Town to Secure a Home ......................................................................................................55
The capital gap ...............................................................................................................................................55
Funding for Employee Housing .........................................................................................................................57
The Employee Housing Fund..........................................................................................................................58
Can rent revenue fund the Housing Manager? .........................................................................................58
Sources not yet in use .....................................................................................................................................59
6. Recommendations, Timing and Funding .........................................................................................................60
Implementation Timeline ...................................................................................................................................61
Amount to Invest Over Time ..............................................................................................................................62
Recommendations .............................................................................................................................................63
A. Increase Capacity .........................................................................................................................................64
Housing Manager ...........................................................................................................................................64
Third-party property management ...............................................................................................................65
B. Provide Housing Support................................................................................................................................65
Page 3

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Address equity .................................................................................................................................................65
Recommendations .........................................................................................................................................66
C. Optimize Existing Housing Program ..............................................................................................................66
Update the Town housing stock ....................................................................................................................67
Optimize the existing inventory .....................................................................................................................68
Clarify and communicate the selection process .......................................................................................69
Adjust rental rates ...........................................................................................................................................69
D. Help Employees Purchase ............................................................................................................................70
E. Expand Inventory of Town-Owned Employee Housing .............................................................................71
Develop on Town-owned vacant land ........................................................................................................71
Build housing into other Town capital projects............................................................................................74
Purchase existing inventory ...........................................................................................................................75
Rights to rent ....................................................................................................................................................76
Capacity Summary ............................................................................................................................................76
Housing Manager workload ..........................................................................................................................77
Reporting on progress ....................................................................................................................................78
Analysis & Conclusion.........................................................................................................................................78
Does the strategy reach 70% of full-time employees housed locally?.....................................................78
Does the strategy reach 100% of seasonal employees housed locally? .................................................80
Conclusion .......................................................................................................................................................80
7. Study Methodology, Data Sources, and Acknowledgements .....................................................................81
Primary Research ................................................................................................................................................81
Town of Jackson Employee Housing Survey ................................................................................................81
Interviews .........................................................................................................................................................81
Working Group ................................................................................................................................................81
Secondary Data .................................................................................................................................................81
Acknowledgements ...........................................................................................................................................82
Appendix A. Summary of Town Housing program .............................................................................................83
Appendix B. Town of Jackson Employee Housing Inventory ............................................................................84
Town-Owned Units, Town Preference ..............................................................................................................84
Master-Leased Units............................................................................................................................................85
Winter Seasonal Beds, 2026 to 2027 Season ....................................................................................................85
Appendix C. Condition Assessment System ........................................................................................................86
A through F Grading Rubric...............................................................................................................................86
Scoring Method ..................................................................................................................................................86
Rent Position by Grade ......................................................................................................................................86
Appendix D. Town of Jackson Headcount by Department .............................................................................88
Page 4

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Page 5

Town of Jackson Employee Housing Strategy

DRAFT September 2026

1. Executive Summary
The Town of Jackson set out to answer an important question: what will it take for the people employed
by the Town to have a stable, quality home they can afford in the community they serve? This strategy
aims to answer that question, and was built with Town employees rather than for them. Eighty-nine of
the Town’s 176 employees completed the housing survey, a ten-member employee Working Group
shaped the recommendations, and the Mayor, every Councilor, and every Department Director was
interviewed.
One fundamental premise must be stated up front: the Town cannot pay wages at a level that would
allow employees to buy a home on the open market in Teton County, Wyoming. That is why this
program exists, and why the answer to the Town’s question is a program funded every year, rather than
a single project.

Overview
• 52% of year-round employees (79 households) are in stable housing 1 in Teton County today. The
Council’s goal is 70% (106 households), a gap of 27 households.
• Existing inventory does not match the need. 61% of the units available to Town employees are
studios or one-bedrooms, but only 24% of employees who want to rent want one. 10% of existing
units have three bedrooms, and 54% want three bedrooms.
• No one owns the program. Housing work is spread across Internal Services, Legal, Facilities, Finance,
and the Town Manager’s office, and no position carries it as a primary responsibility.
• Employees are not asking for much. 63% are comfortable paying what they pay today or less. What
they notice is fairness: six of eleven Department Directors raised the issue of equity in Town-provided
housing support, unprompted.
• The target will consistently move. Utilizing assumptions of staff growing 2% a year from FY2028, and
40% of the 27 employees who own a market home in the valley retiring or leaving within ten years,
reaching 70% by the end of the 10-year time horizon of the plan (FY 2035) means 124 households in
stable housing, not 106.

What we recommend
• Increase capacity. Hire a Housing Manager in FY2028, reporting to the Deputy Town Manager, and
contract day-to-day property management. The Housing Manager is what turns this strategy into
progress. Without that position, no Town housing program is likely to move meaningfully toward 70%.
• Provide housing support that reaches every employee. Establish an Emergency Housing Fund open
to everyone, and put commuter-focused support--bus passes, Town-owned vehicle use, flexible
schedules, and remote work--into written, Town-wide policy available by position. Housing stipends
are not recommended.
• Improve the homes the Town already owns. Assess the 17 older scattered-site units in Year 1 and
invest $1,000,000 in Year 2 to bring them to good condition. Adjust rents for condition and size from
July 1, 2027. Set a three-month limit on holding a unit vacant for a new hire, and review leases and
rents at each annual inspection.
• Help employees purchase, starting with the Rights of Purchase the Town already holds. Four rights at
Kelly Place have never been used, and most of the eight at S4 Flats are not expected to be, largely
because of unit sales prices. Offer down payment assistance from FY2028 and announce it with
these rights so employees can afford to use them. Put information on the community housing
1 Defined as market ownership, below-market ownership or rental, or Town-owned rental. Does not include Town

master leases, as the Town does not control renewal.
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programs into onboarding and performance reviews. Keep buying rights of purchase on
negotiated terms, and offer a small shared appreciation mortgage program.
• Expand the inventory the Town owns. Construct three single-family homes at Flat Creek Drive,
roughly 12 units at the START facility, most of them for seasonal employees, and purchase three
existing homes to rent to employees. With the six Nelson Drive Rights of First Rental, this
recommendation alone adds 24 placements 2.

10 years: progress towards goal, and cost
The plan in numbers
$29,000,000 identified (revenue)

$28,850,000 (expenses)

Placements added

37: 29 year-round, 8 seasonal

Year-round employees in stable housing, FY2035, funded plan

53%

With every new employee registered on the community housing lists

58%

Additional placements to reach 70% in FY2035

About 22, roughly $17,000,000

Two fundamental assumptions define the outcomes: 1) a ten-year implementation horizon for the plan
(2026-2035)3, and 2) identifiable potential funding sources totaling $29,000,000.
The funded plan would fill the gap between the Town’s goal (70% of employees in stable housing in
Teton County) and current state (52%) by adding 29 year-round placements. When staff growth and
retirements are factored in, however, the gap widens, and an additional ~20 placements beyond what
is budgeted for in the plan will be required. An estimated additional $17,000,000 would need to be
located over the next 10 years to reach the 70% goal. Funding sources for this $17,000,000 have not
been identified.

2. Purpose
The Town of Jackson recognizes that housing employees can afford is a critical factor in its ability to
recruit and retain a viable workforce. The purpose of this strategy is to set out a practical plan to help
meet the housing needs of Town employees, grounded in what those employees actually need and in
what the organization can realistically do. How the assessment was conducted is described under Study
Methodology at the end of this report.
Housing costs in Jackson and the surrounding region sit far above national averages. Buying a home on
the open market is out of reach for nearly every Town employee, and renting on the open market takes
more than most employees say they can comfortably pay. That is the environment this strategy works in.
One distinction matters throughout this report. This is a strategy for Town of Jackson employees. It is not
the Town’s community housing program. The Town invests substantially in community housing through
the Jackson/Teton County Housing Department, through housing mitigation, and through density
bonuses in exchange for Workforce units, and those investments serve the wider local workforce. Where
the two intersect, this report says so plainly. But the goal here is narrower and more specific: housing the
people the Town employs.

2 Placement refers to securing housing for an employee. It may be in a unit the Town owns and rents, or in a market

or below-market ownership or rental that the Town helped an employee secure.
3 10 years was the time horizon set out in the initial scope of work. Less than 10 does not provide enough time to
make meaningful progress; funding becomes more speculative after 10, as both costs and revenues are more
difficult to predict.
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3. Goal and Objectives
The Goal and Objectives below are the policy level framework for this strategy. They set what the Town
is trying to achieve and for whom. They were drafted from individual interviews with the Mayor and
each Town Councilor, refined by the employee Working Group, and brought back to the Town Council.
At its workshop on May 18, 2026, the Council voted unanimously to direct staff to incorporate the Goal
and Objectives as presented into the Employee Housing Strategy.
The Working Group wanted the Goal to be inspirational and forward looking. The Town has a
Comprehensive Plan goal of housing 65% of the local workforce locally and has been falling short of it,
and the Working Group felt strongly that the Town should lead by example.

Goal
GOAL

Be a leader in providing employee housing by strategically investing in a practical supply of stable,
affordable housing options that meet the needs of employees and enables the Town of Jackson to
recruit and retain qualified individuals, effectively provide municipal services, and maintain a good
workplace culture.

Being a leader in employee housing is more than adopting a set of strategies. It is investing every year
toward the housing goal rather than in bursts. It is providing quality homes that match what employees
say they need. It is listening honestly to what it costs employees to live in an expensive tourist town. It is
investing so that one dollar serves more than one purpose: housing and sustainability together. It is
maintaining units in a way that respects the people living in them. And it is making sure the Town can
hold onto a workforce capable of delivering essential services.

Objectives
• Location. Prioritize suitable housing opportunities in Teton County, Wyoming.
◦ To foster community and enable rapid response when needed by having town employees live
where they work.
• Rent / Own. Develop a mix of rental and ownership opportunities.
◦ To meet the diverse needs of employees and provide flexibility to move between units to meet
changing life conditions.
• Type of units. Secure a mix of housing types.
◦ To accommodate various household makeups, include townhomes, apartments, duplexes,
single-family homes, and others at different price points and bedroom sizes.
• Affordability. Set rents and establish purchase prices at levels that employees are comfortable
paying.
◦ To enable employees to live here and thrive.
• Number of units. Secure housing units for 70% of full-time town employees and 100% of seasonal
town employees.
◦ Consider also providing housing assistance to assure housing stability for all employees.
• Occupant selection. Begin by prioritizing critical service providers and hard to fill positions.
◦ Ensure a transparent selection process.
◦ Recognize that all employees are important and that inventory will be limited.
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• Suitability. Invest in quality units that meet the livability standards of employees.
◦ Include sufficient number of bedrooms and bathrooms, good sound separation, adequate
storage and parking, and ability to have pets.
• Stewardship. Adequately support funding and capacity to properly maintain housing units.
Two of these objectives deserve a note on how they are applied in this strategy.
Number of units. The 70% target is measured as 70% of the Town’s year-round employees living in Teton
County, Wyoming in stable housing. Stable housing includes market ownership, deed-restricted
ownership or rental (through a Town right or through the housing organizations’ lists), Town-owned units,
and homes bought with a Town shared appreciation mortgage. It is not limited to units the Town owns.
The remaining 30% of the Town workforce is anticipated to live in market rentals, or to own or rent homes
outside the valley. Seasonal and variable hour employees are treated separately: the target for that
group is 100% housed in Town-owned or Town-leased beds, because without housing the Town has not
been able to hire for these positions.
Master-leased units are not counted as stable housing. The Town leases these homes from private
owners and subleases them to employees. The primary leases between the Town and the owner are
typically short (1 year), are not within the Town’s control to renew, and when they end, employees have
to move. They are a useful tool for placing someone quickly, but do not provide a stable home;
counting them as such would overstate how far along the Town is.
One caution about the word stable. An employee in a Town-owned unit counts toward the target, but
may not experience the unit as stable, because occupancy depends on staying employed by the
Town. Adding ownership paths alongside rental ones is how this strategy narrows that distance. Progress
should be measured through an Employee Housing Survey repeated every two years, since it would be
difficult for the Town to see household composition, household income, or where employees live without
it.
Rent / Own. The objective deliberately does not fix a ratio. The Town of Jackson cannot pay wages that
would let an employee buy a home on the open market in Teton County, Wyoming. Ownership for
Town employees therefore depends on three things the Town can influence, but not totally control:
deed-restricted homes getting built, down payment assistance that can help employees consider
ownership, and access to deed-restricted units through Rights of Purchase as they become available.
The rental share of the Town’s inventory will run higher than local, state, or federal norms, because rental
units give the Town more security as an employer and because rentals are what the Town can deliver
quickly. Employee demand for ownership is strong today, and some of that demand reflects the
condition of the current rental stock. As Town-owned rentals improve and better match what
employees need, the demand for ownership may decrease. Where the mix lands over the life of this
strategy is shown in the Recommendations section.

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4. Housing Needs
This section describes the housing needs and preferences of Town of Jackson employees. It covers:
• Current and projected workforce numbers, and anticipated turnover.
• The housing employees live in today, where it is, and whether they consider it stable.
• Household income compared to housing costs.
• How satisfied employees are with their housing, and why not when they are not.
• What housing and housing support employee households say they need to keep working for the
Town.
Together this describes the organization’s housing needs, employee demand for specific kinds of
support, and the gaps between the Town’s existing inventory and what employees need.

Employee Demographics
Understanding who works for the Town, as well as positions across departments, is the starting point for
this strategy. This report includes employees of the Town of Jackson and of START, the joint regional
transit authority the Town manages. It does not include contract positions such as the Municipal Judge
unless the person is directly employed by the Town.

Number and Position
The Town of Jackson employs 176 people across ten departments. Two departments make up the
majority of the workforce: Police (51 employees, 29%) and START (55 employees, 31%). Together those
two account for six in ten Town employees. The remaining eight departments are each considerably
smaller, none with more than 37 employees. Headcount by department is in Appendix D.

Figure 1. Town of Jackson employees by department, full-time and variable hour. Based on 176 employees as of January 26, 2026.

START is the only department with a meaningful share of variable hour positions, roughly 25 seasonal
transit operators, ranging from about 15 in the shoulder seasons up to 35 during the busy winter season.
In general, full-time employees hold year-round positions and variable hour employees are seasonal
transit drivers, though there are exceptions in both directions. A small number of variable hour positions
exist in Police and Public Works, and some START staff work full-time, year-round schedules.
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Police, START, and Public Works together employ eight in ten Town employees.
Of the 176 Town employees, 89 completed the employee housing survey (51%). That is a strong
response for an employee survey and gives this analysis a solid, representative base to draw from.

Years Employed
Among year-round survey respondents, more than a third (36%) have worked for the Town for 10 years
or more, and another 41% have been here more than three years. Only 22% are newer employees with
two years or less on the job. This is a workforce with tenure.

Figure 2. Years employed at the Town of Jackson, year-round employees.4

Employees were also asked how much longer they plan to keep working for the Town, and the answers
are striking: 49% of year-round respondents plan to stay 10 or more additional years, and another 19%
plan to stay six to nine more years. Fewer than one in eight plan to leave within two years.

4 Fractional percentages have been rounded; totals may add to 99%, not 100%.

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Figure 3. Years employees plan to continue working at the Town of Jackson.

Read together, these two charts describe an employee base that wants to stay. This changes the
housing conversation. This is not primarily a strategy for attracting people who might leave in a year. It is
a strategy for giving people who intend to build a career at the Town a stable, affordable place to live
while they do it. Housing that supports long tenure, flexible enough for a household to move between
rental and ownership as life changes over 10, 15, or 20 years, will serve this workforce better than
housing designed around short-term turnover. The three to six year mark stands out in particular. That is
when employees are actively trying to establish long-term housing, and it is the window in which the
Town’s support makes the most difference.

Unfilled Jobs and Turnover
A snapshot of Town job postings from January 2026 shows nine vacant, funded positions out of 176,
about a 5% vacancy rate. That is not a high number, and it is not spread evenly: it concentrates in
Transit and Public Works, with one opening each in Information Technology and Police. Department
Directors described the same picture. Across 11 interviews, most departments reported few or no fulltime, year-round vacancies, and vacancies are relatively rare outside START’s seasonal transit positions.
Vacancy counts do not tell the whole turnover story. Public Works has tracked turnover by division over
the past five years, and the pattern is clear. The Streets division, the Town’s plow drivers, has lost more
employees than any other division in nearly every year.
“The job requires a commercial driver’s license and a willingness to start work at two in the morning
during a storm. We turn over three to four Streets employees in a typical year.”
Town of Jackson Public Works Director

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Figure 4. Public Works employee turnover by division, 2021 to 2026 (2026 partial year; excludes retirements). Source: TOJ Public
Works, May 2026.

What turnover costs
Turnover carries a cost even when the vacancy count looks small. Every department described
recruiting and training as an ongoing draw on staff time. Public Works estimates roughly 80 hours a year
goes to hiring. Internal Services put the figure at about half of one staff member’s time. A new Finance,
IT, or Planning hire takes a full year or more to become fully productive, and Police previously spent as
much as $110,000 to recruit and test for a single sworn officer position, at a cadence of eight to ten
testings a year. After salary adjustments the department has run one testing in the last two years, which
the Chief cites as a direct saving.
National benchmarks put a number on what a single departure costs an employer. Cost scales with
how specialized the role is, because specialized knowledge and relationships take longest to rebuild.
Position level

Typical replacement cost

A $45,000 role

Entry level

30 to 50% of annual salary

$13,500 to $22,500

Mid level, skilled trades, supervisors

90 to 150% of annual salary

$40,500 to $67,500

Department head, specialized

150 to 400% of annual salary

A $95,000 role

$142,500 to $380,000

Source: Society for Human Resource (SHRM) Professionals-affiliated turnover cost reviews. Costs include advertising, screening, interview
time, signing or relocation incentives, training, and lost productivity before a new hire is fully up to speed.

Recruiting is also a budgeted cost the Town can see directly. Internal Services carries roughly $70,000 a
year for Town-wide recruitment, and START budgets $55,000 of its own for FY2027, a reflection of how
much effort goes into filling seasonal transit positions each season.
For the Town, the real figure runs higher than the benchmark, because the housing market itself slows
recruiting and lengthens vacancies. Multi-step public hiring processes, budget approvals, and
background checks already stretch time-to-fill past two to three months for specialized or public safety
roles. Add a candidate who cannot find somewhere to live, and the vacancy stretches further.
The costs that never appear on a line item also matter. Institutional knowledge walks out the door:
undocumented understanding of the Town’s infrastructure, permitting history, and community
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relationships. Service continuity suffers, and residents notice when the counter clerk, the code
enforcement officer, or the dispatcher keeps changing. And in small departments, a five-person crew or
a two-person office, coverage gaps fall on colleagues already stretched thin, so one vacancy can
compound into two or three. Several directors connected turnover to burnout for exactly that reason.
This is the case for treating housing as a workforce investment rather than a side issue. Housing shortens
vacancies, protects the staff who would otherwise absorb the gap, and protects the service residents
expect.

Difficulty Recruiting and Retaining
Navigate asked each Department Director whether recruiting or retaining was the bigger challenge.
The honest answer, across 11 interviews, was both. Directors split nearly evenly on which was harder at
the moment, but one theme ran through almost every conversation: housing is central to both, not just
one.
Several directors described housing as the deciding factor in whether a strong candidate accepts an
offer at all. One called it necessary for recruitment. Others were just as direct about retention,
describing housing as the key reason employees stay and as co-equal with salary in both recruiting and
retaining. Internal Services staff noted that departments can rarely fill a position without a housing offer
attached, and that a local candidate who already has stable housing of their own is treated as a
welcome exception rather than the norm.
A related concern surfaced repeatedly: fairness between newer and longer-tenured employees.
Several directors observed that new hires recruited with a housing offer sometimes end up in better
housing than employees who have been with the Town for years and were never offered that support.
Staff notice, and it deserves the Town’s attention as it prioritizes housing investments.
Not every departure is a housing story. Directors were candid that people also leave for family reasons,
career changes, retirement, or simply because they are ready for something new. But when housing is a
factor it works on both sides at once. It can be the reason a strong candidate says yes, and the reason
a long-tenured employee stays. That dual role is why this strategy treats housing as core workforce
infrastructure rather than a benefit.

Retiring Employees
Roughly a third of year-round employees (32%) reported in the survey that they expect to leave the
Town within the next five years. Department Directors, asked independently, estimated about 14
anticipated retirements over that same period. That is a smaller and more conservative figure, focused
on retirement rather than all departures, but it points to the same departments: Police, Public Works,
Planning, and IT each expect to lose senior, experienced staff in the next five years.
These departures matter because they fall on the Town’s most senior and technically skilled positions:
building officials, IT leadership, senior Public Works staff, veteran patrol officers. A few departments have
succession plans to promote from within, but that only moves the vacancy. The interior position still has
to be filled from outside, often in roles the Town has historically struggled to recruit for.
Housing stability looks different at this end of a career. Many employees nearing retirement already own
their home, so their own housing is generally secure. The harder question is who replaces them. New
hires stepping into these senior roles face the same tight rental and ownership market as anyone else,
without the decades of equity current retirees have built. Planning ahead for these transitions and
having housing ready for the people who will fill these roles, matters as much as planning for the
vacancy itself.

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This is the quiet arithmetic behind the 70% goal. Today 18% of year-round employees own a market
home in the valley, and that group is long tenured. Each time one of them retires, the Town loses a
household it never had to house and gains one it does. This report calls that leakage. Based on Town
staff estimates, the strategy assumes 40% of these homeowners retire or leave within ten years, and the
progress model in the Recommendations section includes it.

Employee Household Characteristics and Housing Situation
For the remainder of this analysis, the focus is on year-round employees. Seasonal employees have
distinct housing needs and are addressed under Seasonal Employees at the end of Housing Needs.

Household Size
Nearly half of Town employee households (48%) have three or four members. Only one in five (19%) is a
single person living alone.

Figure 5. Household size of Town employees.

