The relationship between Nashville and the state legislature has been fraught for years.
Back in 2023, after the city’s Metro Council rejected a proposal to host the Republican National Convention in Nashville, lawmakers passed multiple preemption bills targeting Metro. These sought to overhaul the Sports and Airport Authority boards, and to shrink the size of the Metro Council. In turn, the city sued more than once.
Nashville is still embattled with the state in some of these lawsuits. While Metro notched early-stage victories in all four lawsuits, some are still moving through the Tennessee Court of Appeals. But Metro has not filed a new suit over a state law in two years — and, that, according to Metro’s Manager of State and Federal Legislative Affairs Darren Jernigan, is an indicator that the recently concluded 2025 legislative session was a “success.”
“I get the sense that the General Assembly is ready to move on from any kind of this punishment of Nashville,” Jernigan said. “Because, frankly, we need each other.”
Jernigan says the shift has enabled Metro to step out of defense and pursue its own agenda. This session, the city advocated for certain bills — including those on affordable housing, criminalizing the impersonation of taxi cab or rideshare drivers, and taxation — and pushed for state public safety funding.
Nashville’s Mayor Freddie O’Connell says the city’s growth has also contributed to the shift.
“There’s a pretty significant recognition among state leaders that Nashville is not just the capital city, we are also the economic engine of the state,” O’Connell said. “The more we’re allowed to self-govern, if we can demonstrate responsibility in that process, then we think we can continue delivering the type of growth.”
Relationships have shifted too. Jernigan used to be a lawmaker. He communicates frequently with committee chairs, while O’Connell speaks often with Gov. Bill Lee and House Speaker Cameron Sexton.
“We’re probably going to disagree 70% of the time,” Jernigan said. “But when we don’t agree, we will talk to each other ahead of time.”
Local impacts
Metro did not go entirely unscathed this year.
O’Connell said he was “troubled” by bills that seemed to be in alignment with the priorities of the Trump administration. Early on in the session, legislators made it possible for local officials to be charged with a Class E felony and removed from office if they vote for “sanctuary city” policies that protect undocumented immigrations — something already prohibited by state law. City lawyers are currently conducting a legal analysis to understand the extent of its reach.
Another bill would have gutted local oversight of historic buildings. It was eventually dropped — but only after Metro preemptively reorganized its Historic Zoning Commission. That left some residents feeling like the city was “catering to the state.”
“The decision-making power was above our pay-grade,” O’Connell said. “There are times when the fight becomes about: Do you want to lose everything or do you want to get partial victories?”
While Nashville did not see as many targeted bills this year — Memphis did. One, which was put on hold until next year, would have overhauled Shelby County’s school board. Another, which also stalled, would have allowed developers to avoid local taxes in cities where combined taxes are above a certain rate — something that only applies to Memphis.
Tensions between Nashville and state officials have flared up in recent days over the dozens of people arrested and detained by federal immigration agents. While residents have criticized the city for its failure to protect residents, city lawyers have struggled to obtain information from the Tennessee Highway Patrol regarding who was detained.
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