Wyoming Statewide Strategic Housing Action Plan

This StoryMap presents highlights from the  Wyoming Statewide Strategic Housing Action Plan  (the Plan) commissioned by the  Wyoming Community Development Authority  (WCDA) in 2024. The Plan was prepared by  Abt Global , a research and consulting firm with decades of experience helping federal, state, and local governments and their partners identify and address housing challenges.

The Plan is intended to be helpful to a variety of Wyoming stakeholders. It offers:

• Actions state policymakers and regulators can consider to expand resources available to increase the supply of housing, create and preserve affordable housing, and provide resources to assist localities in planning for and advancing local housing priorities.
• Suggested strategies for localities that can help remove barriers to new housing while preserving local control over how a community grows.
• A starting point from which housing service providers, affordable and market rate developers, cities, counties, tribal nations, and Wyomingites from all corners of the state can create and continually refine a robust ecosystem to serve the housing needs of the state and its residents. 

Users can scroll continuously to see all sections of the StoryMap in order.

To more quickly navigate to specific sections of the StoryMap, select a section in the navigation bar at the top of the page, as seen in the image below.

This Storymap summarizes key sections of the Plan:

• The remainder of Section 1 describes the purpose of the Plan, its vision and guiding principles, and how it was developed.
• Wyoming's unique housing landscape and housing needs identified in Abt's research and in WCDA's 2024  Statewide Housing Needs Assessment . Highlights from these sections of the Plan are presented in  Section 2  and  Section 3  below, supplemented by maps on select Wyoming housing statistics.
• Barriers to housing supply in Wyoming, including funding limitations, regulatory constraints, and infrastructure costs, among others, are discussed in  Section 4 .
•  Section 5  presents goals for the plan and a strategy framework that outlines four major categories of recommendations:
  • Expand resources for housing/infrastructure development
  • Expand/preserve access to affordable housing
  • Reduce regulatory barriers
  • Strengthen capacity among public/private actors
•  Section 6  highlights the Plan's implementation roadmap, with recommended strategies, timelines, and responsible parties

While many strategies in the Plan target state-level actors, Wyoming's cities, towns, and counties can take independent actions to address their unique housing needs and priorities. To assist local decision-makers in identifying appropriate policies and tools for their communities, the Storymap includes an interactive local policy tool that helps match local housing challenges with potential solutions. The tool is found is in  Section 7 .

Unless otherwise specified, content in this StoryMap is from the Wyoming Statewide Strategic Housing Action Plan, developed for WCDA by Abt. See the Plan,  available here , for the full set of resources and research activities that have informed this work.

Several resources, however, were particularly important to development of the Statewide Strategic Housing Action Plan and the StoryMap:

• Portions of Section 3 of the StoryMap summarize findings from  WCDA's 2024 Statewide Housing Needs Assessment , authored by  Root Policy Research .
• Portions of Section 4 summarize findings from the Growth Lab's  Pathways to Prosperity in Wyoming  research project, especially its working paper,  Housing in Wyoming: Constraints and Solutions .
• The local policy write ups in the Local Housing Policy Lookup Tool were written by the Abt team, most of which draw from content on  LocalHousingSolution.org , a joint project of Abt and the NYU Furman Center.

The Plan recommends strategies to state and local decision makers to meet growing housing and economic development needs across Wyoming. It encourages actions through which Wyomingites – including both state and local policymakers – can deepen their efforts to ensure current and future residents have access to safe, quality, and affordable housing. The Plan also aims to support the state and its localities in strengthening efforts to enable job growth and promote attracting and retaining essential workers like teachers and police officers.  

Across Wyoming, there are hundreds if not thousands of state agencies, local governments, developers, builders, lenders, nonprofits, and other organizations that influence the supply of housing in the state. That supply affects the price of housing and a multitude of other outcomes, from the types of goods and services available in different communities to the state’s ability to maintain a dynamic workforce and create new economic development opportunities.

In the absence of intentional and coordinated planning for housing, this complex system can bog down under inefficiencies and waste, adding time and cost to the construction of new homes and resulting in older homes falling into disrepair. 

The Plan is a tool for more effective planning for housing, including how the state and local governments can work together to improve housing outcomes, and how resources can best be allocated for that purpose.

