Balancing Growth and Preservation: The Unique Planning Approach of Teton County, WY
By Chris Neubecker, AICP
In the heart of the Greater Yellowstone Ecosystem, Teton County, Wyoming, commonly known as "Jackson Hole," stands as a testament to the delicate balance between growth, affordable housing, and environmental preservation. Situated at the gateway to Grand Teton and Yellowstone National Parks, the Teton County Planning and Building Services Department plays a pivotal role in maintaining this equilibrium, employing innovative strategies and facing unique challenges in its mission to sustain the region's natural beauty while accommodating a growing population.
A Collaborative Vision: The Jackson/Teton County Comprehensive Plan
One of the cornerstones of Teton County’s planning efforts is the Jackson/Teton County Comprehensive Plan. This forward-thinking document, jointly adopted in 2012 by the Town of Jackson and Teton County and most recently updated in 2020, lays out a shared vision for the future. It emphasizes three Common Values: Ecosystem Stewardship, Growth Management, and Quality of Life.
The Comprehensive Plan serves as a blueprint for sustainable development, guiding zoning decisions, land use policies, and infrastructure investments. By aligning the objectives of both the town and county, the plan ensures a cohesive approach to managing growth and development for the entire community. It is supported by a commitment to annual monitoring of data that tracks the community’s progress toward its goals in a yearly Indicator Report, which provides data to inform policy decisions.
Tackling Affordable Housing
The cost of housing is a significant challenge in Teton County, where the stunning natural surroundings and thriving tourism industry have driven up real estate prices. Limited availability of private land restrains growth and pushes up prices; approximately 97% of the land in the county is owned by the federal government, including two national parks (Grand Teton and Yellowstone) and extensive forest service land. The use of conservation easements on private land further restricts locations available for development. These limitations, along with favorable statewide tax policies, attract millionaires and billionaires to the area, outcompeting local workers for housing. In 2023, the average rent for a two-bedroom apartment was $3,168 per month.
The county and town planning departments work closely with the jointly funded Affordable Housing Department to address this challenge through innovative zoning and housing programs. One notable initiative is the creation of zoning tools in the Town of Jackson that incentivize the development of affordable housing. These tools allow for higher-density developments in town in exchange for building affordable units. The density increases in the town came from a downzone in the rural areas of the county, ensuring no net increase in the total density of the community and ensuring that density is built in complete neighborhoods served by existing infrastructure.
Measuring and tracking the available density is reported through the yearly Indicator Report, which is currently being transformed into an interactive dashboard. Additionally, the Affordable Housing Department collaborates with local non-profits and private-sector housing developers to leverage funding and resources for affordable housing projects.
The Long-Range Planning division, with one full-time position funded jointly by the Town of Jackson and Teton County and one county-only planner, plays a critical role in these efforts. By conducting comprehensive planning and housing studies and engaging with the community, these jointly funded departments ensure that land use policies are both effective and aligned with the needs of the entire community.
Northern South Park Neighborhood Plan: A Model for Innovative Zoning
A shining example of Teton County’s innovative approach to zoning is the Northern South Park Neighborhood Plan and its recently adopted implementation zoning. This newly developed neighborhood plan, with a zoning overlay, showcases a suite of unique zoning tools designed to address the county's pressing need for affordable housing close to existing jobs and services while maintaining environmental integrity and existing property rights.
The Northern South Park Neighborhood Plan introduces flexible zoning options that promote a mix of housing types, along with infrastructure for transportation, parks, and open spaces. This approach not only maximizes land use efficiency but also fosters a vibrant, walkable community. Additionally, the newly created zoning is fully optional for landowners; if a landowner chooses to develop under their existing Rural or Suburban zoning, the new zoning regulations would not apply. Only when a landowner opts into the new zoning do the new regulations (and significant density bonuses) take effect.
Northern South Park is adjacent to the Town of Jackson boundary and is served by existing roads and utilities, making it a prime candidate for future annexation. The new zoning tools include:
Incentivized Density Bonuses: Developers in Northern South Park are granted higher density allowances in exchange for incorporating affordable and workforce housing units into their projects. This incentivizes the creation of affordable housing without compromising overall community character. Landowners who opt into the new zoning will be required to provide 40% of the new units as affordable housing (with income limits), 30% as workforce housing (no income limits, but restricted to local workers), and up to 30% of the new units as market-rate housing with no limits on ownership or price. The obligation to provide deed-restricted housing can also be met through partnerships with non-profit housing developers via donations of land (with new utilities and roads installed by the current landowners) to the approved non-profit developers.
