Nebraska Municipal Review, September 2024

NEBRASKA MUNICIPAL REVIEW

Solar power is expanding in Madison and Grand Island Turning discarded plastic bags into roads in South Sioux City Five ways artists can help local government

Official Publication of the League of Nebraska Municipalities

Let's float!

SEPTEMBER 2024

Visitors flowing in to kayak and tube at Norfolk’s new North Fork Whitewater Park

SEE PAGE 6

No. 1,193 SSN 0028–1 9 0 6

SEPTEMBER 2024 LEAGUE OF NEBRASKA MUNICIPALITIES

UPCOMING CONFERENCES 2025 UTILITIES/PUBLIC WORKS SECTION ANNUAL CONFERENCE

Jan. 8 - 10, 2025

MIDWINTER CONFERENCE

Feb. 24 - 25, 2025 MUNICIPAL ACCOUNTING AND FINANCE CONFERENCE

June 18 - 20, 2025 ANNUAL CONFERENCE

Sept. 24 - 26, 2025

Contents 4

The Director’s Message by L. Lynn Rex, LNM Executive Director – League Smaller and Larger Cities Legislative Committees prepare for 2025 legislative session!

6

Let’s float! Visitors flowing in to kayak and tube at Norfolk’s new North Fork Whitewater Park

8

Powered by sunshine - Grand Island embraces renewable energy with expansion of solar farm

9

Generating for the future - Madison is getting a solar energy facility with help of $3.6 million federal loan

12

Marketing 101: Using data to connect

15

CFRA: Building from the ground up

16

Turning waste into roads - South Sioux City turns millions of recycled bags into a new section of street

19

NLC: 5 ways artists can help local government

22

National Night Out across Nebraska – photos from municipalities across the state

24

Paving new roads – Blair bypass, funded through federal discretionary grant, celebrates opening

25

National Civic League: Applications now open for 2025 All-America City Award

26

LARM: Three steps to effective risk management

29

NDOT announces funding availability for meeting transportation needs

30

Professional Directory

About the Cover: Photos provided by the City of Norfolk of the new North Fork Whitewater Park. The park opened in June and has drawn a steady flow of visitors to the area.

Larger Cities Legislative Committee - Chaired by Mayor Don Groesser of Ralston John McGhehey, Mayor, Alliance Seth Sorensen, City Manager, Alliance Tobias Tempelmeyer, City Administrator/General Manager, Beatrice Rusty Hike, Mayor, Bellevue Jim Ristow, City Administrator, Bellevue Mindy Rump, Mayor, Blair Phil Green, City Administrator, Blair Miles Bannon, Council Member, Chadron Tom Menke, City Manager, Chadron Jim Bulkley, Mayor, Columbus Tara Vasicek, City Administrator, Columbus Dave Bauer, Mayor Crete Tom Ourada, City Administrator, Crete Joey Spellerberg, Mayor, Fremont Jody Sanders, City Administrator, Fremont Kent Ewing, Mayor, Gering Pat Heath, City Administrator, Gering Roger Steele, Mayor, Grand Island Laura McAloon, City Administrator, Grand Island Mike Evans, Mayor, Gretna Paula Dennison, City Administrator, Gretna Corey Stutte, Mayor, Hastings

Shawn Metcalf, City Administrator, Hastings James Liffrig, Mayor, Holdrege Chris Rector, City Administrator, Holdrege Stan Clouse, Mayor, Kearney Brenda Jensen, City Manager, Kearney Brad DeMers, Assistant to the City Manager, Kearney Doug Kindig, Mayor, La Vista Pam Buethe, Clerk, La Vista John Fagot, Mayor, Lexington Joe Pepplitsch, City Manager, Lexington Margaret Blatchford, Assistant City Attorney, Lincoln Riley Slezak, Senior Advisor to the Mayor, Lincoln Linda Taylor, Mayor, McCook Nate Schneider, City Manager, McCook Bryan Bequette, Mayor, Nebraska City Perry Mader, City Administrator, Nebraska City Josh Moenning, Mayor, Norfolk Andrew Colvin, City Administrator, Norfolk Dani Myers-Noelle, City Attorney, Norfolk Brandon Kelliher, Mayor, North Platte Layne Groseth, City Admin./Utilities Manager, North Platte Steve Krajewski, Mayor, Ogallala Kevin Wilkins, City Manager, Ogallala

Thomas Warren, Chief of Staff, Omaha David Black, Mayor, Papillion Amber Powers, City Administrator, Papillion R. Paul Lambert, Mayor, Plattsmouth Emily Bausch, City Administrator, Plattsmouth Don Groesser, Mayor, Ralston Brian Kavanaugh, Council Member, Ralston Rick Hoppe, City Administrator, Ralston William De Roos, City Administrator, Schuyler Jeanne McKerrigan, Mayor, Scottsbluff Jordan Colwell,Vice Mayor, Scottsbluff Kevin Spencer, City Manager/Police Chief, Scottsbluff Joshua Eickmeier, Mayor, Seward Greg Butcher, City Administrator, Seward Brad Sherman, Mayor, Sidney David Scott, City Manager, Sidney Carol Schuldt, Council Member, South Sioux City Lance Hedquist, City Administrator, South Sioux City Cale Giese, Mayor, Wayne Jill Brodersen, Council President, Wayne Wes Blecke, City Administrator, Wayne Barry Redfern, Mayor,York Dr. Sue Crawford, City Administrator,York

