A PUBLICAT ION OF THE NORTH CAROLINA LEAGUE OF MUNICIPALITIES The American Rescue Plan & Infrastructure PUTTING FEDERAL ARP DOLLARS TO WORK 12 POLL RESULTS REFLECT STRONG SUPPORT FOR LOCAL DECISION-MAKING 18 CATCHING UP WITH SENATOR MIKE LAZZARA 22 NICOLE STEWART CANNOT STOP CREATING NEW LEADERS 37 LOCAL SPOTLIGHT: WILMINGTON VOLUME 71 / NUMBER 4 / 4TH QUARTER 2021
Southern City is a publication for and about North Carolina municipalities, published quarterly by the North Carolina League of Municipalities. Volume 71 Number 4 4th Quarter 2021 Executive Director & Publisher: Rose Vaughn Williams Editor: Jack Cassidy Writer: Ben Brown Writer: Scott Mooneyham www.nclm.org Southern City (USPS 827-280) is published quarterly for $25 per year ($2 per year to member municipalities, $1 for single copies) by the North Carolina League of Municipalities. Phone: 919-715-4000 Postmaster: Send address changes to: Southern City 434 Fayetteville Street, Suite 1900 Raleigh, NC 27601 Advertising & Design: Advertising Sales: Ronnie Jacko Design & Layout: Jon Cannon For advertising opportunities and deadlines, contact LLM Publications at 503-445-2234 or ronnie@llmpubs.com. ©2022 NC League of Municipalities All rights reserved. The contents of this publication may not be reproduced by any means, in whole or in part, without the prior written consent of the publisher. PUBLISHED WINTER 2021–22 22 NICOLE STEWART CANNOT STOP CREATING LEADERS SC OITUYTHERN
5 INSIDE THIS ISSUE 9 12 16 18 22 26 32 35 37 42 6 8 44 46 37 26 WRITERS THIS ISSUE BEN BROWN NCLM Communications & Multimedia Specialist JACK CASSIDY NCLM Communications Associate SCOTT MOONEYHAM NCLM Director of Political Communication & Coordination NCLM Program Addresses Fire Department Needs Putting experience to use in serving our firefighters. Poll Results Reflect Strong Support for Local Decision-Making Understanding the thoughts and opinions of our communities on the most important local issues. Southern Municipal Conference Held in Wilmington Annual Conference yields new ideas, key conversations. Catching Up with Senator Mike Lazzara The League’s quarterly legislator Q&A. Nicole Stewart Cannot Stop Creating Leaders At every stop along her career, Council Member Nicole Stewart has found herself both as a leader and as a developer of future leaders. Now, as a foremost voice for a new perspective in Raleigh, she’s in that position again. The American Rescue Plan & Local Infrastructure How federal ARP dollars can address local water, sewer, and other infrastructure needs. Case Studies All across our state, cities and towns implement transformational changes when given the opportunity. How to Invest ARP Funds in Utilities Struggling to figure out how to best spend your American Rescue Plan funds? Here is a sampling of eligible spending areas explicitly referenced by the U.S. secretary. Local Spotlight: Wilmington Wilmington, doing amazing work to its riverfront vista and downtown pedestrian-scape, was buzzing on the day Southern City visited for some fond photography. League’s Foundation to Award Cities, Towns for Standout Work A new awards program is set to acknowledge the proactive, creative, and resourceful efforts of North Carolina cities and towns. Board of Directors Speaking Out Using Our Strong Voice Taking the Field Proud to Lead, Excited for the Future Board of Trustees
SOUTHERN CITY QUARTER 4 2021 6 Board of Directors 2021–2022 IMMEDIATE PAST-PRESIDENT Jennifer Robinson Council Member, Cary PRESIDENT Karen Alexander Mayor, Salisbury SECOND VICE-PRESIDENT William Harris Commissioner, Fuquay-Varina FIRST VICE-PRESIDENT Scott Neisler Mayor, Kings Mountain WORKING AS ONE. ADVANCING ALL. UNDESIGNATED AFFILIATE REP. Chris Beddingfield, N.C. Association of Police Chiefs Biltmore Forest DISTRICT 1 Mayor Don Kingston Duck UNDESIGNATED AFFILIATE REP. David Phlegar, SWANC Greensboro DISTRICT 12 Mayor Lynda Sossamon Sylva DISTRICT 11 Council Member Phyllis Harris Mount Holly DISTRICT 2 Council Member Brian Jackson Jacksonville CHARLOTTE Council Member Larken Egleston DISTRICT 3 Mayor Walter Eccard Shallotte DURHAM Council Member Mark-Anthony Middleton AT LARGE Mayor Don Hardy Kinston DISTRICT 4 Mayor Jody McLeod Clayton FAYETTEVILLE Council Member Johnny Dawkins AT LARGE Council Member Doug Matheson Blowing Rock DISTRICT 5 Mayor Pro Tem Carl Ferebee Roanoke Rapids GREENSBORO Council Member Sharon Hightower MANAGER Jeffrey Repp, City Manager St. James DISTRICT 6 Council Member Satish Garimella Morrisville RALEIGH Council Member Nicole Stewart WHISPERING PINES Clerk Linda Christopher MANAGER Bob Boyette, City Manager Marion DISTRICT 7 Alderman Sona Cooper Spring Lake WINSTON-SALEM Council Member Jeff MacIntosh MANAGER Andrew Havens, Town Manager Duck DISTRICT 8 Commissioner Melinda Bales Huntersville PRESIDENT’S APPOINTMENT Martha Sue Hall Albemarle DISTRICT 9 Mayor Neville Hall Eden PRESIDENT’S APPOINTMENT Mayor Bill Dusch Concord ATTORNEY Kimberly Rehberg, City Attorney Durham DISTRICT 10 Council Member Nellie Archibald Wilkesboro PRESIDENT’S APPOINTMENT Council Member Owen Thomas Lumberton
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SOUTHERN CITY QUARTER 4 2021 8 This summer, League member cities and towns, along with NCLM’s advocacy staff, faced a difficult situation when it came to our legislative priorities. After months of hard work making the case for our infrastructure needs, particularly in light of the financial and economic challenges created by the COVID-19 pandemic, the state budget proposals put together by legislators provided a substantial response. Combined with the dollars coming from the federal American Rescue Plan, state proposals to push hundreds of millions of dollars into both existing and new programs aimed at state and local infrastructure investment provide the promise of generational opportunity that municipal leaders have been discussing. At the same time, the budget plan proposed by the state House contained several damaging policy provisions threatening local authority and potentially undermining some of the things that we do to make our communities attractive and livable. They included things like restrictions on local stormwater programs, the undermining of local billboard rules and elimination of local tree ordinances. By now, many of you have seen the response to these proposals by NCLM as an organization. That response includes letter from myself, on behalf of the NCLM Board of Directors, to individual legislators, legislative leaders and Gov. Roy Cooper. It includes direct conversations between municipal officials, with facilitation by NCLM staff, and legislators and members of the governor’s staff. It includes pushing a unified message out to the larger public, through the traditional media and social media, regarding the real-world effects of the potential policy changes. Our message was certainly heard, as reflected in the budget that ultimately emerged from negotiations between the legislature and the governor. These last few months provide us with important lessons in using our voice in smart ways that educate but do not alienate, and using that voice individually and collectively, through the League of Municipalities. Having a unified and consistent message is where it begins. In the case of these budget policy provisions, NCLM staff sounded the alarm with its communications to member cities and towns regarding each provision, with concise messaging on the negative effects of each. That was followed up with the information reinforced through NCLM social media channels and other communications formats. Then, we began to see that same clear points made in examinations of the issues in newspapers and on television stations, something that only happened because of NCLM outreach and individual members making this same, consistent case at council meetings and in other public ways. There are many examples of how these advocacy efforts have been amplified by you, member cities and towns, sometimes through re-publication of NCLM information KAREN ALEXANDER NCLM President I know that there are many more efforts out there, taking place every day, where cities and towns are using their voice in a unified way to make the case for how important local decision-making is in making our communities vibrant, attractive, and strong. Using Our Strong Voice SPEAKING OUT on social media channels and on their websites and others highlighting their individual circumstances. Some noticeable efforts this fall include the City of Wilmington’s creation of a video, published across digital platforms, exploring the need for local stormwater rules that prevent flooding, helping residents see the connection between local stormwater programs and the protection of property and lives. The City of Raleigh’s Mayor Pro Tem Nicole Stewart, a fellow member of the NCLM Board of Directors, made a similar case for local stormwater rules as she discussed the importance of understanding the nexus of state and local policy in a video distributed across the city’s social media channels. These efforts come not only from state’s larger cities. Even when resources are limited, we’ve seen towns like Fairview in Union County help make the case for better broadband policy by republishing the League’s article “The Broadband Market Failure,” from the pages of this magazine onto its website. I know that there are many more efforts out there, taking place every day, where cities and towns are using their voice in a unified way to make the case for how important local decision-making is in making our communities vibrant, attractive, and strong. Keep up the good work and keep building from the examples that we see around us. We work as one to advance all.
9 NCLM.ORG NCLM STAFF irefighters have one of the toughest, most wildcard, jobs out there. The risks they run any day of the week can have serious consequences, and T.J. Deluca knows. He’s gone from starting in 1987 with a volunteer squad to a firefighter with the City of New York Fire Department. Deluca currently still works part time as both an instructor and as a company officer with a small combination department while working at the League for the best of its Bravest. Now, he’s carrying out a firstof-its-kind program to that end. “The fire department is a very different dynamic than other departments within local government,” said Deluca, who in all has 30 years’ experience in the fire service. “And sometimes having the opportunity to have sat in a kitchen in a fire house for so long or riding in that fire truck, it gives me a different perspective that I can translate to that town manager or HR director and kind of offer them what maybe is going on at the fire station to help them better understand some of the needs and some of the difficulties that they may be having.” Deluca, for the past 18 months or so, has been meeting with fire chiefs and other municipal leaders on that mission—to share in the context of the department and offer evidence-backed measures toward reducing those daily risks, simple to great, that firefighters face. If it sounds familiar, it’s a first cousin of the League’s popular Law Enforcement Risk Review, created by Associate Executive Director of Risk Management Services Bryan Leaird and Director of Risk Control Tom Anderson, that police departments across North Carolina in recent years have tapped to identify areas to improve. They can run from policy manual language to higher risks that officers share around the clock. That particular program became a template for other municipal leagues around the nation. “And with the success that was found here in North Carolina, it was an obvious choice that we should branch out eventually to other departments, specifically fire,” Deluca explained. The League, he continued, is committed to providing fire chiefs the real time boots-on-the-ground resources they need to help manage everyday risks impacting firefighter safety as well as the overall fire department operations. This specific program, the first-of-its-kind, was fine-tuned by a specially arranged Fire Chiefs Advisory Committee to meet departments’ needs. On the Advisory Committee are Chief Pierre Brewston of Albemarle, Chief Scottie Harris of Black Mountain, Chief Dave Schmidt F LEAGUE UPDATE NCLM Program Addresses Fire Department Needs PUTTING EXPERIENCE TO USE IN SERVING OUR FIREFIGHTERS. continues on page 10
On a personal side, my dedication to not just our fire chiefs but our men and women who ride that fire truck and go to the emergency scene, if we can be that resource for them and offer them absolutely anything, I take tremendous pride in being able to fulfill whatever they need. » T.J. Deluca, Risk Control Consultant & Fire Department Specialist of Carrboro, City Manager and Fire Chief Jeff Cash of Cherryville, Chief Donna Black of Duck, Chief Tee Tallman of Jacksonville, Chief Ron Fowler of Monroe, Chief Blue Born of Ocean Isle Beach, Chief Kenneth Torain of Roxboro, Chief Bob Parnell of Salisbury, Mayor and Fire Chief Walter Gardner of Warrenton in addition to Deluca. In the program’s 18 months so far (as of this writing), the more frequently requested offerings include: • 24/7 risk control consulting, which invites all issues impacting the fire department; • Risk assessments, which work in partnership with fire chiefs to assess many of the high-risk issues within the department and provide effective controls (including, at times, financially with the League’s RMS Safety Grant Program); continued from page 9 • Procedure/policy review and recommendations; • Claims history and trend evaluation, which looks locally, statewide, and nationally among similar-size departments to help shape accurate and meaningful solutions; • Onsite training, a risk-management eye within the fire service. “If we can do anything to improve firefighter safety and thus reduce claims and losses, we’ve won,” Deluca noted. “But, on a personal side, my dedication to not just our fire chiefs but our men and women who ride that fire truck and go to the emergency scene, if we can be that resource for them and offer them absolutely anything, I take tremendous pride in being able to fulfill whatever they need.” SOUTHERN CITY QUARTER 4 2021 10
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SOUTHERN CITY QUARTER 4 2021 12 ADVOCACY UPDATE Poll Results Reflect Strong Support for Local Decision-Making UNDERSTANDING THE THOUGHTS AND OPINIONS OF OUR COMMUNITIES ON THE MOST IMPORTANT LOCAL ISSUES. n a representative democracy, knowing the thoughts and opinions of the people is crucial when it comes to setting policy and passing laws that reflect their will. That is the case whether at the local, state, or federal level. It is why state constitutions require that state legislatures set procedures to allow people to make their views known before laws are passed. It’s why open meetings laws require local policies be made in meetings open to the public. It’s why some elected officials—especially those at the local level—will take a stroll downtown to take the temperature of those whom they represent about the latest hot-button issue in their communities. Understanding the thoughts and opinions of voters and the larger public is also important to an organization like the League of Municipalities. That understanding can help make the case for policy positions that benefit towns and cities, and the organization can in turn better help member cities and towns know a little more about the perspectives of residents. With that in mind, NCLM recently commissioned its first poll since 2015. Conducted by polling firm Embold Research, the survey of 1,077 registered voters in the state examined a range of issues and policies related to residents’ quality of life and how they see local and state government affecting their quality of life. Conducted in late October and with a margin-of-error of plus or minus 3.2%, the poll measured how satisfied North Carolina voters are with their communities, how important local amenities are to them, and how they view policies affecting development and who should make those policies. Among the most significant findings: • 77% of respondents said that local governments should have more control over decision-making that determines how growth proceeds, versus 8% favoring the state exercising more control. • The opinions of surrounding property owners and local business owners should be given substantial weight as development decisions are made. • 55% favored regulation of short-term rentals, such as Airbnb, at the local level, versus 38% who said the industry should be regulated at the state level or not at all. • 64% who believe billboard locations and size should be decided at the local level, compared to 28% who favored state or no regulation. The findings also show that North Carolinians see access to parks, greenways, and walkable neighborhoods extremely important as they decide where to live and raise families, with scenic beauty and the preservation of trees and open spaces even more important. “There is no question that these results reflect the fact that most North Carolinians see local decision-making as key to ensuring that their visions and aspirations for their neighborhoods and larger communities can be pursued, and that local decision-making with the input of local citizens can help prevent actions that harm their quality of life,” said NCLM Executive Director Rose Vaughn Williams. “These polling results will provide League staff and member cities and towns with a useful tool to help make the case for strong cities and towns the reflect the values of their residents.” We hope that you can use these findings to help advocate for your city or town. Here are several of the questions and responses: I SCOTT MOONEYHAM NCLM Director of Political Communication & Coordination Understanding the thoughts and opinions of voters and the larger public is important to an organization like the League of Municipalities. That understanding can help make the case for policy positions that benefit towns and cities, and the organization can in turn better help member cities and towns know a little more about the perspectives of residents.
NCLM.ORG 13 Advocacy Update continues on page 14 How important to you are things like parks, greenways, and walkable neighborhoods when it comes to choosing where to live? VERY IMPORTANT SOMEWHAT IMPORTANT 79 21 NOT IMPORTANT AT ALL NOT TOO IMPORTANT How important to you are things like scenic beauty and the preservation of trees and open spaces when it comes to choosing where to live? VERY IMPORTANT SOMEWHAT IMPORTANT 93 7 NOT IMPORTANT AT ALL NOT TOO IMPORTANT How closely do you follow development and growth—like the construction of new subdivisions, controversies over new building projects, or zoning changes—in the local news? VERY CLOSELY SOMEWHAT CLOSELY 69 31 NOT CLOSELY AT ALL NOT TOO CLOSELY In your opinion, who should have more control over policies that determine how growth proceeds in a city or town? CITY OR COUNTY GOVERNMENTS (77) STATE GOVERNMENT/STATE LEGISLATORS (8) NOT SURE (15) Thinking about home or subdivision development, do you think developers should be allowed to clear cut all trees as a subdivision is being constructed, or should they be required to preserve some trees? DEVELOPERS SHOULD BE REQUIRED TO PRESERVE SOME TREES (91) DEVELOPERS SHOULD BE ALLOWED TO CLEAR CUT ALL TREES (5) NOT SURE (4) Again, thinking about subdivision development, who do you think should make rules about tree removal and other aspects of construction that affect community character, appearance, and livability? CITY OR COUNTY GOVERNMENTS (77) STATE GOVERNMENT/STATE LEGISLATORS (10) NOT SURE (13) Increasingly, investor groups are buying homes in traditional residential neighborhoods in order to rent them on a weekly or other short-term basis through platforms like Airbnb. Do you believe that your city council or local government should regulate these rentals, or that they should have no role in doing so? LOCAL GOVERNMENT SHOULD REGULATE THESE RENTALS (59) LOCAL GOVERNMENT SHOULD HAVE NO ROLE IN REGULATING THESE RENTALS (29) NOT SURE (12) Again, thinking about short-term rental platforms like Airbnb, do you believe they should be regulated locally, by the state, or not at all? THEY SHOULD BE REGULATED LOCALLY (55) THEY SHOULD BE REGULATED BY THE STATE (17) THEY SHOULD NOT BE REGULATED AT ALL (19) NOT SURE (9) Thinking about the appearance of your community, do you believe the size and location of billboards should be regulated locally, by the state, or not at all? THEY SHOULD BE REGULATED LOCALLY (64) THEY SHOULD BE REGULATED BY THE STATE (20) THEY SHOULD NOT BE REGULATED AT ALL (8) NOT SURE (8)
SOUTHERN CITY QUARTER 4 2021 14 There is no question that these results reflect the fact that most North Carolinians see local decision-making as key to ensuring that their visions and aspirations for their neighborhoods and larger communities can be pursued. » Rose Vaughn Williams, NCLM Executive Director Advocacy Update continued from page 13 How concerned are you about the threat of flooding caused by hurricanes and climate change, and its potential to affect your community? VERY CONCERNED SOMEWHAT CONCERNED 53 47 NOT CONCERNED AT ALL NOT TOO CONCERNED Do you support or oppose making it easier for billboard owners to relocate billboards into areas where currently they may not be allowed? STRONGLY SUPPORT SOMEWHAT SUPPORT NOT SURE (16) 15 69 STRONGLY OPPOSE SOMEWHAT OPPOSE Do you believe local or state rules that are designed to lessen the effects of flooding, such as those enhancing natural stream buffers or requiring stormwater retention ponds for new development, should be strengthened, weakened, or remain the same? THESE LAWS SHOULD BE STRENGTHENED (61) THESE LAWS SHOULD REMAIN THE SAME (20) THESE LAWS SHOULD BE WEAKENED (5) NOT SURE (14) How satisfied are you with your local internet service and the provider of that service? VERY SATISFIED SOMEWHAT SATISFIED NEUTRAL (15) 50 35 VERY DISSATISFIED SOMEWHAT DISSATISFIED Would you support or oppose your village, town, or city, either on its own or by working with a private company, establishing a new internet service provider in your community that promised faster, more reliable service than existing providers, even at a higher price? STRONGLY SUPPORT SOMEWHAT SUPPORT NOT SURE (13) 59 27 STRONGLY OPPOSE SOMEWHAT OPPOSE
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SOUTHERN CITY QUARTER 4 2021 16 eague staff members from across the Southeast recently got together in Wilmington for the annual Southern Municipal Conference, an event like many others that in 2020 was forced to the sidelines by the COVID-19 pandemic. With staffs from North Carolina and Kentucky coordinating as hosts, representatives from those two states and Alabama, Arkansas, Louisiana, Florida, Virginia, South Carolina, Mississippi, and West Virginia attended the conference held October 20–22. The event allows municipal league executive directors, governmental affairs, and information technology staff to compare notes and learn from peers about looming issues in statehouses across the South, as well as those affecting municipal league operations. On the policy front, a heavy dose of discussions surrounding American Rescue Plan funding came as no surprise. Just as in North Carolina, many municipal leagues are working with partners to hold meetings and webinars to try to help member cities and towns navigate the funding and its requirements. While much of the talk focused on the potential benefits of spending ARPA funding on infrastructure, representatives of the Alabama League of Municipalities also noted how they are encouraging members to utilize revenue-loss provisions where possible to minimize potential auditing problems. Two other hot-button topics were the passage of medical marijuana laws and policing reforms. Roughly half of Southeastern states have now passed medical marijuana laws, with Alabama passing legislation this year and Virginia further liberalizing its 2017 law. In North Carolina, legislation was filed this year and appeared to have more support and backing of influential legislators than in the past. In Virginia, municipal league lobbyists pointed out that its laws created an opt-out for municipalities when it comes to whether places of distribution are permitted, rather than an opt-in, to try to avoid controversial votes or referendums. Distribution of taxes associated with the sales is a key issue in all of these state laws. L LEAGUE UPDATE Southern Municipal Conference Held in Wilmington ANNUAL CONFERENCE YIELDS NEW IDEAS, KEY CONVERSATIONS. Just as in North Carolina, all states saw extensive debates regarding police reform measures this year, with much of the focus on training standards and mental health counseling for officers. In addition to actual policy, ideas were shared regarding how to effectively connect locally-elected officials with state legislators and members of Congress, as well as how to engage citizens on the importance of local decision-making. A session organized by NCLM Director of Information Technology Sunil Rajan examined the growing threats posed by computer hacking and its potential to cripple local government operations. Johnny Griffin, director of the Wilmington Regional Film Commission, also spoke to attendees to verse them on the history and current status of the Wilmington film industry, including recounting how it largely began with the siting of the area for the 1984 film “Firestarter.” SCOTT MOONEYHAM NCLM Director of Political Communication & Coordination The event allows municipal league executive directors, governmental affairs, and information technology staff to compare notes and learn from peers about looming issues in statehouses across the South, as well as those affecting municipal league operations. Photo credit: Scott Slatton.
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SOUTHERN CITY QUARTER 4 2021 18 BEN BROWN NCLM Communications & Multimedia Specialist Catching Up with Senator Mike Lazzara THE FORMER JACKSONVILLE MAYOR PRO TEM AND PAST LEAGUE PRESIDENT ON HIS FRESHMAN LEGISLATIVE SERVICE. Michael Lazzara is one of the most familiar faces to the League in recent history. He served an extended term as League president while mayor pro tem of Jacksonville, emceed numerous events and conference sessions for gatherings of municipalities, oversaw various internal and external issues on the League’s board of directors, and spent valuable time with mayors, council members, and appointed municipal staffers to absorb just how diverse North Carolina’s array of cities and towns actually is. But, at the end of the day, mayors and other leaders embrace similar goals— good livelihoods, strong infrastructure, opportunities for growth, a pleasant quality of life, and so on for their fellow residents. It’s this experience that gives Lazzara, now Senator Lazzara, a special set of eyes as he navigates the General Assembly and how it crafts solutions for the people. Southern City was fortunate to catch up with him just prior to the Thanksgiving break. ˘˘˘ How has your experience as a municipal leader affected your experience as a state legislator? ML: I think my prior experience, having been elected leader in local government, and actually my work and involvement with the League, has certainly made it an easier transition and a more productive transition. Because understanding local government and statewide issues as it relates to the issues and the people that we serve certainly gives you a different perspective when it comes to legislation and budget, of course. Have there been occasions where you feel specifically that your municipal service has helped you to vet a bill or sift through language? ML: Absolutely. There have been numerous bills, out of the 1,700 bills that were filed between the House and Senate, as it relates to regulatory issues, inspection issues, permitting issues, things that relate to local governments and having been there I think I’ve brought a valuable voice to concerns over particular language— and education: finding that balance between overreach and building sustainable communities that require zoning and laws that help maintain those valuable communities. Do you feel a greater presence of municipal experience in the legislature? There are some other past mayors and city officials serving as legislators. ML: I think there is, and it seems to be gaining some traction as new members come in. There’s a great deal of value that comes from having that background, to truly understand how citizens are impacted by legislation that affects them directly, through local government. I think it’s important to know what that is and how they’re affected directly by a particular law change. A good example is the amount needed before you have to hire a general contractor on renovations, and I could go on and on, but again there’s two sides to every coin. You know, if you live in a coastal area where you’re susceptible to a lot of storms, a lot of outof-town folks come in to take advantage of people. So, in that landscape, having that oversight is really important to protect the people that are homeowners. And maybe in the mid to west side of the state, you’re not as susceptible. Again, it’s really trying to find that balance … and making sure that we know how it impacts the actual people that we serve. It occurs to me as you’re talking about this that the nonpartisan nature of municipal government may be a great way to become versed in talking policy with people on different issues without party being the focus. ML: In the 15 years that I was in local government—we had Republicans and Democrats on council—but I don’t ever remember there being a partisan vote. When you talk about water and sewer infrastructure, recreation, it really is nonpartisan at the local level. But I think bringing that sort of negotiating attitude to the General Assembly certainly helps navigating with our counterparts there, and I think it’s helped tremendously in terms of getting along with the other side of the aisle and building relationships. Because, at the end of the day, we serve the same people—and generally people want the same things, whether you’re partisan or nonpartisan. A lot of the people that we serve want low taxes, they want good education, they want quality of life, they want a good business economy, they want all the basic things that I really truly believe Photo credits: Ben Brown
Catching Up with Senator Mike Lazzara are nonpartisan. Obviously, there are some partisan issues we deal with but, fundamentally, I think when you take the (nonpartisan) approach, you can find more common ground with each other than not, and I think that’s a valuable tool. Is there anything that surprised you when you got to the legislature? ML: I think a good surprise has been the camaraderie between the caucus members and even those outside of the caucus has really been better than I would have expected. We work together, we work through obstacles to find solutions, the dialogue is really, really good. But really the willingness to help each other. Just recognize that you can call any of us and we work together on issues. You’re never alone. We do work together, and I think that’s really a strong suit of the caucus. Remind us why you were interested in moving from local government to the legislature to begin with. ML: I spent 15 years in local government, and during that time I was sort of a nerd. I like infrastructure, water and sewer advisory, transportation. I spent 12 years on transportation as a (local transportation body) chair. I just found policy work pretty much a passion of mine. And then of course when I had the opportunity to serve on the League and as the League president for several years, working with mayors across the state, I think that’s where I really grew my passion for policy work, and I was ready to do something a little different, and I think that when this opportunity came up I kind of felt like I was prepared for it, prepared for that next challenge. And to be able to offer the years of experience that I had in local government and really at the state level with the League, having worked with so many mayors across the state, from Franklin to Duck, and I think it’s just really valuable to know the different challenges that different cities have. You don’t live in a glass when you do that. But the basic challenges really are much the same. Is this a communication goal of yours? What do you think the feather in your cap is going to be in terms of where you come from and why you’re in the legislature now? ML: I think one asset that I have is being from a military community. We just enacted the exemption for military retirees and that’s going to be a huge economic driver for the state, being the fourth-largest military footprint in the country. Again, I think continues on page 21 We work together, we work through obstacles to find solutions, the dialogue is really, really good. But really the willingness to help each other. Just recognize that you can call any of us and we work together on issues. You’re never alone. We do work together, and I think that’s really a strong suit of the caucus. 19 NCLM.ORG
Catching Up with Senator Mike Lazzara Challenges that we have in Jacksonville are much different than the challenges in Charlotte or Duck. But similarly, the same. To understand the challenges that they face and how we play a role in that, to know how many cities and towns have failing water and sewer infrastructure. At the end of the day, whether we agree or disagree how they got there, the impact is on the citizens that we serve, and we have a responsibility to find solutions to these problems. SOUTHERN CITY QUARTER 4 2021 20
NCLM.ORG 21 having the years of experience and having the passion for the basic infrastructure needs of most municipal governments and understanding those needs … I know what it takes to put in a mile of road … I just feel like having that experience as we navigate through legislation in committees … I can bring a wealth of knowledge to help navigate that. I think, as a freshman, I’ve been able to do that. It certainly is a commitment. To be effective you’ve got to be willing to put the time and energy into educating yourself and making sure that you’re putting the time in to be an effective leader. It takes time and education. But again, we’re all there to serve the citizens of North Carolina and to make it a better place to live and do business and retire. And that’s the sort of landscape that we’re trying to achieve while serving local governments. And the beauty of having the League experience I think … it’s important to understand the differences within the state, different local governments. Challenges that we have in Jacksonville are much different than the challenges in Charlotte or Duck. But similarly, the same. And to know those differences, to know that there’s 230 cities and towns that are under 5,000 in population and the challenges that they have, to understand how many cities and towns that are not able to meet budget requirements, and the challenges that they face and how we play a role in that, to know how many cities and towns have failing water and sewer infrastructure and being thought leaders on how we correct those issues. At the end of the day, whether we agree or disagree how they got there, the impact is on the citizens that we serve, and we have a responsibility to find solutions to these problems. And you wouldn’t know unless you served in the right areas. continued from page 19 Catching Up with Senator Mike Lazzara
SOUTHERN CITY QUARTER 4 2021 22 JACK CASSIDY NCLM Communications Associate Nicole Stewart Cannot Stop Creating New Leaders AT EVERY STOP ALONG HER CAREER, COUNCIL MEMBER NICOLE STEWART HAS FOUND HERSELF BOTH AS A LEADER AND AS A DEVELOPER OF FUTURE LEADERS. NOW, AS A FOREMOST VOICE FOR A NEW PERSPECTIVE IN RALEIGH, SHE’S IN THAT POSITION AGAIN. They don’t know how Nicole Stewart finds the time. As Raleigh’s Mayor Pro Tem, a mom of two, NC Conservation Network’s Development Director, board member for the N.C. League of Municipalities, and a participant in many other endeavors, they don’t know how she balances it all. It’s a refrain she hears often from colleagues and counterparts alike. “It’s kind of exhausting,” Stewart says, not of the work but of the question. “I always just answer quickly and say, ‘I don’t know.’” However she does it, she does it well. Stewart’s voice stands out. It stood out during her early career as an organizer, where issuebased motivations developed into political prowess, and it has stood out during her time on the Raleigh City Council, first as a dissenter and later as a foremost perspective among a new crop of perspectives. “With Nicole, we’re starting further down in the conversation,” said Megan Hinkle, policy analyst for Raleigh’s City Council office. “She does her homework.” From one project to the next—and often at the same time—Stewart has picked tasks that align with her goals, which can be broadly defined as equity. That notion informs the lot: her environmental passions, her climate objectives, her focus on affordable housing and schools and everything else, right down to the nitty-gritty work of ordinance making. At each stop, she’s created leaders in her wake. The result is even more voices, gathering momentum to face enormous challenges and guide the ever-changing Raleigh into its future. Stewart’s approach to her work is a combination of drive and know-how. The easy part is the drive. Moving from Connecticut to Apex at a young age, Stewart remembers her passion for environmental issues always being there, and she recalls a rich diversity throughout her upbringing as well in an area that was undergoing rapid change. “Diverse and quickly growing, and becoming even more diverse,” Stewart said of Apex. She followed those principles to the University of North Carolina at Wilmington, and after first considering marine biology, recognized that she would thrive more on the political side of the issue, rather than the hard sciences. She graduated with a degree in environmental studies, and almost immediately got a job back home in Wake County as an organizer for the NC Conservation Network. The know-how ripened from here. Stewart recalls one story in particular from her early days in the role where mega-landfills were slated to be built in eastern North Carolina, all in predominantly African American communities. The landfills would be used as an endpoint for trash shipped down from the Northeast. “They were literally dumping on these communities,” Stewart said. A few years into her organizing work at this point, Stewart was adept at planning and holding protests, and that is what she did. Stewart worked behind the scenes to coordinate with longtime criminal justice advocates and church leaders in the area, and helped coordinate messaging across the groups, while also bringing in outside organizations such as the Sierra Club and Coastal Federation. It was the community engagement portion that played the biggest part, Stewart believes, and ultimately, they were successful in stopping the project. “I do not kid myself in terms of how much those relationships with those African American leaders built me, built my view of diversity, equity, and inclusion… and shaped my young, 20-something-year-old naïve organizing self into who I would become,” she said. This period stands as a formative time in Stewart’s career. In 2008, she cofounded the Beehive Collective—a giving circle dedicated to creating women leaders that “pools money, time, and talent to impact our Raleigh community,” and has given more than $400,000 to local nonprofits since its launch, according to its website. Stewart and her friends were simply throwing fundraisers for fun before formalizing the organization. “We were pulling our collective resources. We all worked at either service industry or nonprofit jobs and didn’t make much, but we wanted to make a difference,” Stewart said. In the spirit of building new leaders, Stewart stepped off the Beehive board of directors after nearly five years. “If we’re serious about building new leaders, then the old ones have to get out of the way.” That approach to leadership would resurface later on the Raleigh City Council, but in the interim, Stewart remembers pouring her energies into both her work, where she was promoted to Development Director in 2011, and the small business community of the city through her husband, Les, who became the head brewer at Raleigh mainstay Trophy Brewing. She also had two children, Evan and Liza, now ages 12 and 9. Still, despite the litany of new responsibilities, the desire to get fully involved reached a breaking point. After tossing the idea of public office around with Les and members of the Beehive Collective for the better part of a year, Stewart took the plunge. “It was time to give back in a bigger way,” Stewart said.
NCLM.ORG 23 Nicole Stewart Cannot Stop Creating New Leaders Again, the know-how was there. “I absolutely knew I could campaign,” Stewart said. “I had been doing grassroots organizing for 20 years.” The governing would come naturally too, Stewart figured, as she had decades of experience in both elevating issues and bringing people together through meeting facilitation. She ran at-large in the 2017 election, established a city-wide grassroots effort, and won. Stewart was the new voice in town, and she remembers being very much aware of that position during those first two years. “On a fractured council, she has consistently sided among the minority,” one news report would later describe. With the most recent city election though, the landscape somewhat changed, and—continuing a well-tread pattern—Stewart was able to lead while begetting new leaders. “I absolutely went from campaigning much through the first term, trying to get some messages out there about the issues and paint a different picture because I knew my vote wasn’t going to do much,” Stewart said. “Once new folks got here, it was time to govern.” The issues important to Stewart are both immense and local. Concerns like climate resilience and affordable housing—problems so large that the authority of a municipal official seems futile in comparison. It hasn’t slowed Stewart. Similar to her first term, it may even motivate her, pushing her to find new solutions to these issues that she had not previously considered. “I really came to understand that city politics are just a different beast,” Stewart said. The nonpartisan nature of local government, while initially presenting unforeseen political challenges soon began to present unforeseen friendships. “We can’t do it alone. This isn’t something we get to solve by ourselves… (The first term) helped me understand people in different ways, and made me want to build relationships with people I had not built relationships with before.” The N.C. League of Municipalities Board of Directors have facilitated those relationships, with one success story recently coming to fruition through the state budget passed in November. On the issue of natural disaster and flood resiliency, Stewart, Shallotte Mayor Walt Eccard, Lumberton Council Member Owen Thomas, and Kinston Mayor Don Hardy—a group that represents urban and rural interests alike—worked together to mobilize their respective networks, write op-eds, and advocate at the state legislature for inclusion in the budget. It worked, resulting in $300 million in relevant appropriations. “It’s amazing how quickly we can get to say, ‘It’s not about partisan politics. Let’s talk about the issues.’ All the sudden, we’re not just affecting city politics. We’re affecting across the board.” For Stewart, these issues fit together like machinery and, like nearly all city business, comes down to a question of how to manage growth. The COVID-19 pandemic upended enough of the entrenched assumptions in Raleigh to potentially open up some From one project to the next—and often at the same time—Stewart has picked tasks that align with her goals, which can be broadly defined as equity. That notion informs the lot: her environmental passions, her climate objectives, her focus on affordable housing and schools and everything else, right down to the nitty-gritty work of ordinance making. continues on page 24
SOUTHERN CITY QUARTER 4 2021 24 opportunities, and she has a vision. “What if we could come out of COVID and be a city of equity?” Stewart said. “To me, what that looks like is neighborhoods that have diverse homes, diverse people living in them that support diverse schools,” leading to what she terms “the 15-minute city”—a neighborhood where schools, employment, and key services and businesses are all a short walk away. “Then that gets us to our climate goals, which gets to our equity goals, which gets to our housing goals.” It’s a wholesale, self-perpetuating vision, which Stewart pursues through a set of ideals. For example, as she describes, reliable water infrastructure should not be a point of contention with each new development, but rather a bare minimum citywide. It’s a practical approach to the day-to-day business of city governance, and yet still a noticeable change from the incrementalism that she first observed when joining council. “It’s more about how we get structural change into the code, rather than piecemeal one-byone rezoning,” Stewart said. Her viewpoint is one that is gaining traction on the Raleigh City Council. No longer the lone dissenter, Stewart is now able to put forth ideas and policies that are well-informed by the city itself, of which she and her family are an integral part. During 2020, when Les would come home to talk about the declining business and difficulty in hiring staff at Trophy Brewing, Stewart’s perspective on the impacts of the pandemic expanded. When certain city programs come up for funding consideration each budget cycle, Stewart can speak with firsthand familiarity to many of them, including the Weather Bound program through Raleigh’s Parks and Recreation Departments, which provides emergency childcare when schools are closed for the day. “She’ll speak from experience,” said Hinkle. “We haven’t seen that at the table in a while. It’s neat. And as a mom, it’s good to feel represented up there.” It’s yet another example of Stewart serving as the voice for a group and a cause. It’s an unmissable theme. She notes that it wasn’t exactly intentional in each instance, but rather began with a question: what if? “What if we start the Beehive Collective, and it becomes a force people recognize?” she said. “What if we ran for city council, and we’re able to carry that voice—to be the only young, working mom on council?” What if leaders created leaders to follow after? It’s a movement worth trying for Stewart. It’s working thus far. “She’s different,” Hinkle said. “In a good way.” continued from page 23 Nicole Stewart Cannot Stop Creating New Leaders
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2021 The American Rescue Plan & Local Infrastructure How federal ARP dollars can address local water, sewer, and other infrastructure needs. SOUTHERN CITY QUARTER 4 2021 26
NCLM.ORG 27 The American Rescue Plan and Local Infrastructure REPORT FINDINGS A Generational Opportunity •The American Rescue Plan will bring $1.3 billion to N.C. cities and towns, and it includes a broad mandate to allow investments in water and sewer infrastructure. •Local governments repeatedly demonstrate the ability to lead transformational change—case studies in Bethel, Hendersonville, and many other towns show that when properly funded and supported, local government-led infrastructure projects yield lasting results. A Clear Need •Significant investment in water and wastewater infrastructure is needed—close to $30 billion, according to estimates. INTRODUCTION North Carolina cities and towns will receive $1.3 billion in federal American Rescue Plan (ARP) funds in 2021 and 2022. That is a staggering number, and it encompasses just a small piece of the ARP. More funds will be sent to North Carolina counties. Still more is going to the state itself. Never before has money flowed directly to our cities and towns like it will through the ARP, and as such, it is a generational opportunity—to both recover from the pandemic and to prosper well into the future. These dollars come with limitations and will require strict accounting for their uses. Although continued U.S. Department of Treasury guidance is still expected related to eligible spending, the federal bill includes a broad mandate to allow investments in water, sewer, and broadband infrastructure. (It should be noted that, despite the federal law and its guidelines, North Carolina law continues to place substantial restraints on local government broadband spending.) “A few years from now, people will look back on the American Rescue Plan and the ways that it did or did not transform communities. They will look at whether the purposes on which it was spent created a legacy of a better North Carolina, or whether opportunities were squandered.” » Karen Alexander, NCLM President and Salisbury Mayor •The responsibility falls almost solely to local governments, who get just 8% of their water and sewer needs met by outside funding yet provide service to 89% of the state’s population. •Many of those same local governments are dealing with population loss in recent decades, reducing revenue and lessening their capacity to meet those infrastructure needs. Planning for the Future •The League encourages its members to consider investments into water and wastewater infrastructure. •Additionally, the League encourages municipalities to seek partnerships and regional collaboration when planning American Rescue Plan spending. •Not only do funding projects go further when partnered, but also investments in infrastructure represents the most likely paths to a lasting funding legacy. There are numerous examples of federally-supported infrastructure projects yielding transformational changes to our municipalities. The highlighted projects within include those that are now underway, funded through sources other than the ARP and those planned with ARP funds. In each case, substantial outside funding—similar to amounts being awarded local governments across North Carolina under the federal American Rescue Plan—made these projects possible. There is a well-documented and clear need for water infrastructure investment in North Carolina. This issue represents the most significant threat to the sustainability of many towns, and existing state and federal funding streams are insufficient given the scale of the problem. With the addition of ARP funding, however, those funding totals more adequately address the issue. Investments in projects that have long-term impacts on residents’ quality of life, create economic opportunity, and help solve these infrastructure challenges are now possible. continues on page 29
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