Tenure (own vs rent) tracks closely with household size. Single-person households are overwhelmingly
renters (84%), while two, three, and four-plus person employee households are majority owners. This
means the Town’s current inventory, which skews toward smaller rental units, is best matched to single
employees and least matched to families. Closing that gap will be essential for the Town.

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Figure 6. Tenure by household size.

Tenure and Stability
Overall, 56% of year-round employees own their home and 44% rent. Town-provided rentals are the
single largest housing category after market ownership: 29% of year-round survey respondents rent from
the Town, more than rent on the open market.

Figure 7. Current housing situation of Town employees.

Town employees own their homes at a somewhat lower rate than Teton County and the nation as a
whole, though the gap is not large.

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Figure 8. Rent vs. own, Town employees compared to Teton County and the U.S. Sources: Teton County, 2022 Teton Region
Housing Needs Assessment; U.S., 2023 U.S. Census Bureau.

Tenure shifts sharply with years of service. Newer employees rent by a wide margin, with 70% of those
with two years or less on the job renting, while long-tenured employees are overwhelmingly owners, at
86% for those with 10 or more years. This is the clearest evidence in the survey that the path from renting
to owning is how employees build a life in Jackson while working for the Town. It argues for support that
follows an employee’s career rather than a single one-size-fits-all product.

Figure 9. Years employed by tenure.

Breaking tenure down by housing type shows where employees land once they own or rent. Among
owners, most are in market homes rather than deed-restricted units, and a substantial share of those
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market homes are outside Teton County (56%). Among renters, Town-provided housing is the dominant
option, well ahead of the open market.

Figure 10. Type of housing occupied, by tenure.

Most employees consider their housing stable, 83% overall, but stability is not evenly felt. Owners report
near-universal stability (96%), while renters are far more mixed, with 37% saying their housing is not stable.
Renters cited being tied to their job, unit size, and rent increases as the leading reasons. This is what
would be expected: ownership provides security that a lease, particularly a lease tied to employment,
cannot.

Figure 11. Housing stability by tenure (own vs. rent).

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Housing Location
Where Employees Live
61% of Town employees live in Jackson itself, and 69% live in Teton County, WY (including the Town).
That is a high share for a resort community workforce, and it moves the Town toward its Location
objective. The remaining 31% commute from outside the valley, mostly Star Valley, with smaller numbers
from Teton Valley, Idaho and Sublette County, WY.

Figure 12. Where employees currently live.

72% of employees living outside the valley own a market home there, which could suggest they
commute by choice. For many, the choice was narrower than that. Elsewhere, commuting is often a
tradeoff of more house and land for time on the road. In Jackson Hole, for a household earning its
income locally, it has often been the only way to own. Many longer-tenured employees bought in Teton
Valley, Idaho and Alpine, Wyoming because ownership was still within reach there. Those areas are
becoming unaffordable too, especially once the cost of commuting is counted.
Commuting carries costs for the Town as well, particularly for time-sensitive positions. Seven Police and
nine Public Works survey respondents live outside the valley. Sworn law enforcement, water and
wastewater operators and technicians, IT, snow removal and mechanics are considered Critical
Response positions at the Town.

Where Employees Would Prefer to Live
Given the choice, more employees would live in the valley than currently do. 81% would prefer to live in
Jackson or greater Teton County, up from 69% today, and only 19% would prefer to live outside the
valley.

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Figure 13. Where employees would prefer to live.

Among the smaller group who would choose to live outside the valley, most already own a market
home there (80%) and are largely satisfied with that choice. Investing in Teton County, Wyoming
housing is unlikely to change their preference. But the roughly 12 percentage point gap between where
employees live and where they would prefer to live represents near-term demand for valley housing
among people who are commuting by circumstance rather than choice.
That gap is likely to widen. Employees hired over the next decade will most likely not arrive with the
equity current commuters built. Ownership in Teton Valley, Idaho and Star Valley is moving out of reach
at the same time, which means the commuter towns that absorbed the last generation of Town
employees will likely not absorb the next one. Housing that new employees can reach, in the valley, is
what keeps this from becoming a recruiting problem five years from now.

Housing Satisfaction
81% of year-round employees are satisfied with their current housing, though only 30% are Very Satisfied.
That gap matters. The goal is not housing employees will tolerate, it is housing they are genuinely glad to
come home to.

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Figure 14. Housing satisfaction, year-round employees.

Among those not fully satisfied, cost and location lead: too expensive (34%) and too far from work
(32%), followed closely by too small or crowded and lacking outdoor space (29% each).

Figure 15. Top reasons for dissatisfaction, year-round employees.

Satisfaction varies meaningfully by housing type. Market homeowners are mostly satisfied, but among
those who are not, being too far from work (43%) and too expensive (35%) lead. That is notable given
these are owners, not renters.

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Figure 16. Satisfaction, market homeowners.

Deed-restricted homeowners are the most satisfied group in the survey, at 62% Very Satisfied. Among
the 38% who are not, the leading complaints are feeling too small for a growing family and lacking
outdoor space, along with comments about high HOA fees and dense, noisy neighborhoods.

Figure 17. Satisfaction, deed-restricted homeowners.

Market renters are rarely Very Satisfied (13%). Most would simply prefer to own (86%), and many cite
being too far from work (57%) or paying too much (43%).

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Figure 18. Satisfaction, market renters.

Figure 19. Reasons not very satisfied, market renters.

Town of Jackson Provided Housing
Employees renting from the Town land between market renters and homeowners: 74% are satisfied, but
only 17% are Very Satisfied.

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Figure 20. Satisfaction, employees renting from the Town of Jackson.

Wanting to own instead of rent and lacking outdoor space are the top complaints (47% each), followed
closely by unit size and unit condition (42% each). Unlike market renters, cost is a smaller factor. That is a
sign the Town’s below-market rents are doing their job, even where the units themselves fall short. The
dissatisfaction here is about the homes, not the price.

Figure 21. Reasons not very satisfied, Town-provided rentals.

Housing Affordability
Affordability is a function of household income, not one employee’s salary. A two-income household
can afford more than a single earner making the same wage. Employers rarely have access to
household level data, but the Town’s survey does. There is also no single definition of affordable. The
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standard federal benchmark, set by HUD, is 30% of household income, but that benchmark does not
account for debt, dependents, or the other circumstances that shape what a household can really
carry.

Household Income
Town employee households cluster in the middle income range, with relatively few at either edge.
Nearly nine in ten (89%) fall at or below 200% of Area Median Income (AMI).

Figure 22. Town employee household income by AMI band.

Income limits apply to some local programs and not others. Teton Habitat serves households between
30 and 80% of Median Family Income, and the Housing Department’s Affordable program serves
households up to 160%. The Housing Trust limits most buyers to 120% of Area Median Income, but
exempts government employees, including Town employees, from its income limit. The Housing
Department’s Workforce program has no income ceiling, only a requirement that at least 75% of
household income is earned from a local business, which the Town is. For most Town employees, the
constraint is price, product, and the odds of being selected rather than income.
Three organizations build and steward below-market homes in Teton County, and each serves a
different slice of this income distribution. Set against employee household incomes, they reach further
into the Town’s workforce than most employees realize.
Income served

Share of Town employee
households likely eligible

30 to 80% of Median Family
Income

31%

Up to 120% of Area Median
Income; government employees
exempt

100%

Jackson/Teton County Housing Department,
Affordable program

Up to 160% of Median Family
Income

73%

Jackson/Teton County Housing Department,
Workforce program

No income ceiling

100%

Organization
Habitat for Humanity of the Greater Teton Area

Jackson Hole Community Housing Trust

Sources: organization eligibility rules as published August 2026; Town of Jackson Employee Housing Survey, April 2026. Eligibility shares are
calculated from the household income distribution in the chart above and are a ceiling, not a prediction. Each organization applies
additional employment, asset, and other-property tests. Without the government employee exemption, 52% of Town employee households
would fall within the Housing Trust’s income limit.

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Nearly a third of Town employee households fall within the band Teton Habitat serves, and Habitat is the
only organization in the valley working exclusively in that range. With Northern South Park in the pipeline
and a likely build out by Habitat and the Housing Trust over twenty years (or more), that is a real and
durable opportunity for Town employees rather than a one-time chance. The three organizations, and
how each allocates homes, are described in the Opportunities and Challenges section.
Breaking household income down by household size shows what unit sizes are needed at each income
band. Smaller households cluster at the lower end of the income scale, while larger households spread
more evenly and skew toward the middle and upper bands. Demand for larger units exists across nearly
all bands.

Figure 23. Household size by income band (AMI).

Affordability of Current Housing
Perceptions of affordability differ by tenure. Among owners, 70% consider their housing costs affordable.
Among renters that drops to 53%, meaning nearly half of renters do not consider what they are paying
affordable, compared to less than a third of owners.

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Town of Jackson Employee Housing Strategy

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Figure 24. Perceived affordability by tenure.

What Employees Pay
Most employees pay between $1,000 and $2,500 a month for housing, with the largest single group
paying $1,501 to $2,000.

Figure 25. What employees spend on housing each month.

Overall, 62% of employees feel their housing costs are affordable, but that comfort erodes steadily as
costs rise. 80% of those paying under $1,000 feel it is affordable, compared to 20 to 25% of those paying
over $3,500. The relationship is close to a straight line: the more employees pay, the less affordable it
feels.

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Town of Jackson Employee Housing Strategy

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Figure 26. Perceived affordability, by amount paying each month.

The chart below answers a question that gets asked whenever housing support is discussed: is this a
problem only for the lowest-paid employees? It is not. Unaffordability is not only a low income story.
At the lower end of spending, it concentrates among households below 80% AMI. By the $2,501 to
$3,000 range, three-quarters of the responses reporting costs as unaffordable come from households
above 80% AMI, and every respondent paying more than $3,000 who reports their costs as unaffordable
is above 120% AMI. Sample sizes in each spending bracket are small, ranging from 2 to 9 respondents,
so these figures indicate a pattern rather than a precise measure.

Figure 27. Household income of employees who feel costs are not affordable, by amount paying.

The reasons differ by income level, and the difference matters for which tool helps. Digging in to the
responses of the 34 employees who said their housing costs are not affordable:
• Below 80% AMI (19 households). Rent consumes an outsized share of a low wage, which pushes
households into smaller, lower-quality, or poorly maintained units, with crowding, no storage, no
yard, and unresolved repairs, just to make the cost work. Ownership reads as entirely out of reach.
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• 80 to 120% AMI (5 households). Less basic affordability strain, more a mismatch between what a
household can pay and what exists to buy, specifically a shortage of family-sized homes with a yard
or a garage, plus the ongoing cost of maintaining a home once purchased.
• 120 to 160% AMI (5 households). The cost of buying, either in Jackson or in the commuter towns,
feels unaffordable, with mortgage and commuting costs cited together. This group also voices a
sense of inequity, that employees in subsidized Town units receive an unlisted benefit that marketrate buyers and renters do not.
• Above 160% AMI (5 households). Even at the highest incomes, ownership feels unaffordable, driven
less by the purchase price than by the compounding costs of owning: HOA fees, energy costs,
storage, and parking. Several in this group are still renting and want to buy.
These are directional themes rather than statistically robust findings. Only 34 of 89 respondents said their
costs were not affordable, and three of the four bands hold as few as five households.
Household size tracks closely with what employees pay. Larger households dominate the higher
spending brackets while smaller households cluster at the low end. This matters for the Town: employees
paying more than they are comfortable with are more likely to leave, and the employees most exposed
to that risk tend to have larger households and, often, children.

Figure 28. Household size, by amount comfortable paying each month.

Asked what they are comfortable paying relative to what they pay today, 63% of employees said the
same amount or less. That is a clear signal that current rents are already at or near what this workforce
can carry, with little room to raise prices before employees start making other plans.

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Town of Jackson Employee Housing Strategy

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Figure 29. What employees are comfortable paying, vs. today.

Rents Compared
Town-owned rents sit between HUD’s Fair Market Rent and the open market, well below what private
apartment complexes charge and somewhat above the HUD benchmark used to set them. That
position is intentional and reflects the cost of maintaining Town-owned units.

Figure 30. Rental rate comparison, by unit size.

The Cost of Ownership
The ownership market tells a starker story. The chart below compares four paths into a home, using a 30year fixed mortgage at approximately 6.7%, the prevailing rate as of mid-2026.
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Town of Jackson Employee Housing Strategy

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Price

Down payment

Monthly principal and
interest

Market 3-bedroom townhome or condominium with
a garage

$2,000,000

$400,000 (20%)

$10,324

Workforce deed-restricted 2BR (2024 median)

$695,000

$139,000 (20%)

$3,588

Affordable 2BR, 80-120% AMI (2026 maximum price)

$429,000

$21,450 (5%)

$2,630

Employee Right of Purchase unit (recent example)

~$500,000

~$25,000 (5%)

~$3,065

Path into ownership

Sources: market price is an illustrative price for a three-bedroom townhome or condominium with a garage, provided by the Town;
median workforce sale price, 2025 Teton County Housing Supply Plan (2024 data); 2026 Affordable maximum sales price, Teton County
Housing Department; Right of Purchase example, Town of Jackson data. Market and Workforce scenarios assume 20% down; Affordable
and Right of Purchase scenarios assume 5% down, consistent with Teton County Housing Department underwriting assumptions. Payments
exclude taxes, insurance, and HOA dues.

Two of these paths are worth separating out, because they are often confused.
• A Workforce unit is deed-restricted and must be sold to a member of the local workforce. There are
no income or asset caps on the buyer. Prices run modestly below comparable market units, which
puts the monthly payment near $3,600 for a 2-bedroom.
• An Affordable unit is deed-restricted and priced to a household income band, in this case 80 to
120% AMI. The maximum 2026 sales price for a 2-bedroom is roughly $429,000, which puts the
monthly payment near $2,630 with 5% down.
With a Right of Purchase, the Town pays for the right and the employee buys the home. In 2026,
example the Town paid $260,091 for a right, and an employee will pay roughly $500,000 for the home.
The employee gets a home priced well below market and a place at the front of the line instead of a
wait of several years.

Figure 31. Four paths into a home for a Town employee. Sources: illustrative market price provided by the Town; median Workforce
sale price, 2025 Teton County Housing Supply Plan (2024 data); 2026 Affordable maximum sales price, Jackson/Teton County
Housing Department; Right of Purchase example, Town of Jackson data. 30-year fixed at approximately 6.7%. Payments exclude
taxes, insurance, and HOA dues.

The open market is not a realistic path to ownership for a Town employee at any price point this survey
identified. The deed-restricted and workforce tiers are. The Town already supports the creation of those
homes through housing mitigation, through density bonuses, and through direct financial investment in
developments that include deed-restricted units. Those investments serve the community at large, not

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Town employees specifically. The tools in this strategy are how the Town converts that broader
community investment into homes its own employees can reach.
What a deed restriction costs the buyer
Many employees would still prefer to own a market home. Some have other resources and will. For
most, the realistic path to owning in Teton County is a deed-restricted home, and that path comes with
tradeoffs worth examining.
A deed-restricted owner gives up market appreciation, which in this valley is where most household
wealth has been made. Depending on the restriction, they may also give up the ability to occupy the
home for only a part of the year, to rent it out, to work remotely or for an employer outside the valley,
and to retire before the age the restriction allows and stay in the home. And the home comes with an
administrator who verifies compliance, which is a real presence in a household’s affairs that a market
owner does not have.
These tradeoffs matter to employees who see a home as their main retirement savings, or who expect
to spend part of the year elsewhere once they retire. Deed-restricted ownership is still the most realistic
way for most Town employees to own in the valley. Being clear about the tradeoffs up front helps keep
employees’ trust in the program.

Housing Preferences
Town Housing Support
Asked what kind of housing support they want from the Town, employees were clear. A monthly stipend
is the top choice at 68%, followed by down payment assistance (40%) and priority access to purchase a
deed-restricted home (36%). These point generally in the same direction: employees want help getting
into a home of their own, not only help paying rent.

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Figure 32. Interest in Town-provided housing support.5

Splitting this by tenure sharpens the picture. Existing owners lean hardest toward a stipend (71%), cash
support they can apply to their own situation. Existing renters want the same things owners want and
more of them: majorities are interested in down payment assistance (56%), priority access to a deedrestricted purchase (53%), and renting a single-family home or townhome (53% and 50%). Renters would
like a path to ownership.

Figure 33. Interest in housing support, by current tenure (own vs. rent).

5 Respondents were asked to select all that apply; total therefore exceeds 100%.

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Interest in a stipend and in deed-restricted purchase holds fairly steady across length of employment,
but down payment assistance stands out at mid-career. 60% of employees with six to nine years on the
job want it, compared to roughly a third of newer and longer-tenured employees. These are employees
who have committed to a career at the Town, who intend to stay, and who are actively looking for an
ownership opportunity that fits their household.
There is a low-cost move hiding in that timing. An employee who joins a Housing Department or Housing
Trust waitlist on their first day is likely to reach the front of the line right around the six-year mark, which is
when they say they want to buy. That costs the Town nothing and is considerably cheaper than buying
a right of purchase on their behalf. New employees are unlikely to be thinking six years ahead on their
first week, so getting on the waitlist belongs in onboarding and in performance reviews rather than
being left to chance.

Figure 34. Interest in housing support, by length of employment.

Size of Home
Among employees interested in renting or buying through the Town, demand skews toward larger units.
A majority want 3-bedroom homes, whether renting (54%) or buying (55%). Very few employees are
looking for a studio. This is the same theme that runs through the rest of this section: the Town’s current
inventory, weighted toward smaller units, does not match what employees need.

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Figure 35. Number of bedrooms desired, renting vs. buying.

Parking demand is high across the board. About nine in ten employees interested in Town housing want
two or more spaces, and buyers lean further toward three than renters do.
Parking is a cost driver, and it is also a necessity here. Long winters make biking and walking difficult for
months at a time. Public transit in Teton County, especially in the winter, is more focused on visitor
services rather than local users, and provides limited routes. School activities are scattered across the
valley. Many households run one car per driving-age occupant simply to get to work, buy groceries,
make appointments, and move children to daycare and activities. Any in-town home the Town
develops needs at least one dedicated parking space, with additional spaces available nearby. This
“decoupling” of parking from the unit was supported by employees and can help hold costs down.

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Figure 36. Number of parking spaces desired.

Features
For renters, price dominates every other consideration. 88% call it essential, far ahead of any other
feature, with number of bedrooms and the ability to have pets next. Location, though widely rated
important, is rarely called essential.

Figure 37. Importance of features, interested in renting.

Buyers show a similar pattern, with price again the dominant essential feature (83%), but the gap
narrows. Location, bedroom count, and outdoor space all register as essential or very important for the
large majority of prospective buyers.
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Town of Jackson Employee Housing Strategy

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Figure 38. Importance of features, interested in buying.

Price matters most, but it does not follow that the Town should build the smallest, cheapest unit possible.
Nothing can be built in Jackson at a price employees can afford without significant public subsidy, so
the subsidy is needed either way. Cutting bedrooms, storage, and parking to lower the cost can
produce homes employees do not want to stay in. Quality homes with the features employees say they
need are more likely to keep people working for the Town.

Seasonal Employees
Seasonal employees are almost entirely START transit operators, hired for the winter season, and their
housing needs are different enough from the year-round workforce to warrant treating separately.
Housing is not optional for this group. Without it, Town managers cannot fill these positions.
Seasonal households look very different from year-round households:
• Two-thirds (67%) are single-person households. Across the group, 56% live alone and 33% share
housing with unrelated roommates.
• Two-thirds (67%) rent from the Town, and this group is about evenly split on whether they consider
that housing stable.
• Every seasonal employee surveyed falls below 80% AMI.
• 78% say they are comfortable paying less than $1,000 a month. An analysis of seasonal employee
household incomes found that anyone paying more than $1,500 a month is likely cost burdened.
Satisfaction is lower than among year-round employees. Only a third (33%) are Very Satisfied with their
housing. Cost is the dominant complaint, with 71% citing their housing as too expensive, a notably
higher share than among year-round employees even though seasonal housing costs less in absolute
terms. Storage and outdoor space follow.

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Town of Jackson Employee Housing Strategy

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Figure 39. Housing satisfaction, seasonal employees.

Figure 40. Reasons for dissatisfaction, seasonal employees.

Seasonal employees’ interest in Town housing support centers on two things in roughly equal measure: a
stipend (56%) and renting an apartment from the Town (56%), followed by renting through START’s own
housing (44%). Interest in a partial studio or motel room is low, at just 11%, even though that format is a
common way the Town houses this group today. Interest in ownership-related support is minimal (11%
each), which reflects the temporary nature of the work.

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Town of Jackson Employee Housing Strategy

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Figure 41. Interest in Town-provided housing support, seasonal employees.

Seasonal employees want simple, affordable apartment-style rentals at price points below $1,000 a
month, not partial studios or motel rooms. Matching the format to demand would resolve much of the
dissatisfaction reported here.

5. Opportunities and Challenges
This section sets out what the Town has to work with: the tools in place, the tools it could use, the money
and land available, and the constraints. Each tool is described with its advantages and costs. The
recommendations, their timing, and the staff capacity they take are set out in the final section.

Employee Housing Inventory
The Town houses employees through four tools: units it owns outright, units it master leases from private
landlords, rights of rental in partner-owned buildings, and rights of purchase in partnerowned/developed buildings. A summary of the Town’s complete inventory can be found in Appendix
A.
Two words merit definition: a unit is a self-contained home. A placement is one household or individual
housed in stable housing. Most of the time the two are the same. They diverge in the bunkhouse at
149/145 E. Pearl Avenue, which is one building providing four places to sleep for overnight and shift
stays. It is not stable housing and it is not counted as a placement anywhere in this report. Winter
seasonal beds are counted separately again, because they are motel rooms and private bedrooms in
a shared apartment leased for a single winter season rather than units. And master-leased units are not
counted as stable housing because the Town does not control the primary lease-- when it ends, the
employee moves. (Rights of Rental and Purchase are covered separately in the next section and are
not included in the chart below.)