Smaller Cities Legislative Committee - Chaired by Tom Goulette, City Administrator of West Point Jessica Quady, City Administrator, Ashland Marlin Seeman, Mayor, Aurora Eric Melcher, City Administrator, Aurora Chris Anderson, City Administrator, Central City Andrew Lee, Admin./Clerk/Treasurer, Curtis Alan Michl, Chairperson, Exeter Becky Erdkamp, Clerk/Treasurer, Exeter Kyle Svec, City Administrator, Geneva Deb VanMatre, Mayor, Gibbon Matt Smallcomb, City Administrator, Gibbon Gary Greer, City Administrator, Gothenburg

Jana Tietjen, Clerk, Hebron Kelly Oelke, City Administrator, Hickman Janine K. Schmidt, CMC/Treasurer, Morrill Sandra Schendt, Clerk/Treasurer, Nelson David Russell, Director of Government Affairs, NMPP Energy Mandy Hansen, Government Affairs Liason, NMPP Energy Sandy Kruml, Clerk/Treasurer, Ord Mike Feeken, Mayor, St. Paul Sandra Foote, Council Member, Superior Jeff Hofaker, City Administrator, Sutton Jessica Meyer, City Administrator, Syracuse

Kyle Arganbright, Mayor,Valentine Melissa Harrell, City Administrator, Wahoo Desiree Soloman, City Attorney, Waterloo Stephanie Fisher, City Administrator, Waverly Tom Goulette, City Administrator/Utility Superintendent, West Point Randy Woldt, Utilities Superintendent, Wisner Robert Costa, Community Engagement Coordinator,Yutan

Executive Board 2023-2024 President

President-Elect

Vice President

Past President

Deb VanMatre Mayor, Gibbon Marlin Seeman Mayor, Aurora Bryan Bequette Mayor, Nebraska City Paul Lambert Mayor, Plattsmouth

Directors

Jean Stothert Mayor, Omaha Leirion Gaylor Baird Mayor, Lincoln Julie A. Deepe Mayor, Deshler Catherine-Jo Mills Village Chair, Ansley Joey Spellerberg Mayor, Fremont Jordan Colwell Vice Mayor, Scottsbluff Josh Moenning Mayor, Norfolk Sharon Powell Village Board President, Utica Jeff Hofaker City Administrator, Sutton Janine K. Schmidt CMC/Treasurer, Morrill Layne Groseth City Administrator/Utilities Manager, North Platte

Municipal Legal Calendar (All statute citations to Revised Statutes of Nebraska) NOVEMBER 2024 CITIES OF THE FIRST CLASS First day...................................................Class C liquor license year begins. (53-124) Within 15 days of Passage..................Clerk publishes ordinances passed. (16-405) Within 10 days from meeting or before next meeting (whichever is sooner)..........................Clerk to have minutes available for public inspection. (84-1413) Within 30 days from Council meeting....................................Clerk publishes official proceedings of meetings including claims. (19-1102) Within 20 days after end of month..Treasurer files monthly financial report. (16-318) * * ............................................................Clerk must prepare agenda prior to next Council meeting. (84-1411) On or before December 1……........TIF report due to Property Tax Administrator (18-2117.01)

CITIES OF THE SECOND CLASS AND VILLAGES First day...................................................Class C liquor license year begins. (53-124) Within 15 days of Passage..................Clerk publishes ordinances passed. (17-613) Within 10 days from meeting or before next meeting (whichever is sooner)..........................Clerk to have minutes available for public inspection. (84-1413) Within 30 days from Council or Board meeting..................................Clerk publishes official proceedings of meetings including claims. (19-1102) Within 20 days after end of month..Treasurer files monthly financial report. (17-606) * *.............................................................Clerk must prepare agenda prior to next Council or Board meeting. (84-1411) On or before December 1……........TIF report due to Property Tax Administrator (18-2117.01)

Affiliated Sections

City Managers Amber Powers Papillion Clerks Kellie Crowell Ravenna Municipal Becky Erdkamp Accounting Exeter & Finance Fire Chiefs Dennis Thompson North Platte Utilities Duane Hoffman Oxford

League Staff L. Lynn Rex

Executive Director

Christy Abraham Legal Counsel Lash Chaffin Utilities Section Director Cherie DeFreece Administrative Assistant/ Membership Services Assistant Brenda Henning Membership Services Assistant Ethan Nguyen LNM/LARM Information Technology Manager Shirley Riley Membership Services Director Jackson Sash Utilities Field Representative/ Training Coordinator Ashley Wolfe Marketing/Communications Director

LARM Staff

Dave Bos Executive Director Tracy Juranek Assistant Executive Director, Customer Service Specialist Diane Becker Communications/Marketing Director Kyla Brockevelt Executive Administrative Assistant Drew Cook Customer Service Specialist John Hobbs Loss Control Specialist James Kelley Loss Control Specialist Fred Wiebelhaus Loss Control/Claims Manager

Nebraska Municipal Review Editor and Advertising Sales: Ashley Wolfe, 402-476-2829 or ashleyw@lonm.org The NEBRASKA MUNICIPAL REVIEW is the official publication of the League of Nebraska Municipalities, an association of the cities and villages of Nebraska, published at 206 S.13th St., Ste. 800, Lincoln, Nebraska 68508 — Telephone 402-476-2829; FAX 402-476-7052; Website: www.lonm.org. Periodicals postage paid at Lincoln, Nebraska. Views of contributors, solicited or unsolicited, are their own and not to be construed as having the endorsement of the League unless specifically and explicitly stated by the publisher.