The Plan outlines policy options for improving housing conditions across the state. It seeks to accelerate progress towards a future in which every Wyoming household has a quality home and the housing supply supports the economic health of local communities and the state as a whole.

To ensure the Plan's vision can be achieved, it should reflect Wyoming's distinct political, economic, and cultural landscape and the perspectives and priorities of a wide swath of Wyomingites. The Plan is accordingly anchored by the following principles:

• Wyomingites place great value on local decision making and autonomy, so the Plan encourages the state to empower communities to meet their housing needs rather than issue mandates.​
• Wyoming is a diverse state – economically, politically, and geographically – the same housing strategies that work in one community may not work in another. The Plan includes recommendations for all types of Wyoming communities.​
• The state has a limited but important role to play in improving housing conditions. The Plan identifies ways the state can support communities and take leadership when it will improve efficiency.
• Economic development is a priority for Wyoming. The Plan emphasizes the importance of housing to state and local efforts to build a more resilient economy.
• Wyoming has a tradition of fiscal prudence and a preference for market-based solutions. The Plan prioritizes solutions that can realistically be achieved with limited financial burden to the state. It also offers more ambitious options for consideration for the future.​​​​      

Abt conducted comprehensive data collection and stakeholder engagement to develop the Plan. The team reviewed over 100 state and local documents spanning housing needs assessments, comprehensive plans, land use plans, zoning regulations, and housing reports. This review included a close look at 12 key municipalities recommended by WCDA: Casper, Cheyenne, Gillette, Jackson, Kemmerer, Laramie, Newcastle, Rawlins, Riverton, Rock Springs, Sheridan and Worland - examining their unique housing challenges, regulatory barriers, and existing housing policies. To ensure recommendations reflected local perspectives, Abt gathered stakeholder input through multiple channels. The team conducted twenty in-depth interviews with representatives from key stakeholder groups, including state and local housing policymakers, practitioners, and both affordable and market-rate housing developers. These interviews explored specific barriers to housing development and potential solutions for increasing housing supply and affordability across Wyoming. Additionally, an online survey garnered 114 responses from stakeholders throughout the state, providing further insights into housing challenges and possible interventions. Abt refined its recommendations through an iterative public feedback process, presenting draft strategies at three public sessions: in Casper (August 27, 2024), at a WCDA Board of Directors and housing partners convening in Lander (September 24, 2024), and in Cheyenne (October 21, 2024). Feedback received during each session was incorporated into the final plan, ensuring the recommendations reflected Wyoming's needs and values while drawing from successful housing policies and programs implemented in other states facing similar challenges.

This StoryMap was created by Abt Global. It was written by Stephen Whitlow, Emily Orenstein, Jeff Lubell, Samaa Eldadah, and Kimberly Burnett. Rylee Wrenner developed the Local Housing Policy Lookup Tool and designed the StoryMap. Stephen Whitlow and Zoe Greenwood prepared data for the maps using 2022 American Community Survey data and 2040  population forecasts  prepared by the Economic Analysis Division of Wyoming’s Department of Administration & Information.

The StoryMap narrative primarily draws from Abt's Statewide Strategic Housing Action Plan, whose authors and contributors include Stephen Whitlow, Samaa Eldadah, Kimberly Burnett, Emily Orenstein, Naganika Sanga, Mikayah Holder, Zoe Greenwood, and Jeff Lubell.

Housing costs in Wyoming present a complex challenge that varies significantly across the state. Rising costs are making homeownership increasingly out of reach for first-time buyers and younger residents, while renters are spending larger portions of their income on housing. Several key factors drive these affordability challenges:

• Higher-income remote workers and new residents are putting upward pressure on housing prices
• A shortage of starter homes and smaller units limits options for first-time buyers and older adults looking to downsize
• High interest rates and insurance costs further reduce affordability
• Tourist areas face additional pressure from short-term rentals that reduce housing for permanent residents
• Limited developable land in some areas, particularly where federal and state lands dominate, constrains supply and drives up costs
• The shift toward service industry jobs with lower wages makes it harder for workers to afford local housing

The following maps illustrate median rents and home values across Wyoming's communities. These maps reveal how housing costs vary significantly by location, shaped by factors like proximity to tourist destinations, presence of natural amenities, local economic conditions, and access to employment centers.