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Town of Jackson Employee Housing Strategy

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Category

Units

Town preference*

Placements available to Town
employees

Town-owned (the bunkhouse is one unit
and no placements)

43

31

30

Winter seasonal beds, leased

13

13

13

Total stable placements

56

44

43

8

8

8

Reported separately, not counted as stable housing
Master leased**

Source: TOJ Employee Housing Master Inventory and Town of Jackson primary lease schedule, February 2026, Navigate analysis. Townowned excludes 930 and 940 Simon Lane, which are to be redeveloped as part of S4 Flats. *Twelve Town-owned units at 400 W. Snow King
Avenue carry a County occupancy preference and are not available to Town employees. The bunkhouse is counted as one Town-owned
unit and zero placements. Winter seasonal beds are the 13 confirmed for the 2026 to 2027 season; up to six additional Antler Motel rooms
are on hold pending decisions on START service levels. **Two master leases end in the fall of 2026 and will not be renewed, which will
reduce the master-leased count to six.

Figure 42. Town of Jackson housing rental properties and Town-owned development sites.

Town-Owned Units
The Town owns 43 rental units, in two distinct groups: those at 400 W Snow King Avenue, and those at
scattered sites.

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Town of Jackson Employee Housing Strategy

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Figure 43. 400 W. Snow King Avenue, built in 2020 and the newest asset in the Town’s portfolio.

400 W. Snow King Avenue, also known as the Parks and Recreation building, is a 26-unit building
constructed in 2020, located inside the Public Works yard. It is the newest and best-maintained asset in
the portfolio. The partial studios are approximately 255 square feet and the one-bedrooms
approximately 570 square feet, each with a private bathroom, built-in desk and closet, micro-fridge and
microwave, and access to a shared common room with a full kitchen, tables, couches, and free on-site
laundry. Utilities are included in the rent. The location inside an active public works yard means early
morning backup alarms from snowplows and maintenance equipment. The building was designed for
seasonal, single occupancy.
Twelve of its 26 units carry a County occupancy preference under a long-standing agreement, which
leaves 14 available to Town employees:
400 W. Snow King Avenue

Town preference

County preference

Total

Partial studio, approximately 255 sq ft

8

8

16

1 bedroom, approximately 570 sq ft

6

3

9

Hotel unit

0

1

1

Total

14

12

26

Source: Town of Jackson Housing Stock Inventory. The hotel unit swaps between Town and County preference every three years. It is
counted here in its standing position with the County; the Town holds the preference for the current cycle, so 15 units are available to Town
employees this cycle rather than 14. All counts elsewhere in this report use the standing 14 and 12 split.

The County preference is not a formal cost-sharing agreement. Each of those units carries its own
primary lease with Teton County, and the recital in each lease establishes that the County holds the
preference right to that unit. When the building was constructed the two entities agreed verbally to split
the units evenly. The split has since moved with other trades: when Teton County built housing at Fire
Station #1, the Town exchanged its preference rights there for an agreed equivalent number of onebedroom units at 400 W. Snow King Avenue, which is why the units are no longer divided evenly. The
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Town of Jackson Employee Housing Strategy

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hotel unit swaps every three years and sits with the Town for the current cycle, because the County had
no employee willing to live in a unit that size and it works well for a seasonal transit operator.
The arrangement limits the Town’s flexibility in its newest building. The partial studios work well for winter
seasonal employees, and the Town’s need for them is concentrated in winter, which opens the
possibility of summer use discussed under Town-Owned Land below.
Scattered-site units are the other 17: single-family homes, duplexes, and condominiums spread across
town, built between 1939 and 2001 and acquired between 1982 and 2018. This is where the Town’s
deferred maintenance sits. Two units at 145 W. Hansen are graded F (on a scale explained further
below). Five more are graded C, meaning dated systems and finishes that will need capital investment
within one to five years.

Figure 44. 455 Vine Street, four 2-bedroom apartments built in 1975 and acquired in 2013.

Master-Leased Units
The Town holds eight master leases: privately owned homes it leases from a landlord and sublets to an
employee at the Town’s below-market rate, absorbing the difference. They range from a studio with a
loft on Aspen Drive to a three-bedroom home in Alpine, Wyoming. The Town provides a combined
subsidy of about $5,544 a month for these 8 units (see Appendix B). This report does not count them as
stable housing, because the Town does not control renewal of the primary lease, and a landlord who
declines to renew ends an employee’s tenancy.
The phase-out of master leased units has already begun. Two leases end in the fall of 2026 and will not
be renewed, and neither houses an employee who needs to be rehoused. Those two carry the largest
subsidies, $1,479 and $1,440 a month. Releasing them takes the subsidy from roughly $66,500 a year to
roughly $31,500, and the master-leased inventory from eight units to six.

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Winter Seasonal Beds
Beds are leased each winter for START variable hour transit operators, and every lease expires at the
end of the ski season. For the 2026 to 2027 season the Town has 13 beds confirmed at Adams Canyon
and the Alpine Motel, listed in Appendix B. Up to six Antler Motel rooms are on hold while the Council
and County Commission weigh START service reductions; if service holds, the program runs at up to 19
beds. The seasonal target moves with the size of the seasonal workforce rather than being a fixed
number of beds.
Both formats are a poor match for what seasonal employees want: only 11% expressed interest in a
partial studio or motel room, while 56% want an apartment. One partnership is worth exploring. Jackson
Hole Mountain Resort houses a large seasonal workforce on a season that overlaps almost exactly with
START’s; a conversation about housing some transit operators through the resort costs nothing to start.
The mismatch between what the Town owns and who lives in it
The clearest challenge in the Town’s inventory is the bedroom mix. Set the 38 conventional units
available to Town employees against what employees told the survey they are interested in renting:
Town-owned

Master leased

Total

Share of inventory

Share of employees who want
this size, renting

Studio / partial studio

10

1

11

29%

5%

1 bedroom

8

4

12

32%

19%

2 bedroom

9

1

10

26%

23%

3 bedroom

2

2

4

10%

54%

4 bedroom

1

0

1

3%

0%

Total

30

8

38

100%

Unit type

Source: TOJ Employee Housing Master Inventory and Town of Jackson Employee Housing Survey, April 2026. Excludes the 12 Countypreference units at 400 W. Snow King Avenue, the bunkhouse, and the winter seasonal beds. Demand percentages are of employees who
expressed interest in renting from the Town.

Read the last two columns together. 61% of the units available to Town employees are studios or onebedrooms, but only 24% of employees who want to rent from the Town want one. 10% have three
bedrooms, and 54% want three. The partial studios at Snow King were sized for seasonal, single
occupancy, and they are now housing seasonal employees, year-round employees, and in some cases
families.

Master Leases as a Tool
Pros and Cons. Master leases add units quickly, with no land, construction, or maintenance obligation,
and they help when a unit is needed on short notice. They are also expensive: the subsidy is a recurring
cost that never builds an asset, a vacant lease is a cash loss, and the Town has no control over renewal,
rate increases, or what a landlord happens to have available.

Rights of Rental
Pros and Cons. Eligible employees are able to rent a subsidized, deed-restricted unit in a building
owned by a partner, rather than having compete with the rest of the community for the same unit. The
Town holds one such right today, at Redmond Hall. Rents in these units are below market, but they are
set by the partner organization and by the deed restriction on the unit, not by the Town’s own rate
policy.

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In November 2025 the Jackson Hole Community Housing Trust brought the Town a proposal for six rights
of rental at its Nelson Drive project. The Town Council approved $4.05 million in 2022 SPET funding on a 4
to 1 vote.
Rights of rental have ranged in price from $275,000 at Jackson Street Apartments in 2024 to $675,000 at
Nelson Drive in 2025. A right is typically priced at the subsidy the partner still needs after grants and debt,
so it tracks the cost of the project: Nelson Drive is new construction at 2026 costs. A right of rental buys
access for a fixed term, with no asset at the end.
Pros

Cons

• Priority access to a below-market unit at a much lower upfront cost than buying one.
• The tenant pays below-market rent and has some
separation from their employer in their housing situation.
• Day-to-day management is handled by the partner
organization.
• The Town’s investment helps fund the partner’s project, so it
adds to the community housing inventory at the same time it
serves Town employees. That dual purpose matters.
• No construction risk and no entitlement timeline.

• The Town does not own a real estate asset at the end of the
arrangement.
• The specific unit offered may not fit the household that
needs it.
• The resale or transfer value of a right is not well established.
• Income-eligibility limits (Housing Dept projects) can
discourage an employee from taking a promotion or a raise.
• Short notice of an available unit. Ten days is not enough
time for a household to move.
• A fixed term rather than a perpetual restriction, which
means the Town is buying a long lease on access rather than
a permanent one.

On that last point, the Nelson Drive rights run 30 years with a first right to renew, and that term is not
something the parties chose. It follows the Forest Service Special Use Permit the project sits on. A permit
of this kind is expected to renew in the same way a ski area permit does. If it does not, the Housing Trust
has committed to offering the Town rights on other homes in its portfolio as they come available. The
term is a feature of the site, not a weakness in the deal.

Rights of Purchase
Pros and Cons. The same arrangement, for ownership. The Town buys priority access for an employee to
purchase a deed-restricted home in a partner-owned project, ahead of the general applicant pool.
These rights are revolving: when the employee sells or leaves Town employment, the right returns to the
Town and can be offered to another employee. The Town’s most recent use of this tool was the 2026
purchase of a right in the Housing Trust’s portfolio for approximately $260,000.
The Town currently holds 19 rights across five programs, of which 12 have been exercised and seven
remain available.
Program

Location

Rights

Exercised

Available

Housing Trust revolving rights

Daisy Bush (any inventory)

6

6

0

Housing Trust revolving rights

King Street Condos

5

3

2

Housing Trust revolving rights

Redmond Hall (floating)

3

3

0

Housing Trust revolving right

174 King Street resale, purchased
2026

1

0

1

Kelly Place Condos

4

0

4

19

12

7

Housing Department revolving
rights
Total

Source: TOJ Employee Housing Master Inventory and Town of Jackson staff reports. The three Redmond Hall rights comprise two ownership
rights and one right of first rental, all exercised.

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How rights convert into placements
A right is not a housed household until someone uses it. Counting rights as though they were units
overstates what the Town has actually delivered, and counting them at zero understates it. The Town’s
own experience gives a defensible conversion rate for each program, and this report applies it
consistently wherever placements are counted.
Rights

Share expected to
be exercised

Placements

Housing Trust revolving rights, King
Street Condos

5

100%

5

Product type and price work for employees. Three
already exercised

Housing Trust revolving rights, Daisy
Bush and floating

6

100%

6

All six exercised

Housing Trust rights, Redmond Hall

3

100%

3

All three exercised, including one right of first
rental

Housing Trust right, 174 King Street
resale

1

100%

1

Same product as the King Street rights

Housing Department rights, Kelly
Place Condos

4

0%

0

Four rights, none ever exercised. Product type
and price did not work

Rights of purchase, S4 Flats*

8

25%

2

Prices at the top of what employees say they can
pay

Rights of rental, Nelson Drive*

6

100%

6

Rental, priced below market and set by the deed
restriction

Total

33

Program

Why

23

Conversion rates confirmed by the Town Manager and Deputy Town Manager, August 2026. Down payment assistance would be
expected to raise the Kelly Place and S4 Flats rates, and the effect of that is discussed under Help Employees Purchase in the final section.
*Not yet constructed; occupancy expected Summer 2027.

Two features make rights of purchase very effective for the Town. First, Town employees are exempt
from the Housing Trust’s income eligibility requirements, so every employee can benefit rather than only
those in a particular income band. Second, an employee gets two things at once: a home priced well
below what a comparable market home would cost, and a place at the front of the line. Without a
right, an employee typically waits several years to be selected through a Housing Trust or Housing
Department drawing.
Getting to the front of the line happens with a right of rental too. What makes employees rate purchase
higher is that ownership is not necessarily tied to their job. That creates a tension for the Town. A
meaningful share of employees who secure a Housing Trust home leave Town employment soon
afterward. A community member is still housed, which is a good outcome for the valley, but the Town
loses a securely housed employee.
Pros

Cons

• Priority access to a below-market home at far less cost than
developing one.
• Town employees are exempt from Housing Trust income
eligibility requirements, so the tool reaches the whole
workforce.
• Turns a wait of several years into an actual opportunity to
buy.
• Revolving. When the employee sells or leaves employment
with the Town, the right returns to the Town.
• Supports a partner’s project, adding to community housing
inventory at the same time.
• Ownership decouples housing from employment, which
employees consistently say they want.

• The Town does not own an asset, and the resale value of an
unexercised right is uncertain.
• Available units do not always match household size or price
point.
• A right that is never used delivers no housing at all.
• Purchase prices in newer projects are moving beyond what
employees say they can pay, particularly for smaller units.
• In some cases, the right returns to the Town only when the
unit resells. At the Housing Trust and the Housing Department a
deed-restricted owner may stay in the home after leaving
Town employment, so the right can be tied up for years.

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S4 Flats illustrates both sides. The Town approved a ground lease covering what is now proposed as 13
condominium homes, along with a $300,632 cash contribution, land valued at $2.6 million, and eight
revolving rights of purchase for Town employee households. As of February 2026 the proposed prices
ranged up to $600,000 for a one-bedroom of roughly 516 square feet and $725,000 for a two-bedroom
of roughly 732 square feet. Some units in the project are priced below that, and the final price schedule
is not set. Twenty-four Town employee households expressed some interest; 14 of those were interested
only in a two-bedroom (only 4 of the 13 units are 2 bedroom). The Town does not expect many of those
eight rights to be exercised at those prices, which is why this report counts them at 25%. That is not a
failure of the investment. The Town put land and cash into a project in order to add community housing
to the valley, and it did. The employee placements are a second benefit, and down payment
assistance is the tool most likely to raise the number.
Kelly Place tells the same story from the other end. The Town holds four rights there and none has ever
been exercised. Employees were made aware the rights existed. The product type and the price did
not meet their needs. Down payment assistance offered when a unit resells would help address the
pricing portion of the problem. It would not address the product type, however; the Town should be
clear-eyed that some of these rights may simply not fit the households looking for ownership
opportunities.

Rental Rates
The Town sets rents for its own units using HUD Fair Market Rent data, including utilities, applied uniformly
by unit size. Master-leased units are sublet to employees at rates the Town sets as well, though those
currently vary lease by lease, and the Town absorbs the difference between what it pays the landlord
and what the employee pays. That difference is why master leases run at a loss (see Appendix B).
One piece of terminology causes confusion and is worth clearing up. "Fair Market Rent" is a HUD term. It
is not the market rent. It is a below-market benchmark HUD publishes annually, and in Teton County it sits
far below what a private apartment actually rents for.
Benchmark

Studio

1 BR

2 BR

3 BR

Town-owned rents, FY2027, including utilities

$1,431

$1,447

$1,910

$2,510

HUD Fair Market Rent, 2026, including utilities

$1,252

$1,260

$1,653

$2,216

Market apartment complex rents, 2024 average

$3,000

$3,000

$4,100

$4,500

Sources: Town of Jackson data; Jackson/Teton County Housing Department; 2025 Teton County Housing Supply Plan.

Employees raised questions about the Town’s rental rate methodology, both in terms of affordability
and fairness. Three approaches for revising the Town’s rental rate structure were evaluated against five
criteria drawn from the Objectives.
Criterion

Approach 1. HUD rent by unit
size (current)

Approach 2. Share of household
income (Teton County)

Approach 3. HUD rent adjusted for
condition and size

Below market

Yes

Yes, up to 160% AMI; market rent
above that

Yes

Affordable in practice

Same rent regardless of
condition

Protects lower earners; no household
pays more than 26% of income

Lower rents on studios and on units
graded C or below, where entry-level
employees most often live

Simple to administer

Simplest, and already in place

Hardest: annual income verification
and an appraisal for each unit

Moderate: annual condition
assessment and rent adjustment

Tied to the unit

By size only; a 1939 unit rents for
the same as a 2020 unit

No, tied to the household

Yes, by size and condition

Adequate to maintain
the units

Revenue unchanged

More revenue from higher earners, but
few Town households sit at the edges

Close to revenue neutral

Result

Keep as the base

Not recommended

Recommended

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Setting rent by income would also turn the landlord relationship into a conversation about a
household’s finances, and because Town employee incomes cluster in the middle, it would change rent
little for most households at a large administrative cost. Approach 3 holds a Grade B unit at today’s
rate, and 63% of employees already say they are comfortable paying the same or less than they pay
today.

Selection Process
A selection process is how the Town decides which employee gets an available unit or right. Because
inventory is limited, the process carries as much weight with employees as the units themselves. When it
is understood, it builds trust. When it is not, it reads as favoritism whether or not it is.
The Town’s process sits in two documents that do different jobs. Policy Manual Section 418 is the
Council-approved policy, and it gives the Town Manager discretion over how units and rights are
allocated. The Operational Guidelines sit underneath it and define how that discretion is exercised.
Where the two appear to describe different mechanisms, Section 418 governs and the Guidelines fill in
the detail. The process works differently by tool.
• Town-owned rental units. The Town Manager may hold a unit vacant in anticipation of a new hire.
Once a unit is ready to post, the Director of Internal Services notifies all employees with a deadline
to express interest. Preference then runs through an eleven-tier order, starting with full-time Town
employees in Critical Response roles and working outward to part-time and variable hour
employees. Where more than one employee in a tier is interested, the Town generally runs a
random drawing, with Town Manager discretion to place a household based on size or
circumstance.
• Rights of purchase. Pre-qualification runs through the Housing Trust or the Housing Department.
Once the Town is notified a right is available, the Director of Internal Services notices all employees
with a deadline. Section 418 offers rights of purchase to full-time employees, with preference to
employees who have completed two consecutive years of employment immediately preceding
the drawing. Selection is by weighted drawing, and an employee receives one entry for each year
of employment completed with the Town.
The guidelines themselves are reasonably clear; the problem is more that employees don’t always know
how the process works, which makes it feel arbitrary. One case illustrates the cost: an employee already
struggling with housing was told nothing was available, and then saw a new position posted shortly
afterward with housing attached. Both things were true and consistent with policy. The employee had
no way to know that. This is the heart of the trust problem--and can be fixed.
Two gaps in the written guidelines are worth closing at the same time. Nothing states how long a unit
may be held vacant in anticipation of a new hire, making the process feel arbitrary. And the guidelines
do not call for an annual review of leases and rents. If that review is not already happening, adding it
keeps each lease current and each rent in line with the adopted schedule.
There is also no time limit on how long an employee may stay in a Town-owned rental. Once placed, a
household can remain indefinitely. That offers real stability, but also makes turnover in a small inventory
slow and unpredictable. Town management would like to keep it that way, and the trade is a fair one
for a program whose purpose is retention. The way to soften the cost is to make sure long-tenured
renters are also in line for a home of their own through community housing programs.

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Management and Capacity
Housing management touches nearly every corner of Town government. Internal Services and the Town
Manager’s office run the selection process and administer leases. Legal reviews and negotiates leases,
master leases, subleases, rights of rental and purchase, and development agreements, and handles
evictions and lease violations. Facilities handles maintenance and unit turnover, with the Housing
Department assisting on some tenant turnover tasks such as showing units. Finance manages rent
collection, utility and trash payments, and the accounting behind all of it.
This is, on balance, a good use of existing capacity. No single department carries the full weight, and
staff have built expertise in leasing, tenant relations, and turnover. But directors were candid that the
workload pulls staff time away from other essential services, and that the program has grown without
ever being centrally organized. No one owns housing as their primary responsibility, which directors
described as a source of both flexibility and friction. It is also worth noting that the Jackson/Teton
County Housing Department is a County-budgeted joint program rather than a Town department; no
Town position currently owns employee housing.

Maintenance

Figure 45. 940 Simon Lane, representative of the older Town-owned rental stock. Both Simon Lane homes are to be redeveloped
as part of S4 Flats.

Facilities works to be proactive about housing repairs, building capital schedules and inventories so
major systems get replaced before they fail. In practice, most of the work is reactive. The department
manages roughly 350,000 square feet of Town-owned space with four people. From 2014 to 2018 it was
a single person, and before 2014 there was no dedicated facilities function at all. Capacity has grown,
but not as fast as the responsibility.
The effect shows up in the inventory. The two lowest-graded units in the portfolio, both at 145 W.
Hansen, have carried unresolved foundation and ice-dam damage for years. Spending is not the
constraint. The Town spent $544,173 on repairs and maintenance across the portfolio in FY2026 and has
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adopted roughly $302,000 for FY2027. What is missing is a prioritized plan telling the Town which of those
dollars to spend where.
For some of the oldest buildings, the more useful question is whether to redevelop rather than repair,
and that cannot be answered building by building as problems arise. It needs a condition assessment
first.

Housing Support
Beyond units, the Town offers or has considered several tools that help employees with the cost or
logistics of housing without adding to the owned inventory. These tools give employees more flexibility to
find housing that fits their household, and they put more separation between employment and where
someone lives.

Stipends
What it is. A fixed amount of money provided to an employee to help cover housing costs, whether
rent, utilities, or a mortgage, distinct from base pay. It is typically used to offset the cost of living in a
particular place. The Wyoming Department of Transportation is a useful comparison: it is based in
Cheyenne, sets wages against Cheyenne’s cost of living, and offers housing stipends in higher-cost
areas of the state such as Teton County. WYDOT does not offer stipends to all employees.
At the Town, stipends exist in just one place. Sworn patrol officers receive $500 a month, or 50% of rent,
conditioned on living in Teton County, for their first two years of service, funded by the Town. The
program is widely credited with the Police Department’s in-valley residency rate, which the Chief puts
at 68% of officers. Directors outside Police were candid that the one-off nature of it feels inequitable. Six
of eleven department directors raised it independently, without being asked.
The conditions that produced the stipend have changed. The department is stabilized: after a
compensation adjustment intended to bring officer pay to a livable wage, Police has run one
recruitment testing in two years, down from a cadence of eight to ten. Officers have access to the
Town housing program on the same terms as everyone else, and are permitted to take a patrol vehicle
home, which is a commuting benefit only one other department receives. The Housing Department’s
proposed Rules and Regulations update would also give First Responders, including police officers,
preference for deed-restricted homes, a longer-lasting form of support than a two-year stipend.
Maintaining a cash stipend for one department on top of all of that is difficult to defend on equity
grounds, and the equity complaint is not a small one when six of eleven directors raise it unprompted.
Employees want this tool. 68% of survey respondents said they would support stipends, making it the
single most requested form of housing support. The Town Council is considerably more divided. Across
five Council interviews, one member was affirmatively supportive on equity grounds, one called it a
lowest priority, one objected on tax efficiency, one objected to converting a capital expense into a
permanent operating expense, and one was broadly unsupportive. This was the widest split on any
topic covered in the Council interviews.

