When the Boyd Center for Business and Economic Research at the University of Tennessee released its 2025 economic forecast for the state last month, it came with a sizable caveat: “It should be noted that the forecast does not include any assumptions about potential policies that could be passed by the incoming Trump Administration.”

Knox County will be working toward adoption of an updated zoning code and development ordinance in 2025.

So, too, with this glimpse ahead at the year to come for Knoxville and Knox County’s local governments and educational institutions. It is possible and in some cases likely that actions and initiatives of the new management in Washington, D.C., will occupy considerable local attention and energy. But at this point, it is hard to know which of the many ideas and campaign pledges orbiting around President-elect Donald Trump and his advisers will be prioritized or implemented.

So in this preview, we’re focusing on things we know about — issues and projects that will one way or another confront our local decision-makers. They include a slate of City Council elections in Knoxville; a budget crunch for Knox County; a new strategic plan for Knox County Schools; and ongoing growth at the University of Tennessee. 

Here’s a local civic primer for 2025.

City of Knoxville

For the first time since 1969, candidates to be district representatives on Knoxville City Council will not have to run citywide races in the general election.

A change in state law forced the city to revise its election system, and voters in November narrowly rejected an all at-large configuration. In the 2025 election, voters in each district will select the top two candidates for the general election, then elect the winner.

Voters won’t notice a difference when they go to the polls in the primary, but in the general election the ballot will only list their district race and they won’t be able to vote for any other seat.

Five of the six district seats will be on the ballot (the next election for the 5th District representative will be in 2027), and none of the current Council members can run for reelection because of term limits. That means that newcomers will make up a majority of the next City Council.

So far, three candidates in three different districts have taken the first step toward running for office by naming campaign treasurers, but plenty more will likely get into the running. Potential candidates can’t pick up petitions until March 17. The primary will be held on August 26 and the general election is scheduled for Nov. 4.

Knoxville Mayor Indya Kincannon is entering her sixth year in office with some initiatives nearing completion and others poised to start.

First among them is the $114 million city-county stadium adjacent to the Old City. The Knoxville Smokies will open the 2025 baseball season at Covenant Health Park in April. The stadium is also going to be the home of the One Knoxville SC soccer team, and host to concerts and other events. The stadium is owned by the joint city-county Sports Authority.

Two infrastructure projects should launch this year if funding is available. Repairs to the historic Gay Street Bridge, which has been closed since June, should get underway, and the city will find out later in January if federal funding will be available for a pedestrian bridge across the Tennessee River from the University of Tennessee campus to the South Waterfront.

Several city-owned properties should at least receive development plans in 2025. 

Knoxville’s Community Development Corp. (KCDC) will be seeking developers for the historic St. Mary’s Hospital and surrounding property in North Knoxville, and the McClung Warehouses site at the northern edge of downtown.

The Kincannon administration is also planning to establish a Magnolia Avenue Redevelopment District in East Knoxville and name a developer for the former Tennessee Valley Fair midway site south of Magnolia Avenue at Chilhowee Park.

Knox County

The most immediate challenge for Knox County government will once again come into focus in the spring, as County Mayor Glenn Jacobs presents the second-to-last budget of his final term. Few predictions are safer than the certainty that Jacobs will again propose no increase in property taxes, which (barring unlikely intercession by County Commission) will make it the county’s 26th consecutive budget without one.

But the result of that budgetary discipline will show up in the spending plan, which will probably be as tight as the current year’s. Simply put, the county has little wiggle room in its coffers for anything beyond current services. Even cost-of-living raises for employees may be challenging, as they were this year. Sheriff Tom Spangler is among those likely to face resistance to requests for any substantial new pay increases for his staff. And a growing debt burden is looming in the next few years, which will only increase the severity of the crunch.

Meanwhile, some of Commission’s new conservative members have promised to be budget hawks — particularly commissioners Angela Russell and Andy Fox — who will subject the plan to scrutiny for anything they believe is unnecessary or outside the county’s mandate. It is likely to make for more detailed discussion of the budget than Commission has seen in recent years.

The county will also work toward adoption of an updated zoning code and development ordinance, which will incorporate the guidelines of the new Comprehensive Land Use Plan that County Commission approved last year. That will likely reflect a continuation of the tensions that have marked the rest of the Advance Knox planning process, between preserving rural areas, allowing new development, and making sure infrastructure is sufficient to support it.

By the second half of the year, attention is certain to turn toward the 2026 electoral cycle. The first thing to watch is whether — or, more likely, when — Jacobs decides to announce a run for governor. He spent much of his free time in 2024 making the rounds of the state, dropping in on events, and stumping for Trump — whose endorsement in a Republican primary he would no doubt appreciate. If he does make his run official, look for county government to enter something of a caretaker phase, with operations left largely to department heads. (Something similar happened in the City of Knoxville back when former Mayor Bill Haslam was running for governor.)

Jockeying will also increase to succeed Jacobs as county mayor. County Commissioner Larsen Jay is already running for the seat, and his fellow Commissioner Kim Frazier and school board Chair Betsy Henderson have said they are considering it. They are all Republicans, which could set up a crowded primary for May 2026. No Democratic candidates have announced yet. Other offices on the 2026 ballot will include sheriff, county clerk and register of deeds — which will all also be open because of term limits. We will probably not see the end of 2025 without at least a few candidates emerging for them.

Knox County Schools

As in 2024, many of the most-discussed items in K-12 education this year will originate in Nashville — particularly Gov. Bill Lee’s repeat effort to enact a statewide voucher program. Lee fell short last year, unable to overcome questions and divisions among the Republican caucus in the Legislature. (Legislative Democrats are united in opposition.)

While local school boards around the state may weigh in to oppose Lee’s plan, as they did last year, Knox County’s is likely to sit on the sidelines. A proposed resolution opposing vouchers was blocked last year by the board’s Republican majority, and there’s no reason to think sentiment on the board has shifted since. Henderson, the board chair, and Vice Chair Steve Triplett are both voucher supporters.

Closer to home, the board will work toward adopting a new five-year strategic plan to guide its efforts through the second half of the decade. It is likely to reflect the priorities established by Superintendent Jon Rysewyk during his three years leading the district.

One issue likely to generate discussion is whether or how the board will maintain its commitment to reducing racial and economic disparities in student academic performance and discipline — a key priority in the last two strategic plans, but one Rysewyk has de-emphasized from with support from the board’s Republican majority.

Given the likely restrictions of the county budget, the district will face a test of its commitment to its new salary schedule. It was established last year to bring all district personnel up to “market rates” for their positions, including significant raises for many teachers. But without regular increases to the base to keep up with inflation, it will be easy for the district to fall behind again.

Also left to resolve is the district’s approach to its Clothing Center, which the board voted in November to take over from the nonprofit PTA Board that had run it for decades. The KCS social work department is operating it temporarily while a school board committee evaluates its options for the operation. Rysewyk has promised that the center will continue to provide clothing to children in need.

The board will not need to consider any new charter school applications this year, as none were submitted before the December deadline.

Higher Education

University of Tennessee System President Randy Boyd continues to focus on growth heading into 2025. 

UT plans to increase system-wide enrollment from 59,000 to 71,000 by 2030. At the flagship Knoxville campus, the goal is 41,000 students by 2030, and this fall a record 38,728 students enrolled. 

While UT is recruiting more new students — including a policy guaranteeing admission to high-performing in-state students — the school is also retaining and graduating students in higher numbers. The first-year retention rate hit a record 91.9 percent last year, while the graduation rates have reached new highs of 62 percent after four years and 74 percent after six years

To accommodate more students, UT-Knoxville started construction of two new residence halls that will add about 1,950 beds to the campus inventory when they open in the fall of 2025. Another residence hall scheduled to open in 2026 will add about 1,020 beds.

The university is also looking to expand revenues through non-academic means. UT hired a team of real estate and sports entertainment developers to build a hotel and entertainment district just outside the south end of Neyland Stadium. Plans include a nearly 175,000-square-foot entertainment development and a “condotel” — complete with 240 rooms, 60 luxury condos, a rooftop bar, fitness center and spa. 

Meanwhile, struggling Knoxville College has hired a new president, Rotesha Harris, to head up efforts to restore accreditation at the historically Black college. Harris’ other challenges include building the student body and managing the campus, which consists primarily of abandoned and dilapidated buildings.