In February 2024, WCDA released its  Statewide Housing Needs Assessment , prepared by Root Policy Research. WCDA commissioned the needs assessment to better understand current and future housing challenges across Wyoming and guide strategic planning and resource allocation by WCDA and state and local policy makers. The authors find that Wyoming faces substantial housing needs across multiple dimensions: Current housing gaps Wyoming has significant unmet housing needs affecting tens of thousands of households. Over 50,000 households earning less than 100 percent of area median income (AMI) experience at least one housing problem, such as cost burden, overcrowding, or poor housing quality. Of these, more than 20,000 are extremely low-income households at or below 30 percent AMI. The rental market shows particular strain, with nearly 50 percent of all renter households spending more than 30 percent of their income on housing. While there are over 15,800 renter households earning below $20,000 annually, the state has only 8,300 subsidized rental units to serve this population. Homelessness According to HUD's 2023 Point in Time count, 498 households comprising 532 individuals are experiencing homelessness in Wyoming. However, this likely understates the full scope of the issue. Department of Education data indicates 1,771 children and youth are experiencing homelessness, as this count includes those who are precariously housed or doubled up with other households.

Workforce housing needs The lack of affordable housing has become a significant constraint on economic growth. With approximately 19,000 current job openings, housing supply is inadequate to accommodate needed workforce growth. This particularly affects service sector workers, as growing industries like education, healthcare and hospitality tend to have lower average wages. In some markets, only workers earning $30 or more per hour can comfortably afford housing, while a minimum wage worker would need to work three full-time jobs to afford a typical two-bedroom apartment.

Projected housing needs Looking ahead to 2030, Wyoming will need to add between 20,700 and 38,600 housing units. This range is based on population projections and two scenarios for housing stock loss that occurs through demolition, natural disasters, or other causes. The lower estimate assumes a loss rate of 0.24 percent every two years based on national demolition and disaster rates measured by HUD. The higher estimate uses a 1.7 percent loss rate every two years based on historical housing loss patterns for western states. For renters, the projected need includes: - 1,400-2,600 units for households at or below 30 percent AMI - 1,160-2,150 units for households at 31-50 percent AMI - 1,350-2,500 units for households at 51-80 percent AMI - 603-1,116 units for households at 81-100 percent AMI - 1,499-2,775 units for households above 100 percent AMI For owners: - 1,100-2,100 units for households at or below 30 percent AMI - 1,330-2,460 units for households at 31-50 percent AMI - 2,420-4,480 units for households at 51-80 percent AMI - 1,784-3,303 units for households at 81-100 percent AMI - 8,116-15,025 units for households above 100 percent AMI

In addition to the above findings from the 2024 Statewide Housing Needs Assessment, Abt analyzed cost burdens across Wyoming. Housing needs manifest differently across Wyoming's communities, as shown in the following maps. The geographic patterns reveal how housing affordability challenges stem from different root causes - from rapid price appreciation in tourist destinations to income constraints in service-economy areas. Understanding these local variations is crucial for developing targeted solutions that address each community's specific housing challenges.

Wyoming faces a complex web of housing challenges that have led to the underproduction of housing relative to need. This section summarizes key supply challenges Abt identified for the Statewide Strategic Housing Action Plan, and draws from findings from interviews and surveys of Wyoming housing stakeholders, reviews of state and local housing land use policies, and other research, particularly the work of the Growth Lab's  Pathways to Prosperity in Wyoming  project. 

Housing prices have recently risen faster than incomes, meaning homeownership is increasingly out of reach for first-time buyers and younger residents, and rents are taking a greater share of workers' paychecks. At the heart of the problem lies a severe funding constraint. According to the Urban Institute, Wyoming spends less on housing and community development per capita than most states, leaving local governments struggling to support housing development. This is particularly acute in smaller municipalities, where low residential property taxes and limited tax authority make it nearly impossible to raise sufficient revenue independently. The infrastructure needed to support new housing presents another significant hurdle. Local governments often lack the funds to extend water, sewer, utilities, and roads to new developments. This forces developers to shoulder these costs themselves, which inevitably drives up housing prices. Small towns face particular difficulties maintaining existing infrastructure, let alone expanding it to support growth. Land availability compounds these challenges, especially in high-cost areas like Jackson. While federal and state-owned lands are abundant in Wyoming, legal uncertainties and restrictions around their development create complications for housing projects. The state's small, dispersed population makes it difficult to attract large housing developers, and a shortage of skilled trades workers – who often seek more consistent work in neighboring states – further constrains construction capacity.