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Pros

Cons

• Employees support it. 68% of survey respondents indicated
interest in this tool.
• Simple to implement and simple to understand.
• The employee chooses the housing that fits their household.
• Keeps the employer at arm’s length from the landlordtenant relationship.
• Reaches every employee, not only those in a Town unit.

• Relies entirely on the existing market. It does not add a
single below-market home.
• Will never be enough. Market rents remain out of reach
even with a stipend.
• A perpetual operating expense requiring annual Council
approval, with no end point.
• Does not provide housing stability the way a secured unit
does.
• Evidence suggests stipends support commuting rather than
living locally, working against the Town’s transportation and
sustainability goals.
• Added purchasing power flows to landlords and can
support higher rents.
• The Town’s recent compensation study already factored
housing costs into wages, so a stipend request reopens a
question the Town believed it had answered.
• Politically difficult. Public dollars, answerable to the public.
• Opportunity cost. See below.

The opportunity cost is the clearest argument against a new ongoing program. Take an illustrative
stipend of $1,500 per employee per month, three times the Town’s current police stipend and roughly
what it would take to begin to move the needle against local rents. Extended to all ~150 year-round
Town employees it would cost roughly $2.7 million a year. Over ten years that is more than $27 million
spent, with nothing owned at the end of it. The same $2.7 million invested annually would buy roughly
two to three units or five rights of purchase each year, which over ten years is on the order of 25 units or
50 rights. One approach helps every employee a little, every year, forever. The other builds an inventory
that keeps working after the money is spent.

Emergency Housing Fund
What it is. A low or no-interest loan available to an employee facing a one-time, short-term housing
emergency: first and last month’s rent and a security deposit, moving expenses, an unexpected repair,
temporary housing during a pass closure, or a sudden rent increase. The Town does not currently offer
this.
It is the one tool open to every employee regardless of department, tenure, or where they live. It is a
safety net at the moment a household is most exposed, and it revolves as loans are repaid. It does not
close an ongoing affordability gap, and it needs criteria, an application, and a body to review requests.
Other organizations in the community offer this and could provide a model structure for the Town.

Shared Appreciation Mortgage
What it is. The Town provides down payment assistance in exchange for a share of the home’s future
appreciation. The employee repays the original principal plus the Town’s agreed share of appreciation
when the home is sold or refinanced, when the employee leaves Town employment, or at a set maturity
date, rather than through higher monthly payments. The Town has used this once, on a home on Wapiti
Drive, where it holds an equity interest rather than a unit. Restricting the use of this tool to existing homes
within Town limits can support the preservation of existing housing stock, especially if the Town retains a
right of first purchase and is able to buy out the owner and take full title at resale. Town Council would
need to approve these transactions.

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Pros

Cons

• Puts homeownership within reach for an employee who
could not otherwise get there.
• Established programs elsewhere provide a model to work
from.
• Flexible. The appreciation share can be structured to fit the
deal.
• Over time it can become a way for the Town to preserve
existing housing stock by eventually buying out the owner.

• Expensive per household. A large amount of capital helps
one employee.
• Appreciation is not guaranteed, particularly on a short
horizon or a poorly maintained home.
• Funds are tied up for a long period.

Down Payment Assistance
What it is. A loan from the Town that helps an employee make the down payment on a home.
Employers can offer this as a grant or a loan; the Town, as a government employer, can only offer
loans. The Town has not used this tool yet. Saving for a down payment, often 20% of the price, is one of
the biggest barriers to buying a home, and down payment assistance helps employees who already
have the income to qualify for a mortgage get past it. Council approves the program and its criteria
rather than each award. The Town has the authority to make these loans. It has already executed a
shared appreciation mortgage, and the Town attorney has confirmed that down payment assistance is
available to it as well. What remains is drafting the documents.

Pros

Cons

• Less expensive per household than a shared appreciation
mortgage.
• Revolving. Repaid funds help the next employee, unlike a
stipend.
• Flexible structure, from a straight loan to one that forgives a
portion for each year of service.
• Reaches the mid-career employees who want it most. 60%
of employees with six to nine years of service are interested.
• The Town does not need to own, manage, or maintain
anything.
• Pairs well with a right of purchase, closing the financial half
of the gap when a unit comes available.

• The amount the Town can reasonably offer supports a
deed-restricted home in the valley or a market home outside
it, not a market home in Jackson.
• Funds are tied up for a long period to help one household.
• If tied to continued employment, it links a household’s
home to their job.

Indirect Assistance
What it is. Existing Town practices that reduce the cost and friction of getting to work for those who
commute: START bus passes, take-home vehicles for police officers and some Public Works employees,
flexible schedules, and remote work where a position allows it. Regionally, about 42% of Teton County
employers offer some form of commute assistance, and telecommuting is the most common option,
offered by 45% of those employers, according to the 2022 Teton Region Housing Needs Assessment.
The Town covers the cost of a START bus pass in full for employees who ride a certain number of days
per month. Seven employees have taken advantage so far, which is a modest cost for a meaningful
benefit. Take home vehicles make commuting easier and less expensive for employees. Flexible
schedules allow employees to align work hours with the commuter bus schedules, and remote work
opportunities ease the commuting burden and take trips off the road. One tool is not currently in use but
could be. Town policy does not permit an employee to use a Town e-bike or vehicle for errands during
the workday. This has the unfortunate effect of discouraging employees from riding the bus to work, as
they are stuck at the office during the day.

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These tools are inexpensive, and can be structured to reach every employee, not just commuters. These
benefits can be assigned by position, rather than by individual. Applying these policies across the
workforce, instead of just to those who commute, will help address equity concerns.

Purchasing an existing market unit
Buying a market-rate unit gives the Town control over occupancy, management, and resale. There are
no income limits on who lives there, no deed restriction setting the rent or capping the resale price, and
no partner organization whose consent the Town needs before renovating a unit, changing its rent,
reassigning it to a different employee, or selling it.
It is faster than building, spreads Town rentals across existing neighborhoods, and can preserve homes
that would otherwise become short-term rentals or high-end redevelopment. The costs are high
purchase prices, staff time to find and close on a unit, and older buildings: most suitable market
condominiums were built before 2002, so dated finishes and low energy efficiency are likely. The Town
also competes at this end of the market with the employees it is trying to house, and buying an
occupied unit can displace a local household.
What the market looks like
Over the last twelve months the Teton County condominium and townhome median sale price has run
at roughly $1.125 to $1.2 million, up about 18% year over year as of mid-2026. Units within the Town of
Jackson are the primary supply source in this price band. Town is the only sub-market with a steady flow
of condominiums and townhomes between $1 million and $3 million, and it accounted for roughly 45 to
48% of all valley transactions through 2025 into 2026.6
The realistic targets for the Town are the older, more attainable complexes: Ponderosa Village,
Powderhorn Lane, Miller Park Lofts, and similar buildings from the 1970s through the 1990s. Two-bedroom
units there typically run 600 to 1,400 square feet. Condition varies widely, from fully renovated with new
flooring, cabinets, and baths, to entirely original finishes. Parking is usually surface and assigned rather
than garaged. These sit at the lower end of the price band, often $650,000 to $1.4 million.

Purchasing a deed-restricted Workforce unit to rent to employees
Instead of a market unit, the Town can buy a designated “Workforce” unit, deed-restricted through the
Jackson/Teton County Housing Department, and rent it to employees. Workforce units must be
occupied by members of the local workforce: someone averaging 30 hours a week for a local business
and earning at least 75% of household income from it. Town employees will most likely qualify. There are
no rent, income, or asset caps on occupants, and the Housing Department requalifies occupants
annually.
Compared with a market unit, a Workforce unit is priced lower, is often newer with lower near-term
maintenance, usually sits within Town limits, and has no rent cap, so the Town sets rent under its own
schedule. The restriction keeps the home in the local workforce, which is why the Town would buy it. In
exchange, appreciation is capped, a future sale is limited to a restricted buyer pool, and units tend to
be smaller with less parking.
Recent Workforce sales show the range: a 1-bedroom, 500 square foot unit at 105 Mercill Avenue sold
for $404,308 in January 2026 and a comparable unit for $413,244 in August 2025; a 2-bedroom, 960
square foot unit at Westview Condominiums sold for $789,100 in mid-2025. Market two-bedrooms in the
older complexes described above run roughly $650,000 to $1.4 million, often with original finishes. A

6 Source: 2026 MLS data.

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Workforce two-bedroom can deliver a newer home for less, in exchange for a capped resale value that
matters little if the Town intends to keep it.

Housing Organizations and Community Housing
Three organizations build and steward below-market homes in Teton County. Each serves a different
part of the income range, and together they reach almost the whole of the Town’s workforce.
Organization

Who is eligible

What it offers

How homes are allocated

Jackson Hole Community
Housing Trust. Nonprofit
developer since 1991

Up to 120% AMI, with government
employees, including Town employees,
exempt from the income limit. 30 hours a
week of year-round local work; net asset
limit of $356,400

Permanently restricted ownership homes
and 35 rentals. Nelson Drive, 36 rentals,
where the Town holds six rights and 13 units
are set aside for Bridger-Teton National
Forest employees

Ranked, point-based pool:
residency, time in the pool, local
employment with a bonus for
essential services, volunteer hours

Habitat for Humanity of the
Greater Teton Area. Nonprofit
since 1995

30 to 80% MFI, income earned in Teton
County, 300 hours of sweat equity,
homeowner education, no real estate
owned in the prior three years

Ownership only. Parkside at Benson-Brown
Station, 18 homes; about 200 homes
planned at Northern South Park

Application and committee
review, typically 18 to 24 months

Housing Department,
Four bands up to 160% MFI; asset limits;
Affordable program. Joint Town minimum household size by bedroom
and County department
count; income from a local business

Deed-restricted ownership and rentals
across more than 36 developments. Rents
capped by band; appreciation capped at
CPI, up to 3% a year

Weighted drawing: one entry per
year of consecutive full-time local
employment, up to ten; one extra
for Critical Services Providers

Housing Department, Workforce No income ceiling or asset limit; at least
program
75% of household income earned locally

No rent cap; appreciation capped on most
units

Same weighted drawing

Sources: published program rules and eligibility criteria, August 2026. Housing Department programs require at least one adult working 30
hours a week at a local business and prohibit other residential real estate within 75 miles driving distance of Jackson. Deed restrictions run
in perpetuity.

Two points matter most for this strategy. Housing Department entries accrue whether or not an
employee is actively looking, so an employee who joins the list on their first day is competitive at about
the six-year mark, when survey data says employees want to buy. And 31% of Town employee
households fall within the band Habitat serves, with about 200 homes planned at Northern South Park,
anchored by a $15 million challenge gift from the Hughes Charitable Foundation. Neither costs the
Town anything to point employees toward.
The Housing Department’s Rules and Regulations are being revised. The proposed update would give
First Responders, including police officers, preference in the allocation of deed-restricted homes. That
gives officers a path into deed-restricted housing that does not depend on a Town stipend.
Northern South Park
Entitlements are expected before the end of 2026, after which the Housing Trust and Habitat will begin
development plans for their blocks. Conversations about the Town potentially buying rights of purchase
from the Housing Trust would happen through 2027, with commitments that year and money required
from 2028 for the first units. The funding schedule below reflects that sequence.
Community housing and employee housing
The Town also invests in community housing through the Housing Department, housing mitigation, and
density bonuses, and those investments serve the wider local workforce. The pipeline creates real
opportunities for employees and for Town rights. It also creates friction: employees see many new units
as too expensive, product and parking often do not match employee households, the two purposes
compete for the same land, and an employee who buys a community housing home can leave Town
employment. One councilor described the Nelson Drive debate as one in which housing advocates did
not appreciate the Town acting as an employer.
“Put on our own oxygen mask before helping others.”
Town Council interview

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That is not an argument against community housing. It is an argument for being clear about which
purpose each dollar serves. Where the Town invests in a project that does not produce units its own
employees can use, count it as a community housing investment, not an employee housing one.

Town-Owned Land
The Town owns several parcels and building sites, mapped in Figure 42. Land is the one cost in the
development stack the Town can eliminate outright, and doing so removes roughly a seventh of the
total cost of a home. It is also a use the 2022 SPET funds were explicitly approved for.
Town-owned site

Current condition

Housing potential

465 Flat Creek Drive (Karns
Meadow), three lots

Vacant, approximately 24,000 sq
ft, zoned NL-3, not yet
subdivided

Subdivide into three lots and build three single-family homes

55 Karns Meadow Drive (START
facility)

Transit operations

Room for roughly 12 one- and two-bedroom units, about 26,000 sq
ft, mostly seasonal housing next to the transit operation

149 East Pearl Avenue

Town operations and rental units

Part of facilities planning, and any redevelopment must at
minimum replace the employee housing on the site today

Public Works facility

Operations yard

Same facilities planning process. Small seasonal units for crews
working extended shifts during a storm cycle

400 W. Snow King Avenue,
phase 2

East building built; maintenance
below, dorms above

Remaining building approved but not funded

2110 Hidden Ranch lot

Vacant, park exaction

Open space parcel, not a development site

South Park Loop industrial park
lot

Vacant

Likely reserved for Public Works or Police; accessory units possible

Figure 48. The Town’s vacant lots on Flat Creek Drive, the recommended first development site.

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Two sites the Town has looked at are not on this list, and it is worth saying why. Relocating a home at 675
and 685 E. Hansen onto a new foundation to open a third buildable lot has been examined and is not
recommended for redevelopment due to the highly functional nature of the existing development. The
90 Virginian Lane project is on hold. If it moves forward it would be an opportunity to buy units to rent to
employees, or to buy rights for employees to purchase. The delay at 90 Virginian Lane is not a reason to
delay Flat Creek Drive, which the Town should develop either way.
Flat Creek Drive is approximately 24,000 square feet, zoned NL-3, and intended under the original
agreement with the Karns family to be subdivided into three lots of roughly 7,500 square feet. Until that
subdivision happens the whole parcel supports one single-family home with one accessory residential
unit. Once subdivided, each of the three lots supports one home and one accessory unit.
The Planning Department has indicated that it does not support a rezone to reach higher density. NL-4
would be the most that might be considered, with the caveat that the original agreement and the
conservation easement contemplated three single-family homes. Whether additional units meet that
intent is a question for the Town Manager and Council, and it would require a zoning map amendment
on top of the subdivision. The subdivision itself is a long process. A pre-application takes 45 to 60 days, a
Development Plan roughly 150 days, and the plat roughly 120 days, so even the most direct entitlement
path runs the better part of a year before a building permit is possible.

400 W. Snow King Avenue: aim for use across both seasons
The partial studios at 400 West Snow King work well for winter seasonal employees, the use they were
designed for. The Town’s need for them is concentrated in winter, whereas Teton County’s seasonal
need is in summer (Parks and Rec employees). An agreement to house summer seasonal employees in
the Town’s units, with Teton County or another entity, would keep the building in use through the year
for the use that was intended. Selling the Town’s units would only make sense if the Town moved away
from a seasonal workforce, which this strategy does not assume.

Other Town Goals
Sustainability. The Town’s Sustainability Plan commits to reducing emissions from buildings and prioritizing
multi-modal mobility. Well-built homes with efficient envelopes, heat pumps, and all-electric systems
cost more upfront and less to operate over the decades the Town will own them. And every employee
housed in Town is one not commuting from Star Valley, Teton Valley, or Sublette County.
Investing locally. Employees who live in the valley spend what they earn here. Housing employees
locally keeps that money in the community that pays it out, and moves the Town toward the
Comprehensive Plan goal of at least 65% of those employed locally also living locally.

What It Costs the Town to Secure a Home
Whatever path the Town chooses, it is operating in one of the most expensive housing markets in the
country. Understanding the cost of producing below-market housing is critical to understanding the
path forward for the Town.

The capital gap
Building in Jackson is expensive: materials and skilled labor have to travel or be recruited to a remote,
rural community, and every contractor competes for the same limited pool. The gap between what a
home costs to build and what a Town employee household can pay for it is a critical number in
employee housing. It is why nearly every below-market project in Teton County needs public or
philanthropic subsidy; the Town cannot close this gap by asking employees to pay more. The two charts
below demonstrate the gap for ownership product and rental product, which are very different.
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Town of Jackson Employee Housing Strategy

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Figure 46. The capital gap on an ownership unit. Construction at $675 per square foot; soft costs at 25% of construction and
infrastructure; infrastructure covering two parking spaces, landscaping, sidewalks, road improvements, and utilities. The purchase
price assumes 5% down, a 6.7% thirty-year fixed mortgage, and 30% of income toward total housing cost for a household at 100%
AMI, roughly $120,000, of which about $980 a month goes to taxes, insurance, and HOA dues.

Two things are worth highlighting in the chart above. The household can carry about $330,000 of a
home that costs roughly $1,056,000 to produce, which leaves a gap of about $726,000. That gap moves
with the mortgage rate. A point lower, at 5.7%, the same household could carry about $366,000, which
narrows the gap to about $690,000. And land is roughly a seventh of the total, which is why developing
on land the Town already owns is so appealing: it drops the gap to about $576,000 per home before
anything else changes.
The size of the gap also moves with who the Town is trying to serve. At 80% AMI it is larger; at 150% AMI it
is smaller.

Figure 47. The capital gap on a 30-unit rental project built on land the Town already owns. Construction at $650 per square foot;
infrastructure at $15 per square foot on one acre plus $20,000 per parking space at two spaces per unit; soft costs at 20% of
construction and infrastructure plus a 2% management fee. Rent of $1,653 a month is the HUD Fair Market Rent for a two-bedroom
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Town of Jackson Employee Housing Strategy

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including utilities. Operating expenses of $5,000 per unit per year. Financing at 6% tax-exempt, 30-year amortization, 1.20 debt
service coverage.

The rental picture is the same problem at a different scale, and the arithmetic is worth walking through
because it is will govern rental projects the Town may consider.
Amount

Basis

Construction

$19,500,000

30 units at 1,000 sq ft, $650 per sq ft

Infrastructure

$1,853,400

$15 per sq ft on one acre, plus 60 parking stalls at $20,000

Land

$0

The Town already owns the site

Soft costs and management fee

$4,697,748

20% of construction and infrastructure, plus 2% management

Total development cost

$26,051,148

$868,372 per unit

Monthly rent for a two-bedroom

$1,653, HUD Fair Market Rent

$1,910, Town rate

~$3,000, Hidden Hollow

Gross rental income, 30 units

$595,080

$687,600

$1,080,000

Operating expenses, $5,000 per unit

$150,000

$150,000

$150,000

Net operating income

$445,080

$537,600

$930,000

Loan the rents support

$5,155,251

$6,226,887

$10,771,958

Capital gap

$20,895,897

$19,824,261

$15,279,190

$696,530

$660,809

$509,306

20%

24%

41%

Capital gap per unit
Share of cost the rents support

Loan sized at 6% tax-exempt, 30-year amortization, 1.20 debt service coverage. The Town rate is the adopted FY2027 two-bedroom rent.
The Hidden Hollow rent is the approximate two-bedroom rent reported by Town staff.

At rents employees can pay, about four of every five dollars to build a project must come from
somewhere other than the rent roll. At $1,653 a month, HUD’s Fair Market Rent for a two-bedroom, the
building supports about $5.2 million of debt; at the Town’s own two-bedroom rate of $1,910, about $6.2
million. Even at roughly $3,000, what Hidden Hollow charges for a two-bedroom, it supports about $10.8
million, and more than half the cost still needs another source, at a rent well above what employees say
they can pay.
Nelson Drive shows the same gap in a real project: $47.3 million for 36 units, or about $1.3 million a unit,
with the gap closed by grants, philanthropy, and partner investment. The Town’s $675,000 per right is
about half of the cost of a unit there.

Funding for Employee Housing
The Town has three identifiable pots of money connected to employee housing today, each with its
own restrictions, and two further sources it is not yet using.
Identifiable Town Housing Funding Sources
Fund

Amount

Eligible uses

Notes

$10,000,000

Land and construction of Town
employee rental housing

$4,050,000 committed to six rights of
rental at Nelson Drive, leaving $5,950,000.
Received in installments; the full
$10,000,000 is expected by June 30, 2028

Employee Housing
Fund

$2,930,763 projected
FY2027 ending
balance

Employee housing support,
including maintenance of
existing units

Used to purchase a right of first purchase
at 174 King Street in 2026 for
approximately $275,000

Housing Mitigation
Fees

Not available for this
purpose

Community housing only

Cannot be used for housing that serves
only Town employees

2022 SPET

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Town of Jackson Employee Housing Strategy

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The 2022 Town Employee Housing SPET measure was approved by voters with specific ballot language:
"$10,000,000 for the purchase of land and planning, designing, engineering, and constructing Town of
Jackson employee rental housing." Those funds are restricted to rental housing and the land it sits on.
This is a central funding constraint in this strategy. The Town’s largest pot of money cannot be used for
the tools employees ranked highest, which are housing support and help getting into ownership. It is
worth being clear that this restriction comes from the ballot language voters approved in 2022, not from
anything inherent in a SPET. A future measure could be written differently.
The funding schedule assumes the full $10,000,000 is received by June 30, 2028. It also assumes
$3,000,000 of it can be used to buy existing homes to rent to employees, a use the Town Attorney has
reviewed.

