Windsor Creek Information

Windsor Creek Project

Frequently Asked Questions

The Windsor Unified School District is committed to being transparent about the future of the Windsor Creek Elementary School site. The questions below explain the process the District was required to follow, why the property was sold, and what the project could mean for our community and our employees.

If you have a specific question or concern that is not covered in these questions, please contact Jenny Cox at jcox@wusd.org to get further information. 

What is happening with the Windsor Creek Elementary School site?

On June 22, 2026 a Purchase and Sale Agreement (PSA) was approved and signed between the Windsor Unified School District and Gallaher Community Housing for the sale of the former Windsor Creek Elementary site. The agreement is binding and final, though full conclusion of the sale is contingent upon the rezoning of the property. But, essentially, the property is sold and is the purview of Gallaher Community Housing. 

What is the history of the Windsor Creek Elementary School Site?

Windsor Creek Elementary School served the Windsor community for nearly 70 years. Over time, declining enrollment at the campus, the rising cost of maintaining aging buildings and infrastructure, the need for significant asbestos mitigation, and the substantial upgrades required to meet current building codes and support modern teaching led the District to consolidate students onto other elementary campuses. The site stopped operating as an active educational facility in 2019, and the District later began the formal process of determining its future.

On December 18, 2025, the Board of Education adopted a resolution declaring the property at 8955 Conde Lane to be surplus. The District then followed the steps that California law requires before surplus public land can be sold.

How does the surplus property process work?

California law sets out a specific sequence that school districts must follow when selling surplus land. In general terms, the process works like this:

•       The Board adopts a resolution formally declaring the property to be surplus land.

•       The District sends a Notice of Availability to public agencies and to housing organizations registered with the California Department of Housing and Community Development, offering them the opportunity to express interest.

•       Interested entities have 60 days from the notice to submit a written letter of interest.

•       Where interest is received, the District enters into good-faith negotiations over price and terms, following the priorities set by state law.

This framework comes primarily from the California Surplus Land Act (Government Code sections 54220 and following). It is designed to give public and affordable-housing uses the first opportunity to acquire surplus public land.

Why was the Town of Windsor’s offer not selected?

Two parties expressed interest in the property. The Town of Windsor proposed a purchase intended to support park, recreational, and civic uses. Gallaher Community Housing proposed an affordable housing development.

Under the Surplus Land Act, when a district sells surplus property it must give first priority to proposals for affordable housing before other uses such as parks or open space. Because the Town’s proposal did not include housing and Gallaher’s proposal centers on affordable housing, state law directs the District to give priority to the affordable housing proposal in negotiations. This is a requirement that applies to the process; it reflects the priorities the Legislature has established for surplus public land, not a judgment about the value of parks or the Town’s goals.

Was the District able to sell the land for open space or recreation instead?

Affordable housing must be considered first. Under Government Code section 54222.5, surplus land must be prioritized for affordable housing. Only if no affordable housing entity is interested does the next tier of priority, which includes open space and recreational use, come into play. Because an affordable housing proposal is on the table, that priority governs how the District must respond.

It is also worth noting that the Town’s proposal depended on securing grant funding to complete the purchase, additional funding for asbestos remediation, and further funding to build out any park or recreational facilities. Even apart from the legal priorities, the path to the site becoming a completed park involved significant financial challenges.

Does the Naylor Act allow the District to sell the property to the Town at a reduced price?

The Naylor Act (California Education Code sections 17485 through 17500) gives public agencies a priority to acquire surplus school property at a reduced price when that property includes playgrounds, playing fields, or other outdoor recreational areas. However, it applies only when the land has been used for outdoor recreational or open-space purposes for at least the eight consecutive years before the district decides to declare the property surplus.

Because Windsor Creek Elementary stopped operating well before the surplus declaration and has not been in continuous recreational use over that period, the Naylor Act does not apply to this property.

The Purchase and Sale Agreement contains codified language to ensure that the project gets built, that the employees of WUSD have priority and opportunity to live where they work and enjoy great work-life balance and financial freedom. Taken together, these provisions represent a significant investment in WUSD's workforce. By creating affordable housing opportunities specifically designed to benefit school employees, while also generating long-term revenue for the district and ensuring the project moves forward, the agreement supports WUSD's ability to recruit, retain, and support high-quality staff. In an increasingly expensive housing market, these commitments provide lasting benefits for employees, students, and the Windsor community as a whole.

How does this project benefit District employees?

This is one of the most meaningful aspects of the project. Like many communities in Sonoma County, Windsor is an expensive place to live, and many of the people who serve our students, teachers and classified staff alike, cannot afford to live in the community where they work. Bus drivers, instructional aides, custodians, food service workers, and early-career teachers are often priced out of Windsor entirely.

One of the most significant benefits for WUSD employees is a provision requiring the developer to give leasing preference for the affordable rental units to WUSD employees. For a period of 55 years after each phase of the project is completed, district employees will receive priority consideration when applying for available units, provided that doing so complies with state and federal fair housing laws. For an employee who is currently commuting long distances or stretching to make rent, the opportunity to live close to work in a unit they can actually afford is genuinely life-changing. It means less time on the road and more time with family, greater financial stability, and a real stake in the community their work supports. For the District, housing that helps us attract and keep good people is also an investment in the stability and quality of our schools.

How is this different from other low-income housing projects? What does the District receive?

Two features set this project apart from a typical affordable housing sale.

1.) The District would share in the project’s success over the long term. The proposed agreement includes a covenant under which the developer would pay the District fifty percent of the project’s net proceeds, on a recurring basis, for a period of 99 years. Rather than a one-time sale that generates one-time income, this creates the potential for an ongoing revenue stream. Depending on the number of units ultimately approved, occupancy, and financing, that revenue has been projected in the range of roughly $250,000 to $1 million per year. 

While the agreement specifically states these funds cannot be used for employee salary schedule increases or capital projects, they can provide a new, ongoing revenue source that can be applied directly to students in the form of resources (curriculum, supplies, and other enrichment), helping strengthen the district's long-term financial stability and support services that benefit employees and students alike.

2.) The priority for District employees, described above, means the project directly serves the people who serve our students, not only the broader community.

In a conventional surplus land sale, a district typically receives the sale price and nothing further. Here, the structure is designed so that the District continues to benefit financially year after year, while affordable homes are created and our own staff are given a path to live in Windsor. 

Did the District receive fair market value for the property?

Yes. The District has a responsibility to taxpayers to obtain a fair financial outcome for public land. The proposal is structured to meet the property’s appraised value, and the long-term revenue-sharing covenant offers the potential for additional income over time, while also advancing the community’s housing goals and supporting District employees.

Does this project create long-term affordable housing for the workforce?

The agreement requires that the residential units remain affordable rental housing for decades. At least half of the units are reserved for households earning no more than 50% of the Area Median Income. In addition, every residential unit must remain rental housing for households earning no more than 80% of the Area Median Income for 55 years after completion. This long-term affordability helps address one of the greatest challenges facing educators in Sonoma County — the high cost of housing — and supports employee recruitment and retention for years to come.

How can we be sure the project will be built? 

The agreement also includes protections to ensure the housing project is actually completed. The developer must begin construction within a specified timeframe after receiving final approvals and complete the project according to an established schedule. If the developer fails to move forward or defaults on its obligations, WUSD has the right to reclaim the property through a reconveyance provision. These safeguards help ensure that the promised workforce housing benefits are delivered rather than remaining only a proposal.

Has a Board member with a connection to Gallaher Community Housing influenced this decision?

The District understands that questions have been raised because Trustee Rich Carnation serves on the board of Gallaher Community Housing, which is a non-profit organization. When Gallaher Community Housing first approached the District, the District proactively sought guidance from the Fair Political Practices Commission, the state body responsible for determining conflicts of interest, on whether Trustee Carnation could participate. While awaiting that guidance, Trustee Carnation recused himself from all related discussions and negotiations. In April of 2026, the Commission advised that his participation would not constitute a conflict of interest, because he receives no financial benefit from a non-profit board position. However, in light of community concerns, Trustee Carnation has chosen to continue his recusal from all discussions and negotiations relating to the Windsor Creek sale.

Why did WUSD decide not to rebuild a school on the site, especially given past efforts to secure a school location?

The District was recently engaged in discussions regarding a potential school site connected to development north of Arata Lane. Those discussions concluded with an arrangement that provides the District with resources and assistance in securing a school site in that area if one is needed in the future, where growth is actually expected.

Rebuilding a school at Windsor Creek would mean demolishing aging, asbestos-laden buildings at significant cost, on a site that sits close to an existing elementary school and away from the areas of projected growth. Locating any future school nearer to where new families will live makes more educational and practical sense than rebuilding in this location.

Is the Windsor Creek site a protected wildlife corridor?

No. While the parcel is adjacent to Windsor Creek, no portion of the land has been designated as a wildlife corridor or other protected natural resource. The property is subject to ordinary local zoning.

What will the project look like, in terms of height, number of units, and parking?

The District has sold the property to Gallaher Community Housing, and they are responsible for designing the project and working through the size, unit count, amenities, and other details with the Town of Windsor. The project will go through the Town’s standard review and approval process and would ultimately require approval by the Town Council. Community members will have ample opportunity to learn about and comment on specific plans once they are submitted to the Town.