Walkable Neighborhood: To ensure walkability and connectivity in a mixed-unit neighborhood, the plan requires a master site plan for new developments, including maximum distances to parks and open spaces, maximum block lengths, and the inclusion of sidewalks, alleys, and pathways.
Preservation of Open Spaces: The plan strategically integrates open spaces and parks within the neighborhood, providing residents with ample recreational opportunities and preserving natural habitats and wildlife corridors.
Environmental Protection in the Face of Growth
Teton County’s location within the Greater Yellowstone Ecosystem makes environmental protection a top priority. This region is home to many important species, including grizzly and black bears, moose, elk, deer, bald eagles, trumpeter swans, and cutthroat trout. The Planning and Building Services Department employs a variety of strategies to safeguard the region’s natural resources and wildlife habitats.
Zoning regulations are crafted with environmental considerations at the forefront. For instance, the county has implemented stringent setbacks and buffer zones around sensitive areas, such as rivers and wetlands, to minimize human impact. Additionally, there are rigorous standards for developments near wildlife corridors to ensure that animals can move freely through their natural habitats. The county is currently updating its Natural Resources Overlay (NRO) with a new tiered habitat map. The proposed regulations include a tiered system of protection so that the most critical habitats and movement corridors receive the highest level of protection and site-specific study prior to development. The tiered mapping was developed based on a focal species habitat mapping process, and the proposed new regulations are being vetted with help from a local group of stakeholders with expertise in land and wildlife conservation.
The Comprehensive Plan also emphasizes the importance of maintaining open spaces and agricultural lands. Through conservation easements and other land preservation tools, Teton County works to protect these areas from development, preserving the natural landscape for wildlife habitat, allowing future generations to enjoy open spaces, and supporting an important agricultural economy and heritage. Using conservation easements can also help landowners earn density bonuses if the additional development is clustered to avoid sensitive natural resources, such as wildlife habitat.
Challenges and Innovations
Despite its successes, the Teton County Planning and Building Services Department faces ongoing challenges. Balancing the needs of a growing population with the imperative to protect the environment is a constant struggle. The high cost of land and construction continues to pose difficulties for affordable housing efforts, including the ability to hire and retain staff.
However, the department’s innovative approach and commitment to collaboration provide a strong foundation for addressing these challenges. By fostering partnerships with local organizations, state agencies, wildlife science professionals, and the community, Teton County is able to leverage a wide range of expertise and resources.
Looking Ahead
As Teton County continues to grow, the Planning and Building Services Department remains dedicated to its mission of protecting the ecosystem, ensuring health and safety through code enforcement, and guiding sustainable development for future generations. The ongoing implementation of the Jackson/Teton County Comprehensive Plan, combined with a proactive approach to affordable housing and environmental protection, positions the county to navigate future challenges effectively.
The Northern South Park Neighborhood Plan exemplifies how targeted zoning tools can simultaneously address housing needs and environmental goals. By incorporating innovative zoning strategies, Teton County is setting a precedent for thoughtful, balanced development in sensitive ecological areas while protecting property rights.
In the end, the success of Teton County’s planning efforts lies in its ability to balance the needs of its residents with the preservation of its stunning natural environment. Through innovative strategies and a commitment to collaboration, the Teton County Planning and Building Services Department, along with the Town of Jackson Planning & Building Department, serves as a model for other communities facing similar challenges.
By embracing both tradition and innovation, Teton County and the Town of Jackson are preparing for a future where growth and conservation coexist harmoniously in the heart of the Greater Yellowstone Ecosystem.
About the Author
Chris Neubecker, AICP is the Planning and Building Services Director for Teton County, Wyoming. Prior to that, Chris was the Planning Manager in Vail, Colorado, and worked in other areas of Colorado for over 20 years. Neubecker is an accredited LEED Green Associate from the Green Building Certification Institute and a member of the American Institute of Certified Planners from the American Planning Association. He has a master's degree in Urban and Regional Planning from the University of Colorado.
The Teton County Planning Department won the Western Planner 2024: Kenneth G. Waido Planning Team of the Year Award for their work on the Jackson/Teton County Comprehensive Plan.