Regulatory barriers play a crucial role in limiting housing options. Many Wyoming communities effectively prevent any housing types besides single-family homes through their zoning and building regulations. Even when developers propose new projects, a small minority of community members opposed to development can successfully block construction. This regulatory environment particularly impacts the development of multifamily units and other more affordable housing types. Financing presents yet another obstacle. Developers struggle to find affordable financing options for housing projects, and federal funding sources like the Low-Income Housing Tax Credit are both scarce and highly competitive. Smaller projects, which might be more suitable for Wyoming's communities, often struggle to qualify for these programs at all. These interconnected challenges have created particular shortages in starter homes and affordable units. Older adults looking to downsize often cannot find suitable options, forcing them to remain in larger family homes that might otherwise become available to other households. The situation is especially dire in tribal communities, where limited options for multigenerational households have contributed to overcrowding. This housing crunch is further complicated by capacity issues in local government. Many smaller communities operate with part-time officials juggling multiple roles, lacking the expertise and resources to navigate complex federal grant applications or implement comprehensive housing strategies. The result is a slow, cumbersome development process that has kept housing permits well below pre-2008 levels, even as demand continues to grow.

Understanding these housing challenges becomes even more critical when we examine Wyoming's projected population changes through 2040. The following maps – based on Abt's analysis of 2022 ACS population data and 2040  population forecasts  from the Economic Analysis Division of Wyoming’s Department of Administration & Information – reveal a complex pattern of growth and decline that will reshape housing needs across the state. While some communities must prepare for significant population increases that could intensify existing housing pressures, others face the different challenge of maintaining housing quality and infrastructure with a shrinking population base.

The Plan is anchored by a vision of quality housing for all Wyoming households and housing supply that supports economic health across the state. The following four goals, developed with stakeholder input, specify what the Plan aims to achieve in terms of affordability, supply, workforce housing, and infrastructure. 

1. Increase housing affordability to support family well-being and ensure year-round Wyoming residents can make ends meet 
2. Ensure an adequate housing supply to support Wyoming's economic growth and retain Wyoming's workforce 
3. Balance the need to house Wyoming’s workforce while preserving the state’s open space and natural beauty 
4. Make efficient use of limited resources for infrastructure 

The Plan outlines a comprehensive set of strategies to address Wyoming's housing challenges. The following table presents 27 key strategies Wyoming can consider implementing to advance statewide housing policy objectives and support local governments' housing priorities. Each strategy is mapped to the Plan's four main goals, showing how different actions can help achieve multiple objectives.

Communities don't need to wait for state action to begin addressing their housing needs. Local governments can pursue their own housing initiatives based on their specific circumstances and priorities. To explore policy options available at the local level, see the Local Housing Policy Lookup Tool in Section 7, which helps communities identify and evaluate housing strategies that match their specific needs and capabilities.

The Local Housing Policy Lookup Tool below is designed to help cities, towns, and counties in Wyoming identify policies that can help address barriers to increasing and preserving the local supply of housing. Users can select any area in Wyoming and see a set of policies tailored for local market conditions, including housing costs and current population and projected population growth. Localities are categorized into one of six categories based its 2022 population (which serves as a proxy for the resources an area may be able to use to address its housing needs and priorities), the affordability of local rents and home values relative to overall state values, and its 2040 projected growth rate, which indicates places that may want to consider policies that increase the housing supply to accommodate population growth and avoid exacerbating housing unaffordability. Select the About the Tool button in the top right corner of the tool for more detail on the criteria used for the market types.

The tool presents housing policies for county subdivisions, which are Census-defined areas that are smaller than a county and can include multiple towns and unincorporated areas. There are a total of 71 county subdivisions in Wyoming.

To use the tool, simply navigate to and select any area on the map. Population and housing statistics about the location will show in the pane to the right of the map.Select the View Suggested Housing Policies button, like in the image below, to see housing policies for that location.

You can open the Local Housing Policy Lookup Tool in a new window by selecting the icon in the top right corner, like the one seen here: