Filling State and Federal Gaps with Local Solutions

• Date: 01 December 2017
• DOI: 10.1177/0160323X17752219
• Author: Ralph Becker
• Published date: 01 December 2017
• Subject Matter: Mini-Symposiums

Mini-Symposium
State and Local Government Review
2017, Vol. 49(4) 253-266
Filling State and Federal Gaps
ª The Author(s) 2018
Reprints and permission:
with Local Solutions: One
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DOI: 10.1177/0160323X17752219
City Mayor’s Perspective
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Ralph Becker1
Abstract
Cities are in a unique position to influence national policy. Over 80 percent of people live in cities,
and over 90 percent of the U.S. economy comes from cities. Unfortunately, the federal and many
state governments are dysfunctional, paralyzed by partisanship. As a result, cities are emerging as the
primary places of policy innovation. This article examines policy-making in one city by Ralph Becker,
Salt Lake City mayor from 2008 through 2015. This article examines three policy areas—ending
discrimination against the lesbian, gay, bisexual, transgender, and queer community, sustainability,
and urban revitalization. Mayor Becker explains the challenges and rewards of local government
policy-making. He provides recommendations for other mayors who want to make significant policy
changes in their cities.
Keywords
cities, mayors, nondiscrimination, sustainability, downtown
Cities are in a unique position today to influ-
handling volunteerism, diversity in the city
ence national policy. Over 80 percent of people
workplace, or achieving sustainability and
live in cities, and over 90 percent of the U.S.
decide whether I could use these ideas to
economy (Gross Domestic Product [GDP])
improve my city.
comes from cities. We live in a toxic political
Maybe local action occurs because at the
era—the federal government is dysfunctional,
local level of government, the basic services
and the Congress is paralyzed. To varying
around public safety and health must be
degrees, many states have followed in the
addressed to keep a community functioning.
hyperpartisan form of governance. As a result,
Maybe local action happens because the parti-
cities and local governments are emerging as
sanship around extreme positions has not yet
the primary places of innovation and action to
become as embedded in daily governance.
solve crucial policy issues.
While attending gatherings of local govern-
ment elected officials as mayor, I have found a
positive energy on every topic affecting our
1 Leadership in Government Fellow with Open Society
communities and society. Mayors and council
Foundation, New York City, NY, USA
members would glean ideas and solutions from
Corresponding Author:
each other and experts and adapt them to their
Ralph Becker, Leadership in Government Fellow with
communities. For my part, I would listen
Open Society Foundation, New York City, NY, USA.
intently to how other communities were
Email: rbecker801@gmail.com

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254
State and Local Government Review 49(4)
Regardless of the reasons, the Metropolitan
addressed by state or federal governments. This
Revolution1 seems underway.
article examines these issues using the follow-
Local governments deal with the reality of
ing framework: genesis for action, adoption,
providing recognizable basic services like
and implementation.
refuse pickup or public safety every day. If the
basic services are not met, mayors cannot sur-
Genesis for Action
vive politically. When basic services and facil-
ities are delivered well, I believe that people are
This section provides the context to understand
more willingly to accept paying more in taxes
each policy.
and fees and changing policies that improve
1.
prior policy accomplishments,
their quality of life. Voters and taxpayers can
2.
my policy change,
see results for their investment in government
3.
extent of policy change,
and trust is built. This local political reality
4.
support and opposition to the policy
makes communities the locations of govern-
change, and
mental action in the United States.
5.
financial or other barriers to the policy
Salt Lake City and many other cities have
change
proactively created policies that reflect a pro-
gressive community’s values. I was mayor
from 2008 through 2015. My policy agenda
Adoption
was based on experience as a Utah state legis-
lator and career as a planner and lawyer in a pri-
This section addresses the specifics of adopting
vate consulting practice. I brought to bear a
a policy. Adoption will vary depending on the
culmination of all that I learned about politics
jurisdiction and issue, but some elements can
and government. I was excited to do my job
be gleaned that apply to many circumstances
every day.
mayors will encounter.
Salt Lake City is a progressive community
in a conservative state. While serving as mayor,
Implementation
I built on actions of my Salt Lake City mayoral
predecessors but also initiated substantial new
Elected officials need to anticipate implemen-
policies within the context of a broader Utah
tation problems that could arise and threaten
conservative environment.
the success of the policy. This includes budgets,
In this article, I examine three examples of
role clarity and direction, and potential preemp-
different types of mayoral pursuits:
tion at other levels of government.
1.
ending discrimination against the les-
bian, gay, bisexual, transgender, and
Ending Discrimination against the
queer (LGBTQ) community,
Gay Community in Salt Lake City
2.
pursuing sustainability, and
Diversity, equal protection, opportunity, and
3.
revitalizing downtown.
economic fairness are fundamental to a just,
thriving community. I sought changes to reflect
The state government in Utah did not prior-
our community’s values as a caring city and
itize these issues or chose different policy
opportunities to achieve those objectives in the
directions. This article provides readers with
absence of federal or state laws that promoted
experiences of an elected official; it provides
these values.
conclusions about keys to achieving results and
overcoming obstacles to change policy. My
hope is that my experiences will help other
Genesis for Action
local government elected officials who also
Prior policy accomplishments. Utah had a nondis-
desire to address important policy issues not
crimination law that provided housing and

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Becker
255
employment protection based on religious and
The Church of Jesus Christ of Latter-day
racial grounds but not for LGBTQ persons.
Saints (LDS) church can have a significant
There was no protection of benefits based on
impact on policy decisions. We needed to
sexual preference in Salt Lake City beyond
address housing and employment discrimina-
granting benefits to city employees. Former
tion while avoiding stepping into a doctrinal
Mayor Rocky Anderson was a fierce advocate
objection from the LDS Church, at least in
for equality. He led the Gay Pride parade
anticipating possible state preemption. The
when it was politically controversial and he
LDS Church is careful to get involved in policy
spearheaded creation of comparable health
only when they feel their doctrines or property
benefits package for LGBTQ city government
interests are affected. We wrote language in the
employees.
ordinance that exempted religious institutions
as employers and landlords from the nondiscri-
My policy change. As a candidate, I created an
mination ordinance as a compromise while
agenda that included ending discrimination and
extending rights to community businesses and
promoting human rights and diversity. I pro-
individuals.
posed items in a Universal Declaration of
Same-sex partnerships were suspect by the
Human Rights and Diversity for the city. One
majority Republican and Mormon populations,
goal was to establish policies protecting
when I initiated the policy changes in 2008.
LGBTQ residents in employment and housing.
Extending benefits to couples who lived
together had never been accepted. I carefully
Extent of policy change. Equal rights for LGBTQ
avoided making statements about the gay
persons was not well received in Utah. The
marriage issue. To consider extending LGBTQ
state would not adopt policies providing hous-
rights to marriage in Utah would have
ing and employment discrimination protec-
eliminated any chance of succeeding on non-
tions; in Salt Lake City, a different social
discrimination policies. Opponents to the non-
environment existed. The challenge was to
discrimination ordinance were consistently
reflect the desires of a majority of city residents
trying to tie gay marriage and nondiscrimina-
while limiting opposition and possibly state
tion policies.
preemption. LGBTQ protections from discrim-
My first proposal to eliminate discrimina-
ination in housing and employment was a hot-
tion against the LGBTQ community was to
button topic; success required me to carefully
extend equal benefits provided city employees
navigate a legal and political minefield.
citywide. Due in part to the goodwill afforded
a new administration, the council adopted the
Support and opposition for the policy change. Sup-
proposal. While we were not well prepared for
port and opposition existed for the nondiscrimi-
the preemption challenge at the Utah State Leg-
nation ordinance changes. The LGBTQ
islature, we nonetheless successfully withstood
community and civil rights advocates in the
that challenge.
city welcomed the ordinance, but some conser-
In preparation for a nondiscrimination ordi-
vative businesses and religious institutions
nance for the LGBTQ community for housing
opposed it.
and employment, we spent months laying the
I anticipated support for the policy from the
groundwork and developing a...