diff --git a/release/packages/create-sets.sh b/release/packages/create-sets.sh
--- a/release/packages/create-sets.sh
+++ b/release/packages/create-sets.sh
@@ -25,10 +25,12 @@
 
 	set -- $(pkg query -F "$pkg" '%At %n %Av' | grep '^set ')
 	pkgname="$2"
-	set="$3"
-	SETS="$SETS $set"
-	setvar="$(echo "$set" | tr - _)"
-	eval PKGS_${setvar}=\"\$PKGS_${setvar} $pkgname\"
+	sets="$(echo "$3" | tr , ' ')"
+	for set in $sets; do
+		SETS="$SETS $set"
+		setvar="$(echo "$set" | tr - _)"
+		eval PKGS_${setvar}=\"\$PKGS_${setvar} $pkgname\"
+	done
 done
 
 for set in $(echo $SETS | tr ' ' '\n' | sort | uniq); do
diff --git a/release/packages/generate-ucl.lua b/release/packages/generate-ucl.lua
--- a/release/packages/generate-ucl.lua
+++ b/release/packages/generate-ucl.lua
@@ -166,12 +166,14 @@
 end
 
 --
--- Handle the 'set' annotation.
+-- Handle the 'set' annotation, a comma-separated list of sets which this
+-- package should be placed in.  If it's not specified, the package goes
+-- in the default set which is base.
 --
 -- Ensure we have an annotations table to work with.
 obj["annotations"] = obj["annotations"] or {}
 -- If no set is provided, use the default set which is "base".
-set = obj["annotations"]["set"] or "base"
+sets = obj["annotations"]["set"] or "base"
 -- For subpackages, we may need to rewrite the set name.  This is done a little
 -- differently from the normal pkg suffix processing, because we don't need sets
 -- to be as a granular as the base packages.
@@ -181,27 +183,32 @@
 -- However, lib32 debug symbols still go into their own package since they're
 -- quite large.
 if pkgname:match("%-dbg%-lib32$") then
-	set = "lib32-dbg"
+	sets = "lib32-dbg"
 elseif pkgname:match("%-lib32$") then
-	set = "lib32"
+	sets = "lib32"
 -- If this is a -dev package, put it in a single set called "devel" which
 -- contains all development files.  Also include lib*-man packages, which
 -- contain manpages for libraries. Having a separate <set>-dev for every
 -- set is not necessary, because generally you either want development
 -- support or you don't.
 elseif pkgname:match("%-dev$") or pkgname:match("^lib.*%-man$") then
-	set = "devel"
+	sets = "devel"
 -- Don't separate tests and tests-dbg into 2 sets, if the user wants tests
 -- they should be able to debug failures.
-elseif set == "tests" then
-	set = set
--- If this is a -dbg package, it goes in <set>-dbg, which means the user can
--- install debug symbols only for the sets they have installed.
+elseif sets == "tests" then
+	sets = sets
+-- If this is a -dbg package, put it in the -dbg subpackage of each set,
+-- which means the user can install debug symbols only for the sets they
+-- have installed.
 elseif pkgname:match("%-dbg$") then
-	set = set .. "-dbg"
+	local newsets = {}
+	for set in sets:gmatch("[^,]+") do
+		newsets[#newsets + 1] = set .. "-dbg"
+	end
+	sets = table.concat(newsets, ",")
 end
--- Put our new set back into the package.
-obj["annotations"]["set"] = set
+-- Put our new sets back into the package.
+obj["annotations"]["set"] = sets
 
 -- If PKG_NAME_PREFIX is provided, rewrite the names of dependency packages.
 -- We can't do this in UCL since variable substitution doesn't work in array
diff --git a/release/packages/sets/minimal-jail-dbg.ucl b/release/packages/sets/minimal-jail-dbg.ucl
new file mode 100644
--- /dev/null
+++ b/release/packages/sets/minimal-jail-dbg.ucl
@@ -0,0 +1,6 @@
+comment = "Basic multi-user jail debugging symbols (metapackage)"
+
+desc = <<EOD
+This metapackage installs debugging symbols for the packages required to bring
+up a basic multi-user jail.
+EOD
diff --git a/release/packages/sets/minimal-jail.ucl b/release/packages/sets/minimal-jail.ucl
new file mode 100644
--- /dev/null
+++ b/release/packages/sets/minimal-jail.ucl
@@ -0,0 +1,6 @@
+comment = "Basic multi-user jail system (metapackage)"
+
+desc = <<EOD
+This metapackage installs the packages required to bring up a basic multi-user
+jail.  This is equivalent to the minimal set, but without hardware support.
+EOD
diff --git a/release/packages/ucl/at-all.ucl b/release/packages/ucl/at-all.ucl
--- a/release/packages/ucl/at-all.ucl
+++ b/release/packages/ucl/at-all.ucl
@@ -4,5 +4,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/caroot-all.ucl b/release/packages/ucl/caroot-all.ucl
--- a/release/packages/ucl/caroot-all.ucl
+++ b/release/packages/ucl/caroot-all.ucl
@@ -4,5 +4,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/certctl-all.ucl b/release/packages/ucl/certctl-all.ucl
--- a/release/packages/ucl/certctl-all.ucl
+++ b/release/packages/ucl/certctl-all.ucl
@@ -4,5 +4,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/clibs-all.ucl b/release/packages/ucl/clibs-all.ucl
--- a/release/packages/ucl/clibs-all.ucl
+++ b/release/packages/ucl/clibs-all.ucl
@@ -5,5 +5,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/cron-all.ucl b/release/packages/ucl/cron-all.ucl
--- a/release/packages/ucl/cron-all.ucl
+++ b/release/packages/ucl/cron-all.ucl
@@ -4,5 +4,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/fetch-all.ucl b/release/packages/ucl/fetch-all.ucl
--- a/release/packages/ucl/fetch-all.ucl
+++ b/release/packages/ucl/fetch-all.ucl
@@ -6,5 +6,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/inetd-all.ucl b/release/packages/ucl/inetd-all.ucl
--- a/release/packages/ucl/inetd-all.ucl
+++ b/release/packages/ucl/inetd-all.ucl
@@ -7,5 +7,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/locales-all.ucl b/release/packages/ucl/locales-all.ucl
--- a/release/packages/ucl/locales-all.ucl
+++ b/release/packages/ucl/locales-all.ucl
@@ -5,5 +5,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/newsyslog-all.ucl b/release/packages/ucl/newsyslog-all.ucl
--- a/release/packages/ucl/newsyslog-all.ucl
+++ b/release/packages/ucl/newsyslog-all.ucl
@@ -6,5 +6,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/periodic-all.ucl b/release/packages/ucl/periodic-all.ucl
--- a/release/packages/ucl/periodic-all.ucl
+++ b/release/packages/ucl/periodic-all.ucl
@@ -7,5 +7,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/pkg-bootstrap-all.ucl b/release/packages/ucl/pkg-bootstrap-all.ucl
--- a/release/packages/ucl/pkg-bootstrap-all.ucl
+++ b/release/packages/ucl/pkg-bootstrap-all.ucl
@@ -7,5 +7,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/rc-all.ucl b/release/packages/ucl/rc-all.ucl
--- a/release/packages/ucl/rc-all.ucl
+++ b/release/packages/ucl/rc-all.ucl
@@ -7,5 +7,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/runtime-all.ucl b/release/packages/ucl/runtime-all.ucl
--- a/release/packages/ucl/runtime-all.ucl
+++ b/release/packages/ucl/runtime-all.ucl
@@ -6,5 +6,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/syslogd-all.ucl b/release/packages/ucl/syslogd-all.ucl
--- a/release/packages/ucl/syslogd-all.ucl
+++ b/release/packages/ucl/syslogd-all.ucl
@@ -6,5 +6,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/utilities-all.ucl b/release/packages/ucl/utilities-all.ucl
--- a/release/packages/ucl/utilities-all.ucl
+++ b/release/packages/ucl/utilities-all.ucl
@@ -5,5 +5,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/vi-all.ucl b/release/packages/ucl/vi-all.ucl
--- a/release/packages/ucl/vi-all.ucl
+++ b/release/packages/ucl/vi-all.ucl
@@ -6,5 +6,5 @@
 EOD
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }
diff --git a/release/packages/ucl/zoneinfo-all.ucl b/release/packages/ucl/zoneinfo-all.ucl
--- a/release/packages/ucl/zoneinfo-all.ucl
+++ b/release/packages/ucl/zoneinfo-all.ucl
@@ -8,5 +8,5 @@
 licenses = [ "PD" ]
 
 annotations {
-	set = minimal
+	set = "minimal,minimal-jail"
 }