The Employee Housing Fund
The Employee Housing Fund is where rent from Town-owned and master-leased units is deposited. It
pays for operating the units, repairs and maintenance, the master lease subsidy, a transfer to the
General Fund for staff time, and occasional acquisitions.
FY2024 actual

FY2025 actual

FY2026 actual

FY2027 adopted

Total revenue

$770,793

$914,679

$900,728

$928,294

Rents

$586,583

$690,331

$816,661*

$745,504

Master lease revenue

$43,437

$92,934

*

$83,790

Interest earnings

$140,348

$131,004

$85,581

$99,000

Total expenditures

$388,657

$504,325

$998,918

$657,641

Repairs and maintenance

$210,440

$189,035

$544,173

$301,673

Master lease expenditure

$125,924

$246,054

*

$136,440

Transfer to the General Fund

$87,846

$115,185

$122,926

$111,363

Total uses

$476,503

$619,510

$1,121,844

$769,004

Ending fund balance

$2,635,201

$2,930,370

Not closed

$2,930,763

Sources: Town of Jackson Fund 205 revenue and expenditure report for the 12 months ending June 30, 2026; Town of Jackson Adopted
Budget for Fiscal Year 2027. *FY2026 actuals carry master-leased units as individual rent accounts, so master lease revenue and
expenditure are not separately identified; the rents figure includes them. The FY2026 ending fund balance was not closed at the time of
this report. FY2026 expenditures include a $275,000 revolving rights purchase. Component lines are drawn from budget book line items and
do not sum exactly to the fund report totals, because small miscellaneous accounts are not shown separately.

Three things are worth noting. FY2026 ran a deficit of $221,116, driven by the King Street rights purchase
and by repairs and maintenance running to $544,173, more than double the prior year. Master lease
costs are budgeted to fall by more than half in FY2027 as leases roll off. And the Fund transfers roughly
$111,000 to $123,000 a year to the General Fund as an indirect cost allocation. That transfer reimburses
the Facilities (Public Works), Internal Services, and Finance staff time spent on housing. Legal time is not
part of it. It is a real cost of running the program.
Rent does not fund the capital in this strategy. The acquisition and construction money comes from the
$10,000,000 of 2022 SPET, a proposed $1,000,000 annual General Fund commitment from FY2030, and a
proposed 2028 SPET (described more fully below). Rent can, however, likely fund the Housing Manager.

Can rent revenue fund the Housing Manager?
Once a Housing Manager is in place, Internal Services and Public Works would carry about half of the
housing work they do today, which reduces what the Employee Housing Fund reimburses the General
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Town of Jackson Employee Housing Strategy

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Fund. The test below asks whether that saving, plus rent above operating costs, can pay for a property
manager and the Housing Manager. Operating costs use mid-level monthly estimates for a Jackson
Hole unit. The utilities and insurance lines alone come to $226,800 a year across 42 units, close to the
$219,528 of non-maintenance operating cost in the FY2027 budget, which is a useful check on the
estimate.
If the units are exempt from
property tax

If the units pay property tax

Rent, FY2027 adopted

$745,504

$745,504

Utilities, insurance, maintenance, and reserve, $690 per unit per month

($347,760)

($347,760)

Annual, 42 rent-paying Town-owned units

Property tax, $340 per unit per month

($171,360)

HOA dues, about three units in an association, $450 a month

($16,200)

($16,200)

Transfer to the General Fund, after the reduction

($74,242)

($74,242)

Property manager, placeholder at 8% of rent

($59,640)

($59,640)

Housing Manager, salary and benefits

($160,000)

($160,000)

Left over

$87,662

($83,698)

Sources: Jackson Hole cost estimate, mid-level monthly costs per unit: utilities $300, insurance $150, routine maintenance $90, long-term
reserve $150, property tax $340, HOA dues $450. Town of Jackson Adopted Budget for FY2027. The 42 units are the 30 Town-preference and
12 County-preference units that pay rent; the bunkhouse is excluded. The FY2027 transfer of $111,363 is split evenly across Facilities, Internal
Services, and Finance, and the Facilities and Internal Services shares are cut in half, a saving of $37,121. The property manager rate is a
placeholder until quotes are obtained. Interest earnings ($99,000 in FY2027) are excluded because they fall as the fund balance is spent,
and the master lease subsidy ($52,650 in FY2027) is excluded because the leases are being phased out.

Three things decide the answer.
• Property tax. If Town-owned employee housing is exempt, rent covers the position with about
$88,000 to spare. If it is not, rent falls about $84,000 short.
• Maintenance has to come down to a normal level. The estimate above carries about $121,000 a
year for maintenance and reserve. The Town adopted $301,673 for repairs and maintenance in
FY2027 and spent $544,173 in FY2026, much of it deferred work. At today’s repair budget, even the
tax-exempt case is about $93,000 short. The roughly $181,000 difference is close to the cost of the
position, which is why the maintenance catch-up and the Housing Manager belong together.
• The transfer reduction has to be real. It should be budgeted when the position is created, not
assumed.

Sources not yet in use
• A 2028 SPET dedicated to employee housing. Council has expressed interest in a measure for the
November 2028 ballot, provided the Town first makes demonstrable progress on the use of the 2022
SPET funds and this strategy, so that voters are asked to approve defined projects. It is the most
consequential funding decision in the strategy. The Town Council sets the ballot language and
therefore what the funds may be used for.
• An annual General Fund commitment. One councilor put it plainly: set up a plan to allocate $1 to
$2 million a year into the Employee Housing Fund and augment it with SPET. That is a different
funding posture from the opportunistic one the Town has run on, and it is realistic if Council commits
to it. This strategy assumes $1,000,000 a year from Year 4 onward.
• Debt capacity. The Town is essentially debt free and has bonding capacity, and there is interest in a
revenue bond tied to a 2028 SPET as a way to get the money sooner. What supports debt is a
revenue stream pledged to repay it; the Town’s credit rating affects the interest rate. Two revenue
streams could repay housing debt. One is SPET collections. The other is the rent from a new rental
building: as the capital gap analysis above shows, a new 30-unit building’s rents, net of its own
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Town of Jackson Employee Housing Strategy

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operating costs, support a loan of about $5.2 million over 30 years, roughly one dollar in five of its
cost. That is project-level debt, repaid by that building for the life of the loan. It does not extend to
the existing units, whose rents are committed to operating and maintaining them, a reserve, and
the Housing Manager.
• A fifth cent of general sales tax. Both the Town and the County would have to approve it. In
practice there will likely be one additional penny in 2028, either as a SPET penny dedicated to
specific projects or as a general penny the Town and County have discretion over. Either way there
is a 2028 measure, and the question is what the ballot says it is for.
• Philanthropy. The Hughes Charitable Foundation’s $15 million challenge gift to Teton Habitat at
Northern South Park shows what philanthropy can do for community housing here. Philanthropy is
unlikely to be available for housing that serves only Town employees but may be an option for the
police department who are life-safety employees.
What bonding is and is not
A bond is not more money. It is the same money earlier, borrowed against a revenue stream that will
repay it. Tied to a 2028 SPET, that stream is the SPET collection itself, and bonding lets the Town build
while construction costs are known rather than waiting years for the tax to come in. Rent from the
existing units will not repay a program bond: they are sized to cover operations, repairs, maintenance, a
reserve for major capital work, and, as recommended, the Housing Manager. A new building can carry
a loan sized to its own rents, but that covers only about a fifth of its cost.

6. Recommendations, Timing and Funding
The Town’s goal is to be a leader in employee housing. This section sets out the recommendations,
timing, and funding sources for the Town to prioritize over the next 10 years. Four strategies run at the
same time, not one after another, because they draw on different pots of money, are implemented by
different people, and serve different employee housing needs.
Recommendations summary:
• Hire a Housing Manager and contract a property manager. The Housing Manager is integral to this
strategy. Progress on employee housing does not happen reliably without someone who owns the
program, and an outside contractor that manages and maintains the buildings.
• Provide housing support that reaches every employee. No new stipend program, and phase out
the Town-funded police stipend. An Emergency Housing Fund open to everyone, and written
policies on bus passes, Town vehicles, e-bikes, flexible schedules, and remote work.
• Optimize the housing program the Town already runs. Grade the scattered-site units, catch up on
deferred maintenance, adjust rents for condition and size, publish the selection process, review
every lease once a year, and reserve the partial studios for seasonal employees.
• Help employees purchase. Get every employee onto the community housing lists at onboarding
and during performance reviews, offer down payment assistance, including to help the rights of
purchase the Town already holds get used, offer a shared appreciation mortgage at small scale,
and keep buying rights of purchase on negotiated terms. Result:13 placements.
• Expand the inventory the Town owns. Build three single-family homes at Flat Creek Drive, build
roughly 12 units at the START facility, most for the seasonal workforce, buy three existing homes to
rent to employees, and put housing into Town capital projects where it fits. With the six Nelson Drive
rights of rental, 24 placements result.

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Town of Jackson Employee Housing Strategy

DRAFT September 2026

Implementation Timeline
Short-term is years 1 and 2, mid-term is years 3 through 5, and long-term is years 6 through 9. Year 1
corresponds to fiscal year 2027.
Short-term
Tool

Yr 1

Yr 2

Mid-term
Yr 3

Yr 4

Long-term
Yr 5

Yr 6

Yr 7

Yr 8

Yr 9

Increase Capacity
Deputy Town Manager
Housing Manager

Hire FY2028

Third-party property manager

Contract

Housing Committee

Establish

1. Provide Housing Support
Indirect assistance
START bus passes

Complete

Take-home Town vehicle

Update policy

Use of Town e-bike and vehicle

Update policy

Flexible schedules

Update
policy

Remote work

Update
policy

Stipends: no new program

Complete
Create
policy

Emergency Housing Fund

2. Optimize Existing Housing Program
Condition assessment, 17 units

Grade,
evaluate,
workplan
$1,000,000
against the
assessment

Deferred maintenance catch-up
Adjust rental rates
Annual lease and rent review
Clarify selection process

July 1, 2027
Add to
guidelines
Communicate
with
employees

Vacancy hold limit, three months

Update
guidelines

Phase out master leases

Two leases
end

Ideally
complete
Explore
agreement

Summer seasonal use of 400 W. Snow King

3. Help Employees Purchase
Housing in onboarding and performance
reviews
Annual employee briefing by the three
organizations

Establish
program
Host

Rights of purchase

Establish
terms,
negotiate
when
available

Down payment assistance

Set up
criteria,
make
available
Set up
criteria,
make
available

Shared appreciation mortgage

4. Expand Inventory of Town-Owned Employee Housing
Develop on Town-owned land
Flat Creek Drive, 3 homes

Subdivide,
design

Construction
Design and
construction

START facility, ~12 units
Other Town-owned sites

Assessment

Purchase existing inventory

Realtor on
retainer

Page 61

Planning

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Short-term
Tool

Yr 1

Mid-term

Yr 2

Yr 3

Yr 4

Long-term
Yr 5

Yr 6

Yr 7

Yr 8

Yr 9

Include in
facilities
planning

Other Town capital projects
Rights to rent

Nelson Drive

Amount to Invest Over Time
The Town has roughly $2.9 million in the Employee Housing Fund and $10 million from the 2022 SPET, the
latter expected in full by June 30, 2028. Neither is enough on its own, and the 2022 SPET is restricted to
rental housing and the land it sits on, which is not where employees say they most want help. Two further
commitments close the gap: a 2028 SPET, which Council would frame and voters would decide, likely in
November 2028, and an annual General Fund investment of $1 million beginning in FY2030. Both are
recommendations of this strategy, not existing sources. A fifth cent of general sales tax is being
discussed but is not assumed anywhere in this schedule.
RECOMMENDATION

Plan now for a 2028 SPET dedicated to employee housing. Candidate projects include the Flat Creek
Drive development (discussed below) and the START facility at 55 Karns Meadow Drive. Both are
concrete and both are on land the Town already owns. Design and planning need to be far enough
along by the spring of 2028 for a November 2028 ballot.
Ask Council for a standing General Fund commitment of $1,000,000 a year beginning in Year 4,
reviewed every two years. Tie it to the biennial survey and the annual report. The progress model in
the final section shows that reaching 70% by FY2035 takes about $2,000,000 a year beyond the
funded plan, so this commitment is a floor, and the review is where to raise it.
Write the 2028 ballot language to allow ownership as well as rental. The 2022 measure is restricted to
rental housing and the land it sits on, which is why the tools employees ranked highest cannot be
funded from the Town’s largest pot of money. Council is not bound by that precedent. Broader
language would let the same dollars buy rights of purchase or fund down payment assistance,
which would change the shape of this program.
Consider bonding only against an approved 2028 SPET.

One thing this schedule does not assume is replenishment from rent revenue. Rents cover operations,
repairs, maintenance, and a reserve for major capital work. Every dollar in the table below comes from
previously committed funds in the employee housing fund, SPET, or from a General Fund commitment.
Program

Fund

Emergency Housing Fund

HF

$50,000

$50,000

Address deferred maintenance

HF

$1,000,000

$1,000,000

Down payment assistance

HF

$400,000

Shared appreciation mortgage

HF

Rights of purchase

HF

Rights to rent

SPET 22

FY2027

FY2028

FY2029

FY32-35

$500,000

$500,000

$1,000,000

$1,000,000

$2,000,000

$4,000,000

$4,000,000
$4,000,000

$2,000,000

Develop on Town-owned land

SPET 22, 28

$200,000

$3,300,000

$4,650,000

$4,200,000

$4,000,000

Total

$800,000

SPET 22, 28

Page 62

FY2031

$400,000

Buy existing housing stock

Annual investment

FY2030

$1,000,000

$1,000,000

Town of Jackson Employee Housing Strategy

$3,000,000
$1,000,000

$11,000,000

$15,500,000

$2,000,000

$13,000,000

$28,850,000

DRAFT September 2026

Program

Fund

Placements, year-round

FY2027

FY2028

FY2029

FY2030

FY2031

FY32-35

Total

6

6

6

1

2

8

29

8

8

Placements, seasonal

Source: Town of Jackson funding schedule, September 15, 2026. HF is the Employee Housing Fund. SPET 22 is the 2022 Specific Purpose
Excise Tax; SPET 28 is a recommended 2028 measure. Unit assumptions: rights of purchase at $500,000 each, down payment assistance at
$200,000 per award, existing housing at $1,000,000 per unit. Develop on Town-owned land is approximately $3,500,000 for three singlefamily homes at Flat Creek Drive and approximately $12,000,000 for roughly 12 units at the START facility. The Nelson Drive commitment is
$4,050,000; the schedule rounds to $4,000,000. The deferred maintenance catch-up is shown in FY2028 rather than FY2027, so it is spent
against the condition assessment rather than ahead of it.

Against that, the sources:
Funding source

FY2027

FY2028

FY2029

FY2030

FY2031

FY 32-35

Total

Employee Housing Fund

$3,000,000

$3,000,000

2022 SPET

$10,000,000

$10,000,000

2028 SPET

$5,000,000

$5,000,000

Town General Fund investment

$1,000,000

$1,000,000

$4,000,000

$6,000,000

$6,000,000

$6,000,000

$4,000,000

$29,000,000

$5,150,000

$9,150,000

$150,000

Total available

$13,000,000

Cumulative balance

$9,000,000

$4,350,000

$150,000

$10,000,000

The 2022 SPET is shown in full in FY2027 for simplicity. Distribution is approved by the Board of County Commissioners through December
2027, and the full $10,000,000 could be received by June 30, 2028. The FY2027 commitment is the Nelson Drive payment, which is due as
the units are delivered in FY2028.

The plan balances. Over the period it commits $28,850,000 against $29,000,000 of identified investment,
the cumulative balance never goes negative, and it delivers 37 placements: 29 year-round and 8
seasonal. The cumulative balance is the running difference between what has been received and
what has been committed.
Where the 37 placements come from

Year-round

Seasonal

Expand inventory: 24 placements
Rights of rental, Nelson Drive

6

Existing homes bought to rent to employees

3

Flat Creek Drive, three single-family homes

3

START facility, roughly 12 units

4

8

Help employees purchase: 13 placements
Rights of purchase, $4,000,000 at $500,000 each

8

Down payment assistance, $800,000 at $200,000 each

4

Shared appreciation mortgage

1

Total

29

8

The plan depends on three decisions the Town has not yet made, and the schedule should be read as
conditional on all three: hiring a Housing Manager, a successful 2028 SPET, and a standing General Fund
commitment from FY2030. On its own it does not reach 70%, as the final section of this report shows.

Recommendations

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DRAFT September 2026

A. Increase Capacity
The Housing Manager is integral to this strategy. Every recommendation that follows assigns work to the
position. Without it, housing stays spread across departments whose first responsibility is something else,
and no Town housing program is likely to make meaningful progress toward 70%.

Housing Manager
The role. A new full-time position reporting to the Deputy Town Manager, owning the Town employee
housing program end to end. Two boundaries define it. It is for Town employee housing only; it does not
manage community housing, which is the Jackson/Teton County Housing Department’s work. And it
does not do day-to-day property management, which is contracted out. What it does is coordinate the
work that already sits across Internal Services, Legal, Facilities, and Finance, keep projects moving, and
be the single point of contact for employees.
Responsibilities.
• Own and maintain the Employee Housing Strategy, and report annually to Council and to
employees on progress against the 70% goal.
• Run the selection process for units and rights, and communicate it clearly to all employees.
• Own the condition assessment and grading system, and set annual rent adjustments against it.
• Manage the deferred maintenance workplan and the property management contract, working
through Facilities and third-party contractors.
• Track partner projects at the Housing Trust, Teton Habitat, and the Housing Department; negotiate
rights of rental and purchase; and articulate the terms and product types the Town wants for its
investment.
• Administer the Emergency Housing Fund, down payment assistance, and the shared appreciation
mortgage, with the Housing Committee setting criteria and reviewing applications.
• Manage the owner’s representative on Town development projects such as Flat Creek Drive.
• Get every new employee onto the community housing lists, and keep housing in front of existing
employees.
• Oversee the biennial employee housing survey and report progress against the 70% goal.
• Manage the master lease portfolio through to phase-out.
Cost. The role is comparable in scope to the Town’s existing Facilities Manager, Streets Manager, and
Water Utility Manager positions, which sit at Grade 7 in the FY26 exempt classification structure, ranging
from $103,490 to $144,886, with a published midpoint of $120,738. Budget the position at the Grade 7
midpoint of approximately $120,700 in salary, or roughly $157,000 to $163,000 fully loaded at a typical
municipal benefits rate of 30 to 35%.
This is a new position, budgeted for FY2028 and starting July 1, 2027. It is not an expansion of an existing
role.
Scale and funding. The position costs roughly $160,000 a year, and the strategy it would carry out
commits $28.85 million over nine years. Rent can likely fund it, as set out under ”Can rent revenue fund
the Housing Manager?” above. Its workload is set out under Capacity Summary below.

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Town of Jackson Employee Housing Strategy

DRAFT September 2026

Third-party property management
The Housing Manager runs the program. Someone else should run the buildings. Once benefits,
turnover, and training are counted, contracting property management costs about the same as
adding in-house staff, and it buys two things staff cannot. It puts an arm’s length between the Town and
the landlord-tenant relationship it has with its own employees, which is a genuinely awkward relationship
for an employer to hold directly. And it keeps the Housing Manager on strategy, negotiation, and
project delivery rather than on maintenance calls and unit turnovers.
The Jackson/Teton County Housing Department currently shows units for the Town. With a property
manager under contract, that arrangement would no longer be needed.
RECOMMENDATION

Create the Housing Manager position, reporting to the Deputy Town Manager, in the FY2028 budget.
Budget at Grade 7, approximately $120,700 in salary or $157,000 to $163,000 fully loaded. The role
covers Town employee housing only.
Fund the Housing Manager from the Employee Housing Fund once repair spending reaches a normal
level, and reduce the General Fund transfer to reflect the work the position takes on. In FY2028, while
the catch-up is underway, expect a gap of up to about $93,000 that the General Fund or the fund
balance would need to cover.
Contract with a third-party property manager for day-to-day management of the Town-owned and
master-leased inventory, and remove that workload from the Housing Manager.
Establish a Housing Committee comprising the Deputy Town Manager, the Housing Manager, staff
from the departments with housing implementation roles (Internal Services, Legal, Finance, and
Public Works), and employee representation. The Committee sets criteria and reviews applications
for the Emergency Housing Fund and down payment assistance, and recommends awards to the
Town Manager, who decides and signs. Until the Committee is established, the Deputy Town
Manager makes these decisions.
Timing. Deputy Town Manager sponsorship in Year 1, Housing Manager and property manager in
Year 2. Everything else in this section assumes both exist.
Obtain two or three quotes for the property management contract so it can be carried in the FY2028
budget.
Capacity. One new full-time position at approximately $160,000 with salary and benefits, and a
property management contract, both funded from the Employee Housing Fund where rent allows.
Roughly 8 hours a month of Deputy Town Manager time, 2 hours a month per Housing Committee
member, and 8 hours a month for the Housing Manager to oversee the property management
contract.

B. Provide Housing Support
This strategy reaches every Town employee, not only the roughly one in five who live in a Town-owned
unit. It is the one strategy that touches everyone regardless of where or how an employee currently
lives, which is why the Working Group ranked it highly.

Address equity
Fairness was the most consistent theme in Department Director interviews. Six of eleven directors raised it
independently, without being asked. The concern is not that any one program is wrong. It is that
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discretionary decisions are not communicated clearly to employees: who receives housing support and
why. The Police stipend is the example directors cited most often, and none of them objected to
supporting police recruitment and retention. What they wanted was clarity.
“Employees want to feel heard and valued, and a half-built system creates friction instead of trust.”
Town of Jackson Department Director

Recommendations
RECOMMENDATION

• Do not create a new ongoing stipend program, and phase out the police stipend. Honor
commitments to officers currently within their two-year eligibility and do not extend it to new
hires. The recent compensation adjustment addressed the wage question, and the Housing
Department’s proposed Rules and Regulations update would give First Responders, including
police, preference for deed-restricted homes. Employees requested that the Town revisit this
question if the Town is not investing an amount comparable to the cost of a town-wide stipend
program in housing it builds or buys. Year 1.
• Maintain no-cost START bus passes for employees who ride the bus a set number of days per
month. Year 1. Modest ongoing cost, currently seven employees.
• Update Town policy to clarify which positions include use of a Town vehicle to drive to and from
work. Assign by position, not by individual. Year 1. Staff time only.
• Update policy to allow use of a Town e-bike or vehicle for errands during the workday. This is not
permitted today, and changing it benefits every employee, not only commuters. Year 1. Staff
time only.
• Allow flexible schedules, assigned by position within each department, recognizing that some
positions have fixed start and end times and adequate staffing must be maintained. Investigate
adjusting public-facing operating hours to align with commuter bus arrival and departure times.
Offer this to all employees to avoid creating a new fairness problem inside the organization. Year
2. Staff time only.
• Allow remote work, assigned by position within each department, recognizing that some
positions must be performed on site. Commuting four days a week instead of five is meaningfully
more manageable for an employee and takes cars off the road. Offer this to all employees.
Year 2. Staff time only.
• Establish an Emergency Housing Fund, seeded at $50,000 from the Employee Housing Fund as a
revolving loan pool, with criteria and an application reviewed by the Housing Committee. Year
2. $50,000, one time.
Capacity. In Year 1, roughly 40 hours for the Deputy Town Manager with Internal Services, and Legal
review, to draft and adopt the policies. In Year 2, 40 hours of Housing Manager and Legal time to
build the Emergency Housing Fund criteria, application, and loan documents, then a few hours per
request.

C. Optimize Existing Housing Program
The Town should get the full benefit of what it already owns and manages. This strategy is about the
physical condition of the inventory, its rents, its selection process, and who is accountable for it.

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Update the Town housing stock
With the exception of 400 W. Snow King Avenue, built in 2020, the Town’s rental inventory is older
housing stock carrying deferred maintenance. The first step is knowing what needs attention.
RECOMMENDATION

• Hire a third-party home inspector to walk the 17 scattered-site units and build a prioritized repair
list, beginning with health and safety. The 26 units at 400 W. Snow King Avenue are six years old
and graded A throughout, and are excluded. Scoping the assessment this way brings it inside
the FY2027 budget, so it starts in Year 1 rather than waiting on an appropriation. Take
photographs during the same walkthrough so the inventory document recommended below
comes out of work already being done rather than becoming a second project. Year 1.
• Grade each of those units A through F using a consistent, documented scoring method covering
effective age, structural and envelope condition, building systems, interior finishes and function,
and health and safety. A grading rubric and scoring workbook is provided in Appendix C; the
provisional scores in it are built from the Town’s existing condition notes and should be confirmed
or adjusted on site before they are used for budgeting or rent-setting. The Deputy Town
Manager approves the grading system, and then approves the third party who applies it.
• Repeat the assessment annually, both to identify needed repairs and to set the grade for the
following year’s rent. Combine it with the annual lease and rent review so it is one visit rather
than three.
• Set the near-term target: every unit at Grade B or better.
• Dedicate $1,000,000 from the Employee Housing Fund to catch up on repairs, in FY2028. Year 1
runs on the FY2027 adopted repair budget of roughly $302,000 while the assessment is underway.
Year 2 is when the catch-up money is spent, against a list. An analysis of whether $1,000,000 is
enough follows.
• Hire a third-party contractor to complete the work. Facilities does not have the capacity to
absorb a catch-up program of this size on top of 350,000 square feet of other Town space.
Capacity. In Year 1, roughly 40 hours for the Deputy Town Manager and Internal Services to scope
the inspection and turn findings into a workplan, plus a third-party inspection contract. Facilities
coordinates access. Managing the repair program is roughly a quarter of the Housing Manager
position in Years 2 through 4, with the work itself under a construction contract.

Is $1,000,000 enough? Eight units currently sit below Grade B: five graded C, one graded D, and two
graded F. Budgeting $1,000,000 provides roughly $125,000 a unit. For the five C units, dated systems and
finishes that need a full refresh, that figure is realistic. For the two F units at 145 W. Hansen, one with a
leaking foundation and one with ice-dam damage severe enough that the upper floor is unusable, it is
not. Budget the million as a catch-up on the units worth repairing. If 145 W. Hansen needs complete
redevelopment, that is a separate decision.
Condition grade

Units

Indicative work

A

18

Scheduled maintenance only

B

5

Scheduled maintenance only

C

5

Systems and finishes, one to five years

$625,000, about $125,000 each

D

1

Insulation, envelope, systems

$125,000

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Share of the $1,000,000

DRAFT September 2026

Condition grade

Units

F

2

Total

31

Indicative work

Share of the $1,000,000

Foundation and envelope, or redevelop

$250,000 held, pending the
assessment (return to fund if repairs
not warranted)
$1,000,000

Grades are provisional and exclude 930 and 940 Simon Lane, which are to be redeveloped as part of S4 Flats. 145 E. Pearl Avenue (SiFerrin) Suite C was fully remodeled and upgraded in 2021 and is graded B. For context, the Town spent $544,173 on repairs and
maintenance across the portfolio in FY2026 and has adopted approximately $302,000 for FY2027. This $1,000,000 is a one-time catch-up on
top of that ongoing budget, after which rental revenue is intended to cover repairs, scheduled maintenance, and a reserve for major
capital work.

145 W. Hansen: repair or redevelop
The two Grade F units are the only place in the inventory where the honest question is whether to keep
repairing at all. That decision should be made after the condition assessment, and it carries a wrinkle.
The home is old enough to be a historic preservation candidate, which changes both the cost and the
conversation. It also changes which pot of money pays. If the Town restores the building for its historic
value, that is a General Fund decision. If the Town redevelops the site for housing, it is a housing fund
decision.

Optimize the existing inventory
RECOMMENDATION

• Reserve the partial studios at 400 W. Snow King Avenue for seasonal employees. The format
works well for a few months at a time and is a poor fit for a year-round household, which is
where much of the dissatisfaction with Town housing comes from. The Town estimates
approximately five year-round employees would need to move, and they will need real options:
a Town-owned unit, a deed-restricted home, and in one or two cases a market rental. Assume
the Town needs about four additional Town-owned units before this can be completed, which is
why the recommendation is paired with expanding inventory rather than issued on its own.
Employees do not like the partial studios, but they do like the lower rent, so the replacement has
to be affordable as well as better.
• Set a written three-month limit on holding a unit for recruitment. It is not uncommon for a Townowned unit to sit vacant while a position is being filled, and that is defensible. What is not
defensible is that nothing states how long. Three months, then the unit is released to all
employees.
• Review every lease and rent once a year at the annual inspection, if this is not already done.
One visit sets the condition grade, identifies repairs, renews the lease, and confirms the rent.
• Phase out master leases as replacement inventory comes online. Two leases end in the fall of
2026 and will not be renewed, and neither houses an employee needing to be rehoused.
Continue releasing as leases come up once comparable Town-owned units exist, and redirect
the savings into the housing program. Ideally complete by Year 4.
• Explore summer use of the partial studios with Teton County or another entity. The Town’s
seasonal need is in winter and the County’s is in summer. An agreement would keep the building
in use through the year. Year 2.
Capacity. Carried by the Deputy Town Manager and Internal Services in Year 1, then roughly a
quarter of the Housing Manager position from Year 2, supported by Internal Services on leases and
by the property manager on turnover.

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Clarify and communicate the selection process
RECOMMENDATION

• Publish the policy in plain language: how units are posted, that a vacancy may be held for
recruitment for a stated period, the preference order, and how the drawing works. When a unit
becomes available, email all employees explaining how it will be used. Year 1.
• Keep units and rights on separate tracks. Units: held for new-hire recruitment for up to three
months, then preference through the eleven-tier order beginning with Critical Response
positions, with a drawing or Town Manager decision where multiple employees in a tier are
interested. Rights: offered to full-time employees, with preference to those who have completed
two consecutive years of employment immediately preceding the drawing, and one entry in
the weighted drawing for each completed year of employment. Year 1.
• Publish an inventory of Town-owned units with photos and condition information, sequenced
with the condition assessment above. Year 1.
• Require employees renting a Town-owned unit to be registered on the Housing Trust, Teton
Habitat, and Housing Department lists. Add it to the Operational Guidelines. There is no time limit
on how long an employee may stay in a Town rental, and that stability is worth keeping, but a
household that never hears about an ownership opportunity never takes one. Year 1.
Capacity. Roughly 60 hours in Year 1 to write the plain-language policy and build the inventory
document, carried by Internal Services and the Deputy Town Manager until the Housing Manager
starts, with External Affairs on communication and Legal on the policy amendment. About 10 hours a
year thereafter.

Adjust rental rates
RECOMMENDATION

• Keep the HUD-based approach, adjusted for condition and unit size. A Grade B unit is the
baseline. Approximately +10% for Grade A units, -10% for Grade C and below, studios priced 15%
below the one-bedroom rate. Rates are set by unit, not by household income, so they should
not be treated as taxable income to the employee.
• Take effect July 1, 2027. The FY2027 schedule is already adopted, so the first condition-adjusted
rates apply at the next annual adjustment. This is a Year 2 action, not a Year 1 one.
• Write the grading process into the Employee Housing Guidelines, including who approves the
grading system, who applies it, how often units are assessed, and what an employee does if
they disagree with a grade.
• State the operating principle, tied to the Objectives: rents are set at levels employees are
comfortable paying to live here and thrive, and at a level that adequately supports funding to
maintain the units. Town-owned units are not a profit center. Rents should cover management,
maintenance, and repairs, and should also let a reserve accumulate for major capital work such
as a roof, which means the program is not expected to break even in any single year.
• Publish annually what the program collects in rent and what it spends on management and
maintenance, through the budget process, so the principle is verifiable rather than asserted.
Capacity. Roughly 30 hours of Housing Manager time in Year 2 to apply the grading and set the
schedule, then about 10 hours a year. Requires the condition assessment first.
Applied across the current portfolio, most units move very little. The 18 Grade A units, mostly at 400 W.
Snow King Avenue, rise by roughly 10%, with the partial studios falling by about 5% because the studio
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adjustment more than offsets the condition premium. The eight units graded C or below fall by about
10%. The net effect on rental revenue is close to neutral.
Rate

Studio

1 BR

2 BR

3 BR

Current Town rents, FY2027

$1,431

$1,447

$1,910

$2,510

Grade A condition, plus 10%

$1,355

$1,592

$2,101

$2,761

Grade B condition, the baseline

$1,232

$1,447

$1,910

$2,510

Grade C or below, minus 10%

$1,109

$1,303

$1,719

$2,259

Studios are priced 15% below the one-bedroom rate at each condition grade.

D. Help Employees Purchase
Employees consistently say they want a path to ownership, not only a rental unit. That is loudest among
employees around the six-year mark, who intend to build a career at the Town and want an ownership
opportunity that fits their household. Ownership can offer more separation between employment and
housing, which is what employees want and which is also a challenge for the Town, because an
employee can leave Town employment after securing an ownership unit.
RECOMMENDATION

• Get employees on the community housing lists at onboarding, and prompt it again during
performance reviews. Year 1.
• Host the three housing organizations once a year to brief employees on their programs.
• Offer down payment assistance, and use it to make the rights the Town already holds work. Four
rights at Kelly Place have never been exercised and most of the eight at S4 Flats are not
expected to be, largely because of price. Announce down payment assistance with these rights
when offered to employees. Year 2 to set up, ongoing thereafter. Fund at $400,000 a year for
two years beginning in FY2028, with unused funds rolling over. Funds also available for
employees looking at market or Workforce unit purchase. Council approves the program and its
criteria; the Housing Committee recommends each award to the Town Manager, who decides
and signs.
• Offer a shared appreciation mortgage at small scale. Year 3. Fund at $500,000. Council
approves each one and can pre-approve terms and a ceiling so a specific transaction is not
held up by waiting for an opening on a Council agenda.
• Buy rights of purchase when opportunities are available, likely with the development of Northern
South Park, budgeted at $500,000 each. Year 2 and ongoing.
Capacity. Down payment assistance: roughly 80 hours of Housing Manager and Legal time to build
criteria, application, and loan documents, then about 15 hours per award. Shared appreciation
mortgage: roughly 40 hours to build its documents, which share criteria with down payment
assistance, then about 20 hours per award and some management of shared repairs and
maintenance for the life of the agreement. Rights negotiation is 20 to 40 hours per agreement.

Down payment assistance: terms
• Eligible locations. Teton County, Wyoming, for market or Workforce product. Affordable product is
not eligible. Market product in Teton Valley, Idaho, and Northern Lincoln County, Wyoming.
• Amount. Up to $200,000 per award.
• Interest. 1% compounded annually.
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• Repayment. Principal and interest due at sale or transfer of the home, after 30 years, or when the
employee is no longer employed by the Town, whichever comes first.
• Home eligibility. Location within the eligible area, and an appraisal at or above the purchase price.
• Funding. $400,000 a year for two years beginning FY2028, from the Employee Housing Fund, with
unused funds rolling over. Revolving: repaid principal returns to the pool.

Shared appreciation mortgage: terms
• Eligible locations. Existing homes within Town limits only, given the scale of the investment. Not
outside the valley, where administering it adds complexity, works against the Town’s transportation
goals, and sends public funds out of the community.
• Amount. Up to $500,000 per award, with the Town taking a share of appreciation.
• Deed restriction. None, given the limits a restriction places on appreciation.
• Eligibility. Approved by Council on each award, likely to be used for senior positions. Council may
pre-approve terms and a ceiling so an individual transaction can move quickly.
• If the employee leaves Town employment. One year to sell, or the Town may buy them out.
• Long-term goal. For the Town to eventually own these homes outright.
• Funding. $500,000 in FY2029, from the Employee Housing Fund.

E. Expand Inventory of Town-Owned Employee Housing
The Town needs additional inventory, and it needs to be acquired over time rather than in a single push.
With many employees planning to stay ten years or longer, building flexibility and mobility into that
future inventory matters.

Develop on Town-owned vacant land
The Town-owned sites and their development potential are described under Town-Owned Land in the
Opportunities and Challenges section. Developing on land the Town already owns removes the land
cost from any project, roughly a seventh of the total, and it is a use the 2022 SPET funds were approved
for.
Quality over quantity
A central question governs future development on Town land: should the Town maximize density and
minimize subsidy per unit, or build what year-round employees say they need? The Working Group
came down clearly on the side of quality, and Navigate agrees. The comparison below is not a choice
about any one parcel. It is the design standard the Town should apply to every site it develops.
To make the tradeoff concrete, the consultant team modeled three products on the same one-thirdacre Town-owned parcel and brought them to the Working Group.
Concept

Unit mix

Size and parking

Working Group reaction

3 single-family homes

3 BR / 2 BA each

Approximately 1,800 sq ft; 2-car garage

Strong support

8 townhomes

2 BR each, with
basement

Approximately 1,200 sq ft; 2 parking
spaces, no garage; private outdoor
space

Support

12 condominiums

1 and 2 BR mix

500 to 900 sq ft; 1 covered parking
space; balconies, no yard; some secure
storage

Did not support

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The Working Group supported the single-family homes and the townhomes, both with parking and a
manageable footprint, and did not support the condominiums. Quality does cost more per unit, in
square footage and in parking, and it may mean building below the maximum density the zoning would
technically allow.
That is a defensible use of public money. Securing housing for employees is a large investment either
way, and the return on it is retention. A home an employee will not stay in does not produce that return,
however efficiently it was built. The Town Council heard the same thing from its own members, in both
directions, and the balance the Working Group struck is a reasonable place to land.
“There have to be a variety of options. 150 people will have 150 preferences. Sheer quantity is not
enough for us.”
Town Council interview

There is a second return on that decision. A tight, energy-efficient envelope, a heat pump HVAC system
with controlled ventilation, all-electric appliances, and durable materials cost more upfront and less
over the decades the Town will own and maintain these homes. That is one investment serving two
Town goals, housing and net zero, rather than working at cross purposes.
Recommended first site: Flat Creek Drive
RECOMMENDATION

Start with the Town’s three lots on Flat Creek Drive. The land is vacant, so no existing tenants are
displaced and no inventory is lost during construction; the scale is small; it is already zoned for
residential use; and it produces something other than the one-bedroom units the Town has too many
of. Building here is how the Town shows progress on ground it already controls.
Product: three single-family homes. Approximately 1,500 square feet each, three bedrooms and two
baths, with a one-car garage. Modular construction is worth pricing.
Do not plan on accessory residential units. The lots slope toward Karns Meadow and there is no alley
access to create separation between buildings, so an accessory unit would sit uncomfortably close
to its neighbor. Thoughtful design could mitigate that if the Town wants the density, and the
accessory units are capped at 500 square feet in any case.
Subdivide first. The parcel is a single 24,000 square foot lot today, and until it is split into the three lots
the original Karns agreement contemplated, the whole site supports one home and one accessory
unit. Budget the better part of a year for entitlement: a pre-application of 45 to 60 days, a
Development Plan of roughly 150 days, and a plat of roughly 120 days.
Do not pursue a rezone. NL-4 would be the most Planning might consider. The original agreement
and the conservation easement contemplated three single-family homes, so whether additional
units meet that intent is a question for the Town Manager and Council.
Construction standards: durable materials, a tight and energy-efficient building envelope, heat
pump HVAC with controlled ventilation, and all-electric systems, consistent with the Sustainability
Plan and with the Town’s long-term cost of ownership.
Timing and funding: $200,000 in FY2028 for design, entitlement, and subdivision, and $3,300,000 in
FY2029 for construction, from the 2022 SPET. The project is approximately $3,500,000 for three homes,
or roughly $1,170,000 each.

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Capacity. Hire an owner’s representative and a design and construction team. The owner’s
representative is carried in the project soft costs rather than as a separate budget line. Expect
roughly 25 hours a week of Town staff time for approximately three years to run this project, with the
Housing Manager managing the owner’s representative, plus Planning on entitlement and Legal on
contracts.

The 90 Virginian Lane parcel is the other site worth mentioning. It is on hold. If it moves forward it would
be an opportunity to buy units to rent to employees, or to buy rights for employees to purchase, and the
Town should watch it. Either way the Town should develop Flat Creek Drive. The two are not alternatives.
Other Town-owned sites
The remaining Town-owned parcels and units are part of a longer-term picture, and their priority order
cannot be set until the condition assessment recommended under Optimize Existing Housing Program is
complete. Once the Town has a grading system and a comprehensive assessment, the Housing
Manager with support from Planning staff should evaluate the sites together and recommend what
comes next.
These scattered-site redevelopment parcels are where the Town builds the 2- and 3-bedroom units
employees prefer. Townhomes are both desirable to employees and cost-efficient to construct. A
completed facilities plan would let the Town sequence these decisions systematically.
RECOMMENDATION

Commission a Planning Department inventory of development potential on each Town-owned site,
with design parameters set by this strategy rather than by maximum allowable density. Year 2
assessment, Year 4 planning on the next site.
Capacity. Roughly 60 hours of Planning Department time for the inventory, then project-specific
capacity as each site advances.

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Build housing into other Town capital projects

Figure 51. The START facility at 55 Karns Meadow Drive, where a building similar in size to 400 W. Snow King Avenue would fit.

Whenever the Town builds or rebuilds a facility, housing should be part of the program. The product
type this produces is specific and useful: small one-bedroom and transitional units for shift work, for plow
drivers and police officers who need a secure, soundproof, safe place to get some rest during a storm
cycle or between shifts. That is a different need from a family home, and Town facilities are the right
place to meet it.
RECOMMENDATION

• Incorporate housing for employees into every Town capital project where it fits, as part of the
Town facilities plan. Design for separate entrances and enough separation between industrial
and residential uses, through soundproofing, distinct parking, and distinct doors, so both uses
work well together.
• START facility, 55 Karns Meadow Drive.. Roughly 12 one- and two-bedroom units, about 26,000
square feet at $675 a square foot, or approximately $12,000,000. It is the only line in the funding
schedule that adds seasonal capacity. Put design and planning on the 2028 SPET, and pursue
Federal Transit Administration funding in parallel rather than as an alternative.
• Public Works facility redevelopment. No timeline has been set; this is part of a facilities planning
process that has not yet taken place. Pairing housing with industrial buildings adds design cost,
though still less than buying land outright. Small seasonal staff units could serve Public Works
crews working three 12-hour shifts who would rather stay on site during a storm cycle.
• 149 E. Pearl Avenue. No timeline. When the Town Hall renovation is programmed, any
redevelopment here must at minimum replace the employee housing that exists on the site
today.

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• 400 W. Snow King Avenue, phase 2. Originally designed as a U-shape with only the east building
built, maintenance on the first floor and dorms above. Plans for the rest were approved but
never funded.
Capacity. Adding a housing program to a capital project is a design decision made early and
cheaply. Budget roughly 20 hours of Housing Manager time per project at the programming stage,
plus the incremental design cost.

Purchase existing inventory
The Town should not buy the least expensive units on the market and compete head to head with the
employees it is trying to house. The real opportunity is preserving existing workforce housing stock that
would otherwise become a short-term rental or be knocked down and redeveloped into high-end
product. That is the case for buying existing housing alongside building new. Consider Workforce units
alongside market units when buying homes to rent to employees, comparing price, condition, bedroom
count, and parking, and favoring two bedrooms or more.

RECOMMENDATION

Contract with a real estate agent and give them defined parameters, revisited periodically as the
market shifts.
• Townhomes or condominiums, but not apartments converted to condominiums, which is a
quality issue.
• Storage required.
• Parking: only one space is not acceptable; additional spaces may be off site.
• Two bedrooms or larger preferred.
• The building or complex must allow pets.
• Soundproofing already present or feasible to add.
• Dated heating, appliances, or flooring acceptable if they can be brought up to standard, with
air conditioning present or addable on upper floors.
Budget roughly $1,000,000 per unit to purchase and remodel to Grade B condition. $2,000,000 in
FY2028 from the 2022 SPET and $1,000,000 in FY2030. S4 Flats construction begins in the spring of 2027
and one employee needs to be rehoused from Simon Lane; the second home is already partially
demolished and unoccupied. The FY2028 acquisitions cover that rehousing and begin to build the
replacement capacity the partial studio recommendation depends on.
Study the Legacy Motels separately. Purchasing, downzoning, and redeveloping into Town
employee housing is worth a dedicated time, cost, and long-term value comparison, with a clear
understanding that part of the purchase price pays for development rights the Town does not intend
to use.
Capacity. A real estate agent under contract, roughly 30 hours of Housing Manager time per
acquisition, and Legal review at closing.

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Rights to rent
The Town has committed to six rights of rental at Nelson Drive and no additional rental rights inventory is
anticipated in the next several years. When opportunities do become available, the following terms
should be negotiated.
RECOMMENDATION

• The unit owner must allow the Town to pay rent to hold a unit for up to three months if an
employee is not ready to move in. Ten days’ notice does not work for a household.
• Rents must be at a level employees can genuinely afford, which may not be the standard 30%
of household income benchmark.
• Eligibility should be workforce-based rather than income-based.
• Tie rights to a specific unit where possible so the Town has predictability on timing and unit size.
• Where it makes sense, buy the unit outright instead of holding a right to rent it.
Capacity. The Housing Manager tracks partner projects through regular conversation with the
Housing Trust and the Housing Department, roughly 4 hours a month, articulates the terms and
product types the Town wants for its investment, and coordinates with Legal on rights documents
and with External Affairs on employee communication. Expect 40 to 60 hours per negotiated
agreement.

Capacity Summary
The Housing Manager absorbs most of the recurring work. What falls on other departments is
concentrated in Year 1, before the position exists, and is largely one-time policy and document work
carried by the Deputy Town Manager with Internal Services.
Recommendation

Housing Manager

Other Town staff

Housing Manager and
Housing Committee

The position itself, approximately
$160,000 with salary and benefits

8 hours a month, Deputy Town Manager; 2
hours a month per Committee member

Day-to-day property
management

8 hours a month overseeing the
contract

Provide housing support

40 hours in Year 2 for the
Emergency Housing Fund

Year 1: 40 hours, Deputy Town Manager with
Internal Services; Legal review

Condition assessment and
repairs

About 25% of the position, Years 2
to 4

Year 1: 40 hours to scope, Deputy Town
Manager and Internal Services; Facilities
coordinates access

Third-party inspector
and contractor

Optimize existing inventory

About 25% of the position from
Year 2

Year 1: Internal Services and the Deputy Town
Manager

Property manager on
turnover

Selection process, inventory
document, rents

10 hours a year each; 30 hours in
Year 2 for rents

Year 1: 60 hours, Internal Services and Deputy
Town Manager; External Affairs; Legal

Down payment assistance

80 hours to set up; 15 hours per
award

Legal on loan documents

Shared appreciation
mortgage

40 hours to set up; 20 hours per
award; shared repairs for the life of
the agreement

Legal on documents

Community housing lists

20 hours to build, then ongoing;
one event a year

Internal Services at onboarding; supervisors at
performance reviews; External Affairs

Flat Creek Drive
development

Manage the owner’s
representative

Approximately 25 hours a week across Town
staff for three years; Planning; Legal

Other Town-owned sites

Coordinate

60 hours, Planning Department

Purchase existing homes

30 hours per acquisition

Legal at closing

Page 76

Contracted

Third-party property
manager

Town of Jackson Employee Housing Strategy

Owner’s
representative, design
and construction team

Real estate agent

DRAFT September 2026

Recommendation

Housing Manager

Other Town staff

Rights of rental and purchase

4 hours a month tracking; 20 to 60
hours per agreement

Contracted

Legal on rights documents

Master leases

20 hours a year

Legal on renegotiation

2028 SPET

Project scoping

100 hours in FY2028 across Administration,
Planning, and the Housing Manager; Legal
review

Housing Manager workload
The table adds up the Housing Manager time estimated for each recommendation, by year, from the
position’s first year in FY2028. A full-time position has roughly 1,800 working hours a year after holidays
and leave.
Housing Manager hours

FY2028

FY2029

FY2030

FY2031

Oversee the property management contract, 8 hours a month

96

96

96

96

Housing Committee, 2 hours a month

24

24

24

24

Repair program and deferred maintenance catch-up, about a quarter of the position

520

520

520

Optimize existing inventory, about a quarter of the position

520

520

520

520

Emergency Housing Fund, 40 hours to set up, then requests

40

10

10

10

Down payment assistance, 80 hours to set up, 15 per award, two awards a year

110

30

Shared appreciation mortgage, 40 hours to set up, 20 per award, then shared repairs

60

5

5

48

48

108

Rights of purchase, 4 hours a month tracking plus agreements

108

Buy existing homes, 30 hours per acquisition

60

Selection process, inventory document, and rent schedule

40

20

20

20

Community housing lists and annual briefing

20

20

20

20

Master leases through phase-out

20

20

20

2028 SPET preparation, share of 100 hours

35

30

Housing in Town capital projects

20

Total named tasks

1,593

1,368

1,313

823

Share of a full-time position

89%

76%

73%

46%

Hours are the capacity estimates in this report. Emergency Housing Fund requests (10 hours a year) and shared appreciation mortgage
oversight (5 hours a year) are Navigate estimates of a few hours. Rights of purchase agreements follow the funding schedule, two in
FY2028 and two in FY2031, at 30 hours each, the midpoint of 20 to 40. The Housing Manager’s share of 2028 SPET preparation is taken as a
third of 100 hours. Flat Creek Drive is shown separately below.

• The position is close to full from its first year. Named tasks take about 1,590 hours in FY2028, nearly
nine-tenths of the position, before program ownership, the annual report, the biennial survey, and
employee questions. This is the clearest evidence that the work cannot be absorbed by existing
staff.
• Flat Creek Drive does not fit on top of that. It needs roughly 25 hours a week of Town staff time for
about three years. The owner’s representative has to carry most of it, with the Housing Manager
managing that contract rather than the project.
• The property manager is what makes the position workable. Without it, maintenance calls and unit
turnovers would fall to the Housing Manager as well.
• The load eases after FY2030, once the maintenance catch-up is complete. That is when the position
has room for the START facility and for rights at Northern South Park.

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Town of Jackson Employee Housing Strategy

DRAFT September 2026

Almost every recommendation in Year 1 is policy work, documentation, and communication rather
than construction. That is deliberate. It is the least expensive part of this strategy and the part
employees will notice first. It is also a real ask of the Deputy Town Manager and Internal Services, and it
is why Year 1 carries no construction.
The four strategies are numbered for priority of investment and attention, not for sequence. All four run
at the same time.

Reporting on progress
One recommendation ties the rest together. The Housing Manager, with the Deputy Town Manager in
the interim, should report annually to Council and to employees on progress against the 70% goal, on
what the program collected in rent and spent on maintenance, and on the placements added that
year. Repeat the Employee Housing Survey every two years, because household composition,
household income, and where employees live cannot be seen any other way. Without that, the 70%
target is an assertion rather than a measure.

Analysis & Conclusion
Does the strategy reach 70% of full-time employees housed locally?
Today the Town is at 52%, or 79 households of 151. The target today is 106, a gap of 27 households.

Figure 49. Where the Town’s year-round employees live today, against the 70% target. Stable housing means market ownership,
deed-restricted ownership or rental, a Town-owned unit, or a home bought with a Town shared appreciation mortgage, located
in Teton County, Wyoming. Master-leased units are shown separately because the Town does not control the primary lease.
Source: Town of Jackson Employee Housing Survey, April 2026 and the Town’s unit inventory, applied to a year-round workforce of
151.
Where year-round employees live today

Households

Counts toward the 70%?

Market ownership in Teton County

27

Yes

Deed-restricted ownership through a Town right

11

Yes

Deed-restricted ownership obtained independently

13

Yes

Deed-restricted rental, Redmond Hall right

1

Yes

Shared appreciation mortgage

1

Yes

Town-owned units

26

Yes

Stable housing today

79

52%

Master-leased units

5

No. The Town does not control the primary
lease

Counted from the Town’s unit inventory, the rights schedule, and the employee survey. Market ownership and independently obtained
deed-restricted ownership come from survey responses; every other line is counted from a table in the Appendix. The five employees in
master-leased units are housed, and they are not counted as stable.

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Town of Jackson Employee Housing Strategy

DRAFT September 2026

What the funded plan delivers, with growth and leakage
Two forces raise what the Town needs over the next nine years. Staffing growth: year-round headcount
is assumed to grow 2% a year from FY2028, from 151 to about 177 in FY2035, which raises the 70% target
from 106 to 124 households. New positions are assumed to be filled by households not already in stable
housing in the valley. Leakage: 27 year-round employees own a market home in Teton County, and that
group is long tenured. Based on Town staff estimates, and supported by survey data, 40% of them retire
or leave within ten years, about one household a year. A replacement is unlikely to be able to buy a
$2,000,000 three-bedroom townhome, so each retirement turns a household the Town never had to
house into one it does.
Against that, the funding schedule adds 29 year-round placements, and about five year-round
employees move out of the partial studios at 400 W. Snow King Avenue in Year 4 when that format is
reserved for seasonal use. The master leases release without changing this measure, because they were
never counted as stable, though the five employees in them still need somewhere to go.
The funded plan does not reach 70%. It lands at 53% in FY2035, about where the Town is today (see
chart below). Growth and leakage add about 28 households to the need while the plan adds 29
placements and the partial studio transition takes away five.

Year-round
employees

70% target

Today

151

106

1

FY2027

151

106

2

FY2028

154

108

3

FY2029

157

4

FY2030

5

Year

Fiscal year

Added

Schedule only

Share

With list registrations

Share

79

52%

79

52%

+6

84

56%

85

56%

+6

89

58%

91

59%

110

+6

94

60%

97

62%

160

112

+1, less 5

89

55%

93

58%

FY2031

163

114

+2

90

55%

95

58%

6

FY2032

167

117

+2

91

54%

97

58%

7

FY2033

170

119

+2

91

54%

98

58%

8

FY2034

173

121

+2

92

53%

100

58%

9

FY2035

177

124

+2

93

53%

102

58%

Stable households each year are the prior year’s count plus placements added, less about 1.1 households of leakage a year (40% of 27
over ten years), less five households moved out of the partial studios in Year 4. With list registrations adds one deed-restricted home a year
won by an employee through the Housing Trust, Teton Habitat, or the Housing Department. The long-term column of the funding schedule
is spread evenly across Years 6 through 9. Headcount grows 2% a year from FY2028.

CONCLUSIONS

The no-cost recommendations help. Putting every employee on the three housing organization lists
at onboarding, prompting it again during performance reviews, and requiring it of anyone renting a
Town unit is worth about one deed-restricted home a year. That lifts FY2035 to 58%.
Reaching 70% in FY2035 takes about 22 more placements, roughly $17,000,000 at the plan’s blended
cost of $779,730 a placement*. Spread over Years 2 through 9, that is about three more placements
and $2,000,000 a year beyond what the 2028 SPET and the General Fund commitment outlined in
this plan would provide.
Most of the challenge is keeping pace. Holding headcount flat and ignoring leakage, the same plan
would reach 68%, or 74% with list registrations.
Measure it rather than model it. The growth and leakage rates are estimates. Repeat the Employee
Housing Survey every two years so the Town learns its actual rates and adjusts.
*The blended cost of a placement is $779,730, being $28,850,000 across 37 placements.

Page 79

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Bedrooms: what the Town owns against what employees need
Reaching 70% in FY2035 takes about 51 more Town-supported year-round placements than exist today:
the 29 in the funded plan and about 22 more, on top of the homes employees have access to through
the housing organization lists. The table below sets the Town-owned units available to year-round
employees against the size of home employees want, and applies those preferences to the 51
placements.
Town-owned units for yearround employees

Share

Employees who want this size,
renting / buying

Additional placements needed to
reach 70%, by preference

Studio

2

9%

5% / 2%

2

1 bedroom

8

36%

19% / 8%

7

2 bedroom

9

41%

23% / 26%

12

3 bedroom

2

9%

54% / 55%

28

4 bedroom or more

1

5%

0% / 9%

2

Total

22

100%

Bedrooms

51

Town-owned units are the 30 Town-preference units less the eight partial studios reserved for seasonal employees. Excludes the bunkhouse,
the County-preference units, and master leases. Preferences are from employees interested in renting or buying through the Town,
Employee Housing Survey, April 2026. Placements needed are split using the funded plan’s tenure mix, 55% rental and 45% ownership, and
rounded.

More than half of the homes the Town adds should have three bedrooms. The Town owns two threebedroom units and one four-bedroom unit for year-round employees. Of the 29 placements in the
funded plan, the size is set for only six: three three-bedroom homes at Flat Creek Drive and three existing
homes bought at two bedrooms or larger. The four year-round units at the START facility are planned as
one- and two-bedrooms. The other 19, the Nelson Drive rights of rental, rights of purchase, down
payment assistance, and the shared appreciation mortgage, depend on what partners build and what
comes up for sale. That is why unit size belongs alongside price in every rights negotiation, and why
acquisitions should favor three bedrooms where the price allows.

Does the strategy reach 100% of seasonal employees housed locally?
Yes. Utilizing 400 W Snow King for seasonal employees provides 14 units, and the proposed addition to
the START facility will add another 8, providing 22 dedicated seasonal units for a workforce that, on
average, lands on that number.

Conclusion
The funded plan would fill the gap between the Town’s goal (70% of employees in stable housing in
Teton County) and current state (52%) by adding 29 year-round placements. When staff growth and
retirements are factored in, however, the gap widens, and an additional ~20 placements beyond what
is budgeted for in the plan will be required. An estimated additional $17,000,000 would need to be
located over the next 10 years to reach the 70% goal. Funding sources for this $17,000,000 have not
been identified.
Nevertheless, this strategy gives the Town a clear, funded sequence to work from: support that reaches
every employee, a housing program running at its best, real paths into ownership, and, in time, more
homes the Town can call its own. With this as the base, the Town is ready to take the next step.
Adoption of the strategies outlined in this plan will demonstrate to employees that the Town is
committed to making meaningful progress towards the Goal and Objectives outlined above. Housing is
a marathon, not a sprint. With additional time and funding, it is possible for the Town to achieve its goal.

Page 80

Town of Jackson Employee Housing Strategy

DRAFT September 2026

7. Study Methodology, Data Sources, and Acknowledgements
Primary Research
Navigate conducted primary research to generate information beyond what is available from existing
public sources. This included a confidential web-based Employee Housing Survey, in-depth interviews,
and Working Group meetings.

Town of Jackson Employee Housing Survey
The online survey went to every Town of Jackson and START employee by email over a two-week period
in April 2026. Before it launched, Town leadership held an all-team meeting to walk employees through
the Employee Housing Strategy process and explain the survey. This survey is central to the study. It is the
only source that captures household-level detail directly from Town employees, information no other
data source can provide.
The survey was in the field from April 6 through April 20, 2026, and drew 89 valid responses against 176
Town employees as of January 26, 2026, a response rate of 51%. That is a strong response for a survey of
this kind, and for comparison a similar survey conducted for the Bridger-Teton National Forest drew a
39% response rate. It gives this strategy a solid, representative base of information about what
employee households actually need.

Interviews
• In-depth interviews with the Mayor and each member of the Town Council, February 2026.
• In-depth interviews with eleven Department Directors and Administrators, March 2026, plus
technical staff across the Jackson/Teton County Housing Department and Facilities.
• A site visit to existing Town-owned rental units (exterior only) and Town-owned development sites.
• Ongoing project team meetings throughout the engagement.

Working Group
Navigate held three meetings with a ten-member Working Group representing a genuine cross-section
of Town employees. Some own homes and some rent, some commute and some do not, some are new
to the Town and others have been here for years. No supervisors were included, so employees could
speak candidly. The group reviewed the Employee Housing Strategy at each stage and gave
feedback that shaped the recommendations in this report, most visibly in the priority order the strategies
follow.

Secondary Data
Navigate also drew on a range of existing sources, including but not limited to:
• Town of Jackson employee housing inventory, leases, and the Housing Placement Policy and
Guidelines.
• Town of Jackson Fund 205 revenue and expenditure report for the 12 months ending June 30, 2026,
and the Adopted Budget for Fiscal Year 2027.
• Town of Jackson FY26 classification and grade structure.
• Town Council staff reports and minutes, including the May 18, 2026 workshop, the November 17,
2025 Nelson Drive report, the February 17, 2026 S4 Flats report, and the March 2, 2026 Employee
Right of Purchase report.
• 2022 Teton Region Housing Needs Assessment.
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Town of Jackson Employee Housing Strategy

DRAFT September 2026

• 2025 Jackson/Teton County Housing Supply Plan.
• Town of Jackson Comprehensive Plan and Sustainability Plan.
• Published program rules, eligibility criteria, and price schedules from the Jackson/Teton County
Housing Department, the Jackson Hole Community Housing Trust, and Habitat for Humanity of the
Greater Teton Area, as of August 2026.
• Teton County real estate market data and recent comparable sales.
• National benchmarks on the cost of employee turnover in small municipal governments.

Acknowledgements
We are grateful to everyone who gave their time, knowledge, and expertise to this process. The
information in this report rests on participation from many individuals and organizations, through
interviews, data sharing, and Working Group conversations. What is in these pages is grounded in data
and numbers, and just as much in the day-to-day experience and honest observations of the people
who work for the Town of Jackson. None of it would have been possible without that participation.
Navigate would also like to acknowledge the use of AI in formatting the tables and structure of this
report.
Finally, we appreciate the opportunity to work alongside a dedicated employer like the Town of
Jackson, one genuinely working to understand and address its employees’ housing needs, for the
benefit and health of the whole community.

Page 82

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Appendix A. Summary of Town Housing program
A full accounting of the units, beds, rights, and equity positions the Town holds or has committed to, as
of August 2026.
Category

Count

Placements

Notes

Town-owned units, Town
preference

31

30

Excludes 930 and 940 Simon Lane, to be redeveloped as part of S4 Flats.
The bunkhouse is one unit and zero placements. 8 are partial studios,
leaving 22 year-round owned units.

Town-owned units, County
preference

12

0

All at 400 W. Snow King Avenue, under primary leases with Teton County

Master-leased units

8

0

Not counted as stable housing: the Town does not control the primary
lease. Two end in the fall of 2026 and will not be renewed, taking this to six

Winter seasonal beds

13

13

Confirmed for the 2026 to 2027 season (see Winter Seasonal chart below).
Up to six additional Antler Motel rooms are on hold

Rights exercised

12

12

Housing Trust revolving rights, including one right of first rental at Redmond
Hall; all return to the Town on resale

Rights available

7

3

Two at King Street and one 2026 King Street resale count as placements.
The four at Kelly Place have never been exercised and are counted at
zero

Shared appreciation mortgage

1

1

Wapiti Drive. An equity interest, not a unit

Rights of rental, Nelson Drive

6

6

$4,050,000 from 2022 SPET. Occupancy anticipated July 2027

Rights of purchase, S4 Flats

8

2

Town land valued at $2.6 million plus $300,632. Construction begins spring
2027. Counted at the 25% conversion rate

98

67

Excluding partial studios (8) and seasonal beds (13): 46 year round
Excluding not yet built (8): 38 year round

Owned and leased

Rights held

Committed, not yet built

Total
All units, beds, rights, and equity
positions

Sources: TOJ Employee Housing Master Inventory; Town of Jackson Housing Stock Inventory; Town of Jackson primary lease schedule,
February 2026; Town Council staff reports. Rights held and exercised are counted as separate lines because an exercised revolving right still
belongs to the Town and returns on resale. Placements apply the conversion rates confirmed by the Town Manager and Deputy Town
Manager and set out in the Opportunities and Challenges section. Master-leased units are counted in the total the Town has access to but
produce no stable placements, because the primary lease is short and outside the Town’s control. The County-preference units are
counted in the total the Town has access to but produce no Town employee placements.

Page 83

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Appendix B. Town of Jackson Employee Housing Inventory
Condition grades are provisional, built from the Town’s existing condition notes, and should be
confirmed on site through the condition assessment recommended in this report. Rent shown is the
adopted Town rate effective July 1, 2026, applied by unit size. The adopted schedule does not publish a
four-bedroom rate; 410 Scott Lane is shown at the rate on file. Department reflects a point-in-time
snapshot as of January 2026; blank means the unit was unoccupied at that date.

Town-Owned Units, Town Preference
Property and unit

Bedrooms

Sq ft

Built

Condition

Department

Rent

400 W. Snow King Ave, Apt 4

1 BR

570

2020

A

Public Works

$1,447

400 W. Snow King Ave, Apt 5

1 BR

570

2020

A

Police

$1,447

400 W. Snow King Ave, Apt 7

1 BR

570

2020

A

Transit

$1,447

400 W. Snow King Ave, Apt 8

1 BR

570

2020

A

400 W. Snow King Ave, Apt 9

1 BR

570

2020

A

Public Works

$1,447

400 W. Snow King Ave, Apt 10

1 BR

570

2020

A

Transit

$1,447

400 W. Snow King Ave, Apt 13

Studio

255

2020

A

400 W. Snow King Ave, Apt 14

Studio

255

2020

A

START / Transit

$1,431

400 W. Snow King Ave, Apt 15

Studio

255

2020

A

Transit (seasonal)

$1,431

400 W. Snow King Ave, Apt 17

Studio

255

2020

A

Transit (seasonal)

$1,431

400 W. Snow King Ave, Apt 20

Studio

255

2020

A

Transit

$1,431

400 W. Snow King Ave, Apt 21

Studio

255

2020

A

Transit

$1,431

400 W. Snow King Ave, Apt 24

Studio

255

2020

A

Transit (seasonal)

$1,431

400 W. Snow King Ave, Apt 25

Studio

255

2020

A

675 E. Hansen, single-family home

3 BR

1,950

2001

A

Administration

$2,510

685 E. Hansen, single-family home

3 BR

2,575

2001

A

Planning

$2,510

955 Maple Way, single-family home

2 BR

1,056

1961

C

Police

$1,910

410 Scott Ln, single-family home

4 BR

1,656

1971

C

Public Works

$2,383

145 W. Hansen (1) House, Unit 1A

1 BR

1,121

1953

F

Police

$1,447

145 W. Hansen (2) Basement, Unit 2A

Studio

780

1953

F

Public Works

$1,431

145 W. Hansen, Unit 1B

1 BR

360

1995

C

Transit

$1,447

145 W. Hansen, Unit 2B

2 BR

720

1995

C

Public Works

$1,910

455 Vine St, Unit 1

2 BR

760

1975

C

Police

$1,910

455 Vine St, Unit 2

2 BR

760

1975

B

Planning & Building

$1,910

455 Vine St, Unit 3

2 BR

760

1975

B

455 Vine St, Unit 4

2 BR

760

1975

B

Police

$1,910

65-5 Virginian Lane, Unit E

2 BR

940

1994

A

Police

$1,910

65-7 Virginian Lane, Unit G

2 BR

940

1994

A

Public Works

$1,910

145 E. Pearl Ave (Si-Ferrin), Suite C

2 BR

1,100

1939

B

START / Transit

$1,910

149 E. Pearl Ave, Unit B studio

Studio

442

1939

B

Public Works

$1,431

D

Shift stays, not a
placement

$0

149/145 E. Pearl Ave bunkhouse

4 beds

740

1939

$1,447

$1,431

$1,431

$1,910

Source: TOJ Employee Housing Master Inventory. 930 and 940 Simon Lane are excluded because both homes are to be demolished with
the development of S4 Flats; one employee needs to be rehoused and the second home is already partially demolished and unoccupied.
The bunkhouse is one building providing four places to sleep for overnight and shift stays rather than a four-bedroom home. It is not
permanent housing, is not counted as a placement, and is not counted in the bedroom mix elsewhere in this report. 145 E. Pearl Avenue
(Si-Ferrin) Suite C was fully remodeled and upgraded in 2021 and is graded B. In addition to these 31 units, the Town owns 12 units at 400 W.
Snow King Avenue that carry a County occupancy preference: eight partial studios, three one-bedroom apartments, and one hotel unit.

Page 84

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Master-Leased Units
Property and unit

Bedrooms

Employee rent

Town cost

Monthly subsidy

Lease status

2022 Wildflower Court, single-family home

3 BR

$2,510

$2,400

-$110

Auto renews

355 W. Deloney E-5 (Town Creek),
apartment

2 BR

$2,500

$3,000

$500

Auto renews

355 W. Deloney A-5 (Town Creek),
apartment

1 BR

$1,447

$2,500

$1,053

Auto renews

130/135 E. Kelly Ave, apartment

1 BR

$1,723

$2,142

$419

Auto renews

126 Aspen Drive, studio plus loft

Studio

$1,700

$1,760

$60

Ends October 31, 2027

55 Virginian Lane, Unit 69-7, condominium

1 BR

$1,447

$2,150

$703

Ends January 30, 2030

350 N. Millward, Unit 5, apartment

1 BR

$850

$2,329

$1,479

Ends October 31, 2026. Not
renewing

268 Sawmill Road, Alpine WY, single-family
home

3 BR

$1,500

$2,940

$1,440

Ends September 30, 2026. Not
renewing

Total

$5,544

Source: Town of Jackson primary lease schedule, February 2026. Rents and subsidies are monthly, stated as of February 4, 2026. 145 Moose
Street and 55 Virginian Lane Unit 55-4 are no longer master leased and have been removed. The FY2027 adopted budget carries $136,440
in master lease expenditure against $83,790 in master lease revenue.

Winter Seasonal Beds, 2026 to 2027 Season
Property

Beds

Status

Adams Canyon, private bedrooms in a shared sevenperson apartment

7

Teton County primary lease being executed

Alpine Motel, units with kitchens

4

Primary lease being executed

Alpine Motel, units without kitchens

2

Primary lease being executed

Confirmed

13

Antler Motel, units without kitchens

Up to 6

On hold pending Council and Commission
decisions on START service reductions

Source: Town of Jackson, August 2026. Adams Canyon is owned by Teton County. All leases run for the ski season and expire in April. In
prior seasons the Town leased nine Antler Motel rooms and seven Adams Canyon bedrooms, for 16 beds.

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Town of Jackson Employee Housing Strategy

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Appendix C. Condition Assessment System
This is the grading standard recommended in this report. It exists so that any two people assessing the
same unit land on the same grade, and so that maintenance budgeting, capital planning, and rentsetting all rest on the same evidence. The Town-owned Inventory chart above applies it to the current
portfolio, with provisional scores built from the Town’s existing condition notes. Those scores should be
confirmed or adjusted on site before they are used for budgeting or rent-setting.

A through F Grading Rubric
Grade

Score

What it means

Age and recency of
work

Structural and envelope

Building systems

A

90-100

Like new

Built or fully renovated
within the last 5 years

No visible deficiencies;
roof, foundation,
windows, siding all
excellent

Modern, fully functional
All major systems new or
finishes throughout; no
near-new, full remaining
known health or safety
useful life
issues

Maintain on standard
schedule; no nearterm capital need

B

75-89

Good, well
maintained

Generally under 20
years since the last
major renovation

Sound; only minor
cosmetic wear

Functioning well; most
systems have 10+ years
of remaining useful life

Clean, functional finishes,
may show light dating; no
hazards

Routine maintenance;
plan minor upgrades
in 5 to 10 years

C

60-74

Fair, functional
but dated

Systems and finishes
original, or 20 to 40
years since update

Serviceable, with visible
wear

Aging; may need
replacement within 1 to
5 years

Dated finishes needing
replacement; fully
habitable, comfort and
efficiency below current
standard

Budget capital
improvements in the
near term

D

40-59

Poor, deferred
maintenance

Original systems 40+
years old, or a major
system nearing failure

Visible deficiencies:
moisture intrusion,
inadequate insulation,
roof or foundation
concerns

One or more major
systems failing or
beyond useful life

Significant wear,
functionally deficient;
habitable but comfort or
health concerns if not
addressed soon

Priority for renovation
or redevelopment;
capital plan within 1
to 3 years

F

Below 40

Uninhabitable or
unsafe

Not age-driven;
condition alone
determines this grade

Active structural failure,
foundation or roof failure,
or severe moisture and
mold

Non-functional or
unsafe major systems

Remove from active
Severe deterioration; health rent roll; demolish, gutor life-safety hazard present renovate, or
redevelop

Interior and habitability

Typical next step

Scoring Method
Five weighted categories, 0 to 20 points each, 100 points total. The total score determines the letter
grade: 90-100 is an A, 75-89 a B, 60-74 a C, 40-59 a D, and below 40 an F.
Category

0-4, fail

5-9, poor

10-14, fair

15-20, good to excellent

Age score (effective age,
calculated)

Calculated automatically

50+ years since built or last
major renovation

15 to 49 years since built or
last major renovation

0 to 14 years since built or
last major renovation

Structural and building envelope:
foundation, roof, walls, windows,
insulation

Active structural failure or
severe moisture intrusion

Significant deficiencies such
as a leaking foundation or
failing roof

Serviceable with visible wear

Sound to excellent; no
deficiencies

Building systems: heating, plumbing,
electrical

Non-functional or unsafe
systems

One or more systems failing
or beyond useful life

Aging, functional, 1 to 5
years of life remaining

Functioning well to new, 10+
years of life remaining

Interior finishes and function: kitchen, Severe deterioration, nonbath, flooring, layout
functional spaces
Health, safety, and habitability

Life-safety hazard present;
should not be occupied

Significant wear, functionally Dated but functional; needs
deficient
replacement soon

Clean and functional to fully
modern

No hazards; below current
Comfort or health concern if
comfort and efficiency
not addressed soon
standards

No known issues

Rent Position by Grade
Property managers and investors widely use an A through D, sometimes A through F, class system to
describe a property’s age, condition, systems, and finishes, and they price rent off that class relative to
the top of the local market. None of the sources reviewed publish a single universal discount by class;
actual rent gaps are set locally against comparable properties. The benchmarks below are a
recommended starting point, expressed as a percentage of what a fully renovated Grade A
comparable could command, and should be calibrated against the Town’s own comparable-rent
data.
Page 86

Town of Jackson Employee Housing Strategy

DRAFT September 2026

Grade

Recommended rent

Rationale

A

100%

Sets the ceiling. Like-new condition, no deferred maintenance, commands the top of the local
market

B

90%

Well maintained with only minor dating. A small discount reflects the gap to a like-new unit, not a
functional problem

C

75%

Fully habitable but dated. Rent reflects the capital investment a tenant is effectively absorbing

D

55%

Deferred maintenance affects comfort or efficiency. Discount further and pair with a near-term
capital plan

F

Not rentable

Uninhabitable. Remove from the active rent roll until remediated, gut-renovated, or redeveloped

Sources reviewed: REI Prime, CREFCOA, Master Multifamily, and Multifamily Dive on property class definitions and rent positioning; HUD and
Abt Associates, Capital Needs in the Public Housing Program; NYCHA 2023 Physical Needs Assessment; ASTM E2018, Standard Guide for
Property Condition Assessments.

Note that the rent schedule recommended in this report is narrower than these industry benchmarks, at
plus or minus 10% around a Grade B baseline rather than the 55 to 100% range above. That is
deliberate. The Town is not pricing against the open market, it is pricing against what employees can
afford, and a 45% swing between the best and worst unit in a small portfolio would be difficult to explain
and harder to administer.

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Town of Jackson Employee Housing Strategy

DRAFT September 2026

Appendix D. Town of Jackson Headcount by Department
Based on 176 employees as of January 26, 2026. Includes employees of the Town of Jackson and of
START, the joint regional transit authority the Town manages. Excludes contract positions such as the
Municipal Judge unless the person is directly employed by the Town.
Department

Employees

Share of workforce

START / Transit

55*

31%

Police

51

29%

Public Works

37

21%

Planning & Building

8

4%

Finance

6

3%

Information Technology

6

3.5%

Internal Services

5

3.5%

Legal/attorney

3

2%

Administration

3

2%

External Affairs

2

1%

Total

176

100%

Source: Town of Jackson departmental roster, January 2026. *START: 30 year-round, 25 seasonal. 2026-2027 START seasonal to be between
19-25.

Page 88

Town of Jackson Employee Housing Strategy

DRAFT September 2026

October 19, 2026

Meeting Date:

Submitting Department:
Agenda Item:

External Affairs

Community Initiatives Process & Funding

Meeting Title:

Workshop

Presenter:

Susan Scarlata

Public Comment:

Yes

Purpose or Policy Considerations.
During the budgeting process for FY27, Council requested staff rethink and update the processes by which Community
Initiatives and Health & Human Service agencies receive funding from the Town. This report addresses potential next
steps for Community Initiatives funding.

Recommendation.
Staff recommends Council direct staff to bring the Community Initiatives process in-house, create a Town-only
application for these requests, and budget for various agencies within department or division budgets that align with
their focus or services.

Background.
During the FY27 Budgeting, Council requested that staff rethink and update the processes by which Community
Initiatives and Health & Human Services agencies receive funding from the Town. For Health and Human Services, staff is
collaborating with the County’s Health Department, which has updated various categories for Health & Human Service
funding and will present potential next steps at the Town and County’s joint meeting in December.
For Community Initiatives, Town staff considered the list of entities the Town funds and recognized that most agencies
in this category are funded every year. In past years, agencies applied through a county application. For ease, access,
and ownership of the full process, staff recommends the Town’s process be brought in-house for agencies to apply
directly to the Town. Then staff will compile applications, provide them to Council, and work with Council in the
budgeting process to determine the total funding available in this category. Within the budget itself, staff recommends
placing these items within departments or divisions that align with their focus or services. As a reminder and review, the
following agencies applied for funding through the Community Initiatives category in recent years.
History JH
Jackson Hole Air
Leadership Jackson Hole
Energy Conservation Works
JH Public Art & Arts for All
Teton County Historic Preservation Board
Teton Trust for Historic Place
Housing Trust
Yellowstone/Teton Clean Cities

Analysis & Key Questions.
In prior years, agencies seeking Community Initiative funding completed one application for both the Town and County.
This process was managed by the County and Town staff could not access the applications until they were all submitted,
compiled, and shared by County staff. While many agencies apply for Community Initiatives funding from both the Town
and County, some only apply to one or the other so there is not complete overlap. This change will mean agencies will
be asked to complete two separate applications and, if there are related questions, may have to present to both elected
boards. However, bringing the process in-house will allow the Town to have more oversight of the process,
communication with applicants, and to set timelines that align with the Town’s plan to set a funding ceiling in this

Staff Report
Page 2 of 3

category and ensure there is time for review if requests are above that ceiling. In addition, staff has decided to shift
where and how Energy Conservation Works is reviewed to align it with when the Travel and Tourism Board and the
Airport Board’s budgets are considered with the County. There are two key questions for Council on this item.
Key Question #1: Does Council support staff bringing the Community Initiative process in-house to the Town?
Through the Strategic Budgeting process, Council has discussed setting funding ceilings for support for external agencies.
The following agencies have been funded in recent years in the Community Initiatives category and relate to or, in some
cases, supplement Town functions and services. The chart below lists where different agencies could appear within the
Town’s budget.
History JH
Jackson Hole Air
Leadership Jackson Hole
JH Public Art & Arts for All
Teton County Historic Preservation Board
Teton Trust for Historic Place
Housing Trust
Yellowstone/Teton Clean Cities

Town Council Budget
Administration
Administration
External Affairs
Planning
Planning
Housing Fund
Ecosystem Stewardship

Key Question #2: Does Council support budgeting for these items within departments and/or divisions that align with
their focus or services?
Placing these requests within aligned departments gives each director visibility into and responsibility for the request
and allows the funding to be evaluated against related Town services. It also means Community Initiatives would no
longer appear as a single consolidated line in the budget. Though staff will continue to provide Council a summary of all
Community Initiative funding during budget development, so Council will retain the ability to set an overall ceiling.

Possible Alternatives.
Council could decide to maintain the status quo, current application process through the County, and continue to budget
for the services these agencies provide as a separate category.

Comprehensive Plan & Priority Alignment.
The Jackson/Teton County Comprehensive Plan (2020) lists "Quality of Life" as one of its three core common values.
Under this value, the plan emphasizes the need for:
• Essential Community Facilities: Supporting the infrastructure for social services.
• Diverse Social Population: Maintaining a resident workforce and varied segments of the community through
support systems.

Fiscal Impact.
In Fiscal Year 2027, the Town funded $345,000 worth of Community Initiatives. The recommendations in this staff report
will not have direct fiscal impacts beyond staff time. Staff will work with Council to set an overall ceiling for this funding
category during the budgeting process.

Staff Impact.

Staff Report
Page 3 of 3

Staff will have added time to create an application and set the process. After that initial effort, administering and
overseeing the process for funding Community Initiatives will take similar or less time than prior years.

Attachments or Links.
NA

Suggested Motion.
Motions #1: I move to direct staff to bring the Community Initiative process in-house to administer and process funding
applications.
Motion #2: I move to direct staff to budget for Community Initiative services within departments and/or divisions that
align with their focus.

BOARD OF COMMISSIONERS
Mark Newcomb, Chair
Wes Gardner, Vice-Chair
Luther Propst
Natalia D. Macker
Len Carlman

October 5, 2026
The Honorable Doug Burgum
Secretary of the Interior
U.S. Department of the Interior
1849 C Street NW
Washington, DC 20240
Re: Moose-Wilson Corridor Comprehensive Management Plan Record of Decision
Amendment
Dear Secretary Burgum:
The Teton County Board of County Commissioners writes to express our disappointment
with the National Park Service’s August 14, 2026, amendment to the Moose-Wilson
Corridor Record of Decision (ROD). The amendment adds a separated multiuse pathway
along the length of the corridor and realigns a segment of the road. 1 We ask the
Department to reconsider the corridor-length pathway decision and include Teton
County’s input as a cooperating agency before proceeding.
We are particularly disappointed by the process through which this change was made. The
County was an active participant as a Cooperating Agency in the 2016 ROD, but we were
not invited to take part in the 2026 reevaluation and did not have a meaningful opportunity
to discuss the proposed change prior to the decision. The amendment reports renewed
Tribal and historic-preservation consultation, a 15-day public comment period on a draft
Section 106 programmatic agreement, and Endangered Species Act consultation, but no
renewed opportunity for the County or broader public to address the fundamental decision
to add the pathway. 2
This approach is difficult to reconcile with Secretarial Order 3434, Strengthening
Coordination with Gateway Communities. The Order establishes Department policy to
“Recognize gateway communities as key stakeholders” and to “foster transparent ongoing
communication between System units and gateway leadership.” It further directs the
National Park Service to provide “early notification on major changes,” document and
1 National Park Service, Moose-Wilson Corridor Comprehensive Management Plan, Record of Decision Amendment
(Aug. 14, 2026), pp. 1–2, 5–6.
2 National Park Service, Record of Decision Amendment, 6–7 (summarizing public, Tribal, and agency consultation).
PO Box 3594 ︱ 200 South Willow Street ︱ Jackson, Wyoming 83001 ︱ 307-733-8094︱
www.tetoncountywy.gov

consider local input in environmental planning, and engage gateway communities on
decisions affecting local access. 3 Teton County and Grand Teton National Park have
worked together for years on transportation, visitor use, emergency response, and
resource protection. Given that history and the clear direction of Secretary’s Order 3434,
the 2026 amendment warranted earlier and more meaningful engagement with the County
and the broader gateway community.
As a cooperating agency in the original Environmental Impact Statement (EIS), in January
2016, the Teton County Board of County Commissioners (Commission) commended
Grand Teton National Park staff for a “thorough, open and inclusive process” that
balanced resource protection with access and recreation. The Commission supported the
preferred alternative and the road’s narrow, slow-speed character. Although the
Commission strongly supported bicycle and pedestrian safety, they opposed a separate
pathway along the entire corridor. The Commission recommended traffic calming and
consideration of targeted climbing lanes where the speed difference between vehicles and
cyclists creates the greatest safety concern.
The amended decision selects pathway and road realignment elements of Alternative D
that were not selected in the 2016 decision. The Park Service says it revisited the decision
to align Executive Order 14314’s direction on recreational access. 4 The amended decision
also acknowledges that the 2016 analysis identified increased wildlife disturbance, habitat
loss, and fragmentation from a second human-use corridor, as well as impacts to
vegetation, visual quality, historic character, and archeological sites. The amendment
describes refinements and mitigation intended to reduce those effects and identifies
potential benefits from moving a portion of the road away from the wetlands. Those
measures do not resolve the County’s concern about placing a new, corridor-length
pathway through this exceptionally wildlife and culturally rich landscape. 5
Congress directs the Park Service to conserve park scenery, natural and historic objects,
and wildlife while providing for their enjoyment in a manner that leaves them unimpaired
for future generations. 6 Executive Order 14314 expressly provides that it “shall be
implemented consistent with applicable law,” and therefore does not displace that
statutory mandate. We support appropriate access and have invested in pathways and
alternative transportation throughout Teton County. That commitment makes it especially
important that the location and extent of any pathway be determined through careful
analysis of the Moose-Wilson corridor’s resources and reasonable alternatives.

3 U.S. Department of the Interior, Secretary’s Order No. 3434, Strengthening Coordination with Gateway Communities §§
5–6 (June 25, 2025).
4 Executive Order No. 14314, Making America Beautiful Again by Improving Our National Parks, 90 Fed. Reg. 30,201 (July
9, 2025).
5 National Park Service, Record of Decision Amendment, 5–6, 9–10, 16–17.
6 54 U.S.C. § 100101(a), (b)(2).

2

Town Council’s ‘Working Calendar’ 2026
Note: This ‘Working Calendar’ shows all Council meetings and upcoming items at
regular meetings that are likely to take 60-90 minutes. Anticipated Planning Items
are designated with a (P) after them. This calendar is subject to change and will be
shared with Council approximately every two weeks.
Guiding Principles of Council’s ‘26 Work Plan:
1. Ensuring financial responsibility;
2. Increasing Environmental Stewardship;
3. Defining Community Character;
4. Improving County Partnership;
5. Maintaining Town Facilities & Assets;
6. Continuing to Work on Housing & Transportation

COUNCIL'S WORKING CALENDAR | 2026
JANUARY

FEBRUARY

MARCH

JOINT MEETING |JANUARY 5

JOINT MEETING | FEBRUARY 2

EVENING MEETING | MARCH 2

Comp Plan Scoping

Joint Powers Agreement Updates | Parks & Ree-

Revolving Rights from Housing Trust for Town Employees

Emergency Management Exercise

Employee Housing Opportunities at 90 Virginian Lane

Legislative Approach

EVENING MEETING | FEBRUARY 2

SPECIALJOINT MEETING | MARCH 9

Flock Safety Contract Review

N. South Park Area 1 Request for Water/Wastewater

START JHMR Contract

Annual Liquor License Renewals

90 Virginian Lane

Water Efficiency

WORKSHOP | FEBRUARY 17

WORKSHOP | MARCH 16

LDR Updates to Address Development Impacts

Parking Update for Summer 2026

FY27 Budget Revenue & Reserve-

Parks & Rec 5 Year Capital Improvement Plan (CIP)

Visioning Workshop for Changes to LDRS

EVENING MEETING | JANUARY 5

WORKSHOP | JANUARY 20

Utility Rate Update & Water Efficiency Ordinance

EVENING MEETING | JANUARY 20
90 Virginian Lane Town Funding Approach

EVENING MEETING | FEBRUARY 17

Nelson Drive Annexation Hearing

S4 Flats Housing Projeet

EVENING MEETING | MARCH 16

Town Council Salaries

Parklets Check In (Plug 'N Play)

SPECIAL MEETING, RETREAT | JANUARY 28&29

Karns Meadow Ecological Monitoring Plan

SPECIAL MEETING, STRATEGIC BUDGET | FEВ. 19
SPECIAL JOINT MEETING | MARCH 17, Board Interviews
SPECIAL MEETING | MARCH 18, STRATEGIC BUDGET