The NEBRASKA MUNICIPAL REVIEW is a nonprofit publication administered and supervised by the League of Nebraska Municipalities. All revenue derived from the publication is used by the association to defray publication costs.

The NEBRASKA MUNICIPAL REVIEW is published monthly. Subscription rates are $5 per single copy — $50 plus tax for 12 issues.

POSTMASTER: Send address changes to NEBRASKA MUNICIPAL REVIEW, 206 S.13th St., Ste. 800, Lincoln, Nebraska 68508.

DIRECTOR’S MESSAGE

League Smaller and Larger Cities Legislative Committees prepare for 2025 legislative session!

BY L. LYNN REX, EXECUTIVE DIRECTOR, LNM

T

he first meeting of the Smaller Cities Legislative Brenda Henning at brendah@lonm.org.

Committee (SCLC) and Larger Cities Legislative Both League Legislative Committees will be meeting Committee (LCLC) was held Sept. 13 again to review additional requests for legislative in Lincoln at the temporary office of the action and ultimately make recommendations League. Members of the SCLC and LCLC to the League Executive Board. Committee met concurrently in person and by Zoom. members are discussing a wide variety of issues, The joint meeting was co-chaired by Tom including: the property tax cap on municipalities Goulette, City Administrator of West Point, and counties passed in the Special Session (LB and Ralston Mayor Don Groesser.

34); a proposed constitutional amendment to Special thanks to the dedicated municipal address unfunded mandates; local option sales officials serving on either committee. These tax; tax increment financing; improvement elected and appointed officials commit a districts; entertainment districts; as well as ATVs significant amount of time and effort to Don Groesser and UTVs. review and make recommendations to the Mayor of Ralston Following the national trend, the historic League Executive Board on requests for Chair of the LCLC “partnership” between the State of Nebraska legislative action submitted by municipal and its political subdivisions continues to officials, Senators, state agencies, statewide evolve with legislative efforts to increase state organizations, and others. (Members of both pre-emption, impose unfunded mandates, and committees are listed every month on page 2 restrict sources of revenue. Notwithstanding, of the Review.) the League Executive Board recognizes the The 68 members of the LCLC include importance of continuing to advocate for a officials from Omaha (metropolitan class), restored “balance of power” and a fundamental Lincoln (primary class), and the 31 cities respect for the distinct roles of the state and of the first class. The Mayors and City its municipalities. This is imperative in order Managers/Administrators of every city of the to grow Nebraska’s economy and provide first class are invited to serve along with others essential and desired services to the citizens of Tom Goulette interested in doing so. The 30 members of City Administrator our state, including, but not limited to: public the SCLC represent villages and cities of health and safety, transportation and utility of West Point the second class. It is more difficult for Chair of the SCLC infrastructure, community and economic some officials from smaller municipalities to development, workforce development, and participate in person since many do not have affordable housing. the flexibility to do so; hopefully, more officials will join the The League’s advocacy before the Legislature on behalf committee and participate by Zoom. If you are interested of the 527 cities and villages in Nebraska continues to in being a member of either committee, please email be critically important since municipalities are subject 4

NEBRASKA MUNICIPAL REVIEW

to “Dillon’s Rule.” Judge John Forrest Dillon described local governments in an 1868 case as “creatures of the state” with only those powers as authorized by the state. The Nebraska Supreme Court has consistently upheld Dillon’s Rule as noted in the case below.

“Legislative grants of power are strictly construed pursuant to what has become known as Dillon’s rule, which provides: ‘[A] municipal corporation possesses and can exercise these powers only: (1) Those granted in express terms; (2) those necessarily or fairly implied in, or incident to, the powers expressly granted; and (3) those essential to the declared objects and purposes of the municipality, not merely convenient, but indispensable.’” Consumers Coal Co. v. City of Lincoln, 109 Neb. 51, 69-70, 189 N.W. 643, 650 (1922).

After reviewing recommendations

The first meeting of the Smaller Cities Legislative Committee (SCLC) and Larger Cities Legislative Committee (LCLC) was held Sept. 13 in Lincoln.

from both League Legislative Committees, the League Executive Board will finalize the League Legislative Package for the 2025 session. Thanks to the many State Senators who introduce legislation on behalf of the League assuring that cities and villages have the “grant of power” from the Legislature to govern effectively and provide necessary services and programs to citizens. 

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5

The City of Norfolk responded to the constant refrain of "there's nothing for young people to do" by looking at what existed and thinking outside the box. Since the North Fork Whitewater Park opened in June, it has drawn a steady flow of visitors. Photo provided by the City of Norfolk.

Let's float!

Visitors flowing in to kayak and tube at Norfolk’s new North Fork Whitewater Park

BY PAUL HAMMEL, THE NEBRASKA EXAMINER

O

ne Nebraska community can finally answer the question: where can I surf?

That’s because Norfolk has recently opened a threemile-long “whitewater park” through the center of this northeast Nebraska city that has seven engineered rocky rapids, including one that provides enough of a wave for “river surfing.”

Since the North Fork Whitewater Park — located on a fork of the Elkhorn River that gave Norfolk its name — opened in early June, it has drawn a steady flow of visitors to float through the rapids on kayaks, inner tubes and other inflatable craft or to just walk along a once neglected waterway best known for frequent flooding.

As she walked along the river with a friend and a cousin 6

fitted with helmets and life jackets, Charity Eberhardt, a 19-year-old college student from Norfolk, proclaimed the whitewater park a big hit.

“I’d never gone tubing or down rapids before this, but we’ve gone down the river almost every weekend since it opened,” Eberhardt said. “It’s fun.”

Norfolk Mayor Josh Moenning said he met a kayaking group from the University of Nebraska-Lincoln and family groups during a recent float down the river. He said he has seen social media posts from people in South Dakota, Iowa and Minnesota and from as far away as Connecticut and California.

On a recent weekday evening, a group was swimming in the river as a pair of kayakers were pulling out and another NEBRASKA MUNICIPAL REVIEW

pair paddling on inner tubes moved on. Then two girls on inflatable rafts floated by, followed by a man and two children on an inflatable couch like those pulled behind speed boats.

A woman along the stream snapped photos as the kids giggled by.

The rapids were built using huge limestone rocks salvaged from the Norfolk Regional Center. The flow is regulated by a diversion dam built in the 1960s to prevent flooding that had previously inundated the city’s downtown area and Johnson Park in central Norfolk.

A combination of grants, city funds and private donations paid for the $3.5 million renovation of the formerly slow-moving river. The project also includes a hike/bike trail, a new bridge — to allow kayak access underneath — and the renovation of Johnson Park to include a unique “natural” playground and an outdoor amphitheater that seats 350-400.

Moenning said the whitewater park is a major part of the city’s push to revitalize its downtown area, which is adjacent to the whitewater park, utilizing a river that attracted the first settlers to Norfolk.

“This was an opportunity to breathe new life into our community,” he said.

“It was a quality-of-life moon shot that will attract visitors and spawn economic growth.”

Nebraska communities have tried many approaches as they seek to retain young people and attract new residents. Water parks and historic restorations of main streets are among them, as well as affordable housing projects and, in a couple of small towns, free lots on which to build homes.

Creating whitewater attractions for tourism and economic development, though, is a relatively new strategy.

SEPTEMBER 2024

Nebraska has plenty of rivers for floating and kayak adventures, but there weren’t many options for whitewater rapids. These newly engineered rocky rapids in Norfolk will help meet that need. Photo provided by the City of Norfolk.

In Kearney, a group of kayaking enthusiasts helped develop a 2.3-mile kayak trail on Turkey Creek about a decade ago. Two years ago, two water drops, with rapids, were added.

“Everyone in town has boats now. Everyone is getting out and using it,” said Jason Thee, who owns Kearney Paddle Sports and is a former president of the Kearney Whitewater Association.

Norfolk, Thee said, “won’t even know what hit them once the word gets out.”

“They’re going to bring in a lot of visitors,” he said.

While Nebraska has plentiful rivers for float and kayak trips, it’s a challenge to find areas of whitewater rapids.

Rocky Ford, at the end of the wildly popular canoe/kayak stretch on the Niobrara River, is the best known, but its turbulent rapids are recommended for experts only.

The Dismal and Snake Rivers in Nebraska’s Sandhills have some swift-moving segments

“So far, the investment in the whitewater park — which required no tax dollars — is paying off in increased visitors from out of town and increased interest in downtown redevelopment.

It shows there’s no harm in thinking big.”

Josh Moenning Norfolk Mayor

Continued on page 30 / See Norfolk

7

Powered by Grand Island embraces renewable energy with expansion of solar farm

I

Sunshine

BY ASHLEY WOLFE, MARKETING & COMMUNICATIONS DIRECTOR, LNM

n recent years, solar energy has gained traction as a sustainable and environmentally-friendly way to meet the growing energy demand. Solar energy overall has proponents and opponents—but the City of Grand Island could only see the bright side and a huge opportunity for the people who call the municipality home.

Expansion is currently underway in northeast Grand Island as crews are installing 21,600 panels and 900 inverters for what will become the second-largest solar farm in Nebraska.

The Grand Island Utilities Department (GIUD) is 8

overseeing the project, which is expected to be completed later this year. Barring any setbacks, GIUD would commission the farm for full use by December this year.

The project comes with a $14 million price tag, but the Inflation Reduction Act will reimburse Grand Island approximately $4 million.

“The direct pay program will net back about 30% of the project total of $14.2 million,” Assistant Utilities Director Lynn Mayhew said. “The 9.9 megawatts of solar energy will do two things for us – it’s going to give us more capacity,

NEBRASKA MUNICIPAL REVIEW

Generating FOR THE

future Madison is getting a solar energy facility with help of $3.6 million federal loan

BY JOE DEJKA,

OMAHA WORLD-HERALD

S

Photos of the solar panel installation provided by City of Grand Island.

and it’s going to provide peaking power during the summer season.”

Once complete, the 9.9 megawatt solar farm will be able to power approximately 10,000 homes while operating at the same cost as coal energy. The farm comes in addition to the one megawatt farm already owned and operated by the city. The combined wattage and power supply for the city means that 20% of the generation output for all of Grand Island will come from renewable energy.

“The EPA is passing some new regulations against coal plants and we have to start moving our generation towards renewable resources and this is just the first part of it,” Mayhew said.

The expansion of renewable energy could be a catalyst for growth in Grand Island. According to Mayhew, there is an appeal for existing industry in Grand Island, in addition to new industries looking to locate or expand in the area. With the size of this project and the potential for expansion—the future is bright in Grand Island. 

SEPTEMBER 2024

unshine and a federal loan will help power the City of Madison long into the future. The city of about 2,400 people, 13 miles south of Norfolk, will be getting a solar energy facility with the aid of a federal loan program.

Bluestem Energy Solutions has been selected to receive approximately $3.6 million to help build the 2-megawatt community facility.

Headquartered in Omaha, Bluestem is a developer, owner, and operator of renewable energy resources.

The money will come from the federal government’s Powering Affordable Clean Energy Program.

U.S. Agriculture Secretary Tom Vilsack said that the department is partnering with rural Americans on hundreds of clean energy projects to lower energy bills, expand access to clean energy and create jobs for U.S. farmers, ranchers and agricultural producers.

Madison Mayor Robert Fite said the project will provide up to 7% of the community’s electricity needs, enough for about 300 homes.

“For us, it’s a really great deal,” Fite said.

Continued on page 10 / See Madison

9

Madison Continued from page 9

“When people drive into Madison and see a state-ofthe-art solar project, they’re going to see Madison as a city to invest in,” Fite said. “They’re going to go back to their communities and push for projects like this.”

Madison’s primary electricity source is the Nebraska Public Power District.

The facility will occupy about 12 acres and connect into the local electrical distribution system, according to Will Crane, Bluestem vice president.

“All the power that we generate from this facility is going to be used in Madison and the surrounding area,” Crane said. “So you know, a fair amount of it could go to agricultural purposes, but it could also go to the city itself and power banks or schools or homes.”

The company hopes to start construction in the

“When people drive into Madison and see a state-of-the-art solar project, they’re going to see Madison as a city to invest in. They’re going to go back to their communities and push for projects like this.”

Madison Mayor Robert Fite fall and have it fully operational by late December, Crane said.

The project will use the latest solar technology, including a tracking system that follows the sun, the mayor said.

Native plants friendly to pollinators will be planted beneath the rows of solar panels, helping bees and other pollinators critical to crops in the region, as well as keeping down dust to help keep the panels clean, he said. 

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11

Marketing 101

Using data

TO

connect

BY ASHLEY WOLFE, MARKETING & COMMUNICATIONS DIRECTOR, LNM

Numbers are important in municpal government. They help us generate goals, track progress, and illustrate impact. But on their own, numbers can sometimes feel a bit cold, hard to understand, and impersonal.

When we are dealing with communicating information with the public, it is important to make sure the data is simple, easy-tounderstand, and memorable.

So how do we take complicated and often nuanced information, pull out the numbers, and turn it into tidbits that are easy for the general public to understand? The first thing to understand is the human brain is wired for stories. Stories evoke emotions and make things memorable. Stories help us make sense of things and remember them. So the simplest way to humanize data is to tie it to a real-life story.

Some ideas for humanizing data in municipal government, include breaking down the silos and increasing transparency. Share the stories of the municipal workers. Take the audience members behind-the-scenes, even if the job could seem somewhat mundane to you—it may not for the citizens of your municipality.

Another bonus—sharing stories could help spark interest for someone who is considering work in municipal government!

Outside the box imagery Another simple way to simplify data is through easy-to-digest visuals. Infographics, charts, and diagrams can be so useful in breaking down complex statistics or ideas. Don’t be afraid to think outside the box in terms of illustrating

This graphic was originally ran in the July issue of the Municipality Magazine, a publication by the League of Wisconsin Municipalities.

ideas. The Village of Cottage Grove, Wisconsin took a creative approach to showing residents the breakdown of property taxes. They used color and a dollar bill. The imagery was so recognizable that even if someone is purely glancing at a publication—this might cause them to take a closer look.

Share the success stories When we talk about data, it is often in a large scale. This makes sense because the goal is often to show the immensity of an issue we are tackling and the impact we are generating. But when we use big numbers, it is easy to lose sight of what each data point means.

Take the time to draw down and focus on what the smaller components of data signify. If each data point is representative of a person—higlight the stories of some of these individuals. Share their stories, victories, and even their setbacks.

This helps draw people in to connect and remember your story. It also will help remind your audience (and yourself) why you are doing what you are doing.

Show where the difference was made Show the before and after! This is specifically important in municipal government. Data is not just about where we currently are, it is about where we have come from and where we are going.

If you have worked to beautify your downtown area—what does this translate into for your municpality? Are there fewer empty storefronts? Is the local economy thriving? Has the downtown been rejuvinvated by a boost in local arts? Illustrate this change—by painting a picture with numbers AND imagery, it makes your data more tangible and relatable.

Humanizing your data is not just about making your marketing materials and annual reports look better, it is also about honoring those who are doing the work and reminding us why we are doing it. The next time you are presenting numbers—specifically to the public, take a moment to really think about how you can bring these numbers to life.

In the end, the data is really more than just numbers. It is individual lives being impacted and the collective sign of a brighter future being built, one person at a time.  12

NEBRASKA MUNICIPAL REVIEW

SEPTEMBER 2024

13

Center for Rural Affairs

Photo provided by the Center for Rural Affairs.

BUILDING GROUND UP from the

$50,000 grants available to farm and food entrepreneurs in Nebraska

BY KJERSTEN HYBERGER, CENTER FOR RURAL AFFAIRS

F

ood businesses in six states now can apply for Business Builder Grants, reimbursable funds that could promote business expansion, job creation, business capacity building, and increase local products in the local market.

More than $3.7 million will be made available through three rounds of funding and are available for projects in Iowa, Missouri, Kansas, Oklahoma, Nebraska, and northwest Arkansas.

This grant announcement came in August from the U.S. Department of Agriculture and Heartland Regional Food Business Center. The Center for Rural Affairs is excited to be a key partner in this effort, providing technical assistance to applicants and spreading the word to get needed resources to rural communities that could greatly benefit from this economic opportunity.

14

The Heartland Center will accept proposals to the Business Builder Grants program semi-annually for competitive subawards of $5,000 to $50,000. The first funding window is open through Oct. 15, 2024.

The grant application is open to small and diverse food and farm entrepreneurs and nonprofit organizations producing in, sourcing from, and focused on local and regional markets. Small business is defined as a business with fewer than 50 employees and less than $3 million in gross annual revenues. There is no size requirement for nonprofits.

Eligible projects include business development activities like marketing, feasibility studies, and loan preparedness, as well as equipment upgrades, food hub development, and worker safety improvements. Application requirements include completing a budget, providing a business NEBRASKA MUNICIPAL REVIEW

plan, and obtaining a Unique Entity Identifier (UEI) through SAM.gov.

The Heartland Center offers free training webinars, office hours, and one-on-one business technical assistance to help applicants with these requirements and any other grant application needs they may have.

Grant awardees will be connected with a Heartland Center team member in their state to help navigate the postaward process and see their projects to completion. Applicants may apply for more than one grant award, as long as they do not exceed the $50,000-perentity limit. Award recipients have 12 months from the date of the award to complete their projects, with the option of one six-month extension.

Projects funded through the Heartland Center’s Business Builder Grants will further their vision of making the region a place where locally produced food will be a major contributor to a resilient and safe food supply through regional networks that make local food an easy, everyday choice supporting healthy people, community economies, and sustainable ecosystems.

The Heartland Center is ready for Spanish-language applicants and will work to accommodate other non-English speakers. Application

SEPTEMBER 2024

“Business Builder Grants will inject much-needed capital for building and strengthening local food systems in the Heartland.”

KATIE NIXON, HEARTLAND CENTER CO-DIRECTOR

materials are available in Spanish, and applications may be submitted in Spanish and be reviewed by qualified Spanish-speaking reviewers.

“Business Builder Grants will inject much-needed capital for building and strengthening local food systems in the Heartland,” said Katie Nixon, Heartland Center co-director and leader of the Food Systems Program at New Growth. “We are excited and ready to provide technical assistance to applicants on their ideas and applications. We are here to support our food and farm businesses in their efforts to feed their communities.”

If you have questions or would like more information about Business Builder Grants and how they may be able to support food security in your neck of the woods, please visit the website and sign up for updates at: heartlandfoodbusiness.org/businessbuilder. 

15

TURNING WASTE INTO ...

ROADS?

BY ASHLEY WOLFE, MARKETING & COMMUNICATIONS DIRECTOR, LNM

Each year millions of tons of plastic are thrown in the trash. But what if there was a way to repurpose it to support large municipal infrastructure projects?

South Sioux City is working to do just that.

The Nebraska Environmental Trust has awarded the City of South Sioux City, $492,407 for a unique project for the State of Nebraska. The funding will help the city to construct a 2,500-foot street comprised of millions of recycled bags.

“South Sioux City is excited with the announcement regarding Nebraska Environmental Trust funding for the first plastic road in the state. The project is reflective of an innovative council and leadership while enhancing our city,” said South Sioux City Mayor, Rod Koch.

Plastic roads are a fairly new idea in long histroy of roads. Plastic roads like the one planned for South Sioux City have been used in various locations though the United States and world—in a variety of climates.

They are being constructed with great effectiveness and showing longevity.

India was the first county to build a plastic road in 2001 and since that time, the countries of Sweden, Australia, Indonesia, and Ghana also have used this method to craft roads.

The simplified version of turning a plastic bag into a road requires the bags to be separated, cleaned, dried, and then shredded. The mixture is then heated to 165 degrees to melt them and then added to hot bitumen.

Bitumen is the black mixture used for road resurfacing.

The city is partering with Firstar Fiber, an Omaha recycling company that converts used plastics, such as plastic bags, water bottles, straws, and fast-food containers into multiple-use products.

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NEBRASKA MUNICIPAL REVIEW

In terms of sustainability, plastic roads reduce plastic waste by relying on a product that typically goes in the trash. They also boast lower emissions and lower cost— when done in volume. Additionally, the roads have shown less cracking and wear because they are more flexible than traditional roads.

“This is a great project for our environment and a needed road by our Veterans Park, said Mayor Koch.

The plastic and asphalt mixture will be used to pave a gravel road along the John Douangdara Dog Park.

This exciting project brings more attention to Siouxland Freedom Park which has been growing and expanding in recent years. The park currently includes a Vietnam Wall, a Korean War Memorial, John Douangdara Memorial Dog Park, a 50x90 foot American flag, and the Bud and Doris Day Veterans Center.

The plastic road project is expected to be completed by the end of 2024. 

PARTNERS CONTRIBUTING TO THIS PROJECT INCLUDE: • • • • • • • • • •

Dr. Jamilla Teixeira, University of Nebraska – Lincoln, College of Engineering Baylor Bestgen, JEO Engineering Nebraska Department of Transportation Sally Reinert, Keep Northeast Nebraska Beautiful Rony Ortega, South Sioux City Public Schools Kevin Carlson, Jebro Patrick Leahy, First Star Recycling Roxanne Jenkins, Dow Chemical Rohan Small, Dow Chemical Tami Koenings, Goodwill Industries

TAKING A PEAK INSIDE

Here is a look inside First Star Recycling to show what happens at the various stages to take used plastic bags and turn them into a product suitable for roads.

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2.

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Photo 1: In the orange bags, which we collect using the Hefty ReNew Program here in Omaha.

Photo 2: Pick Film - This is all of the film and thin, flexible plastics removed from the bags and shown before processing.

Photo 3: Flake - This is the plastic after being ground up into a small flake.

It is a light material that gets processed into either plastic lumber products or into pellets, which are shipped to be used in other manufacturing operations.

Bonus!: Don’t have a need or funding for a plastic road, but interested in the sustainability and process? There were many other products being made with recycled plastic materials that could be incorporated in your municpality. Check out the examples on the right!

SEPTEMBER 2024

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Engineering a world where everyone thrives.

jeo.com

Engineering | Architecture | Surveying | Planning

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NEBRASKA MUNICIPAL REVIEW

National League of Cities

5 ways

artists can help local government A mural in Alliance.

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BY GEORGIA GEMPLER, NATIONAL LEAGUE OF CITIES Photos provided by Nebraska Arts Council.

ities are no strangers to supporting arts and culture. But cities should consider deeper (and not necessarily more expensive) levels of partnership with artists to support all areas of their governance.

Partnering with artists can help local government achieve

common and ongoing goals that often feel elusive. Cities have partnered with artists to build and strengthen community relationships, boost social infrastructure, improve community health and wellbeing, communicate creatively, celebrate city identity, and access diverse funding streams.

Here are five examples of how leveraging the strengths of artists in your city can improve municipal processes and relationships:

#1

Visible, early, tangible wins

City processes take time. This common tension between government bureaucracy and community needs shapes public views of how responsive your local government is to local issues. Partnering with an artist to make visible the drawn-out work of government processes can lead to greater trust.

Picture this: During a delayed land development project, the Health Department’s Public Safety team and the Office of Planning pool resources to employ an artist to install a temporary activation on the vacant

land. The activation shows that the City is paying attention to the property, can improve public safety in the area, and creates a new gathering place that has the potential to decrease social isolation.

City Example: The Lighter, Quicker, Cheaper method, Project for Public Spaces

#2

Creative Problem Solving

A growing number of cities have found that embedding artists within local government departments can lead to creative and cost-effective solutions to problems. This artist-in-residence-in-government model can apply to any issue area and be implemented at various budget levels.

Picture this: The Department of Transportation wants to make sure that city transit is effectively serving residents with disabilities. Instead of hiring a consultant for an internal analysis, the DoT partners with the local Arts Agency to hire an artist in residence with lived experience with disability. The artist in residence engages the local disabled community

through their artistic process and uses their artistic practice to document stories and represent data.

The artist is empowered to make official policy recommendations to the head of the department.

The artwork is shared with the public through a DoT campaign.

City Resource: Creative CityMaking program in Minneapolis, MN SEPTEMBER 2024

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A mural in

#3

Beatrice.

Public art in Cozad.

Meaningful, authentic community engagement

Artists can design creative ways to interact and gather feedback from community members. These processes can improve communication between constituents and government and help residents feel more involved in local decision-making.

Picture this: The City Council has allocated funds for a new The Department of Parks, Recreation, and Culture recreation center, and there is debate about which releases a public call for artist facilitators to conduct neighborhood would be best served by this resource. a community-led planning process for the building.

City Example: BUILT, a public board game and theater performance.

#4 Effective communication

Data is only effective if people can understand what it is saying. Employ an artist to bring the results of a public survey, report, or data set to life and increase public understanding of the implications. Or, employ an artist to draw attention to stories that aren’t being told.

Picture this: The City is evaluating locations for a new homeless shelter. A city survey and community polling efforts revealed that the majority of residents in Neighborhood X are in favor of having the shelter in their neighborhood, despite a vocal community group expressing their opposition. The Department

of Health and the Department of Community Development commission a local theater company to develop a short play based on the results of the community survey data, and the play is premiered in the public amphitheater.

City Examples: Data focused – Dismantle Anti-Black Racism Project Stories – The Neighborhoods and Detroit’s Chief Storyteller

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NEBRASKA MUNICIPAL REVIEW

#5 Increase belonging

Healthy cities are places where residents feel they belong. As the Cultural Affairs Manager of the City of Oakland says, arts and culture can “operationalize belonging.”

Picture this: The City is concerned by the number of local seniors who live alone and are experiencing social isolation. Members of the city council build relationships between the county Department of Aging and a local arts organization.

The three entities partner to hold community arts events for seniors, with the city contributing funds from a federal transportation grant to run a ride service to the events.  City Examples: Rural Mental Health (Rhinelander, WI)

Restorative Arts (Nashville, TN)

Georgia Gempler is a Senior Program Specialist, Health & Wellness, Leadership, Education, Advancement, and Development at the National League of Cities.

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Lincoln

Scottsbluff

across Nebraska

National Night Out is an annual community-building campaign that promotes police-community partnerships and neighborhood camaraderie to make our neighborhoods safer, more caring places to live. National Night Out enhances the relationship between neighbors and law enforcement while bringing back a true sense of community. Furthermore, it provides a great opportunity to bring police and neighbors together under positive circumstances.

Thank you to everyone who provided photos of activities held in their municipalities! 

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Columbus

Norfolk

Scottsbluff NEBRASKA MUNICIPAL REVIEW

The Dep hav Nig

Norfolk

Columbus

Hastings SEPTEMBER 2024

Hastings

Grand Island

Fremont

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Paving new roads

Sen. Deb Fischer

Blair bypass, funded through federal discretionary grant, celebrates opening Photos taken by Three Pillars Media, shared courtesy of JEO.

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Sen. Pete Ricketts

n early September, the City of Blair celebrated the opening of the Blair Bypass connecting Highway 75 to Highway 30. This project provides an alternative route to push traffic south of Blair, cutting down traffic congestion in the city and improving safety.

The project was funded through the Nebraska Department of Transportation (NDOT) and backed by a $7.56 million discretionary grant. The recently launched Nebraska Infrastructure Hub, the state’s first-ever intergovernmental entity for empowering public agencies in competing for federal discretionary grants, aims to increase Nebraska’s grant competitiveness and provide support to state and local partners in seeking similar opportunities.

“The opening of the Blair Bypass is a testament to what can be achieved through effective collaboration and strategic investment. NDOT is proud to have supported this vital project and remains committed to empowering communities across Nebraska to secure federal funding and enhance their infrastructure,” shared Jodi Gibson, Local Assistance Division Manager, NDOT. Through technical assistance from NDOT, the Infrastructure Hub will support communities from initial application through project administration, ensuring compliance with federal requirements and deadlines.

Other key components of the Hub include a Grant Pairing Portal to match projects with suitable grants and a Project Development Support Team to provide personalized assistance and feedback on draft proposals. The program also facilitates partnerships and networking opportunities, offers technical support through on-call consultants to enhance proposals, and ongoing monitoring and evaluation of grant-funded projects to ensure compliance and success.

Visit the Nebraska Infrastructure Hub website to learn more: ndot.info/infrastructure.  Source – Nebraska Department of Economic Development

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Applications now open for 2025 All-America City Award This year’s theme is “strengthening environmental sustainability through inclusive community engagement.”

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he National Civic League invites tribes, towns, cities, counties, and regions to apply for the 76th annual All-America City Award. The award, the nation’s most prestigious community recognition, offers a moment for: • Reflection, as communities come together to assess their strengths, assets and challenges; • Celebration, as local coalitions mobilize to display on a national stage the people, organizations, and initiatives that make their community a great place to live, work, and play; and • Recognition of the resilience that communities across the country show when people come together to respond to local challenges.

As communities grapple with the urgent challenges of climate change and environmental degradation, the 2025 All-America City Award will recognize the pivotal role that community engagement plays in advancing environmental sustainability and resilience.

Climate change presents imminent and complex dangers to local communities, demonstrated in part by rising temperatures, intensified extreme weather events, sea-level rise, and ecological disturbances. Urgent and equitable action is imperative to shield vulnerable populations and

cultivate resilient communities capable of withstanding and thriving in the face of environmental, economic, and social impacts. Particularly, low-income, under-resourced, highdensity, and communities of color will bear the brunt of these impacts due to limited resources and historical disinvestment.

All-American City applicants will need to demonstrate a steadfast commitment to environmental stewardship and sustainability through meaningful community engagement i n i t i a t i ve s . W h e t h e r t h ro u g h conservation projects, renewable energy initiatives, waste reduction efforts, or green infrastructure developments, applicants should exemplify the spirit of collaboration and civic responsibility necessary to meet the moment.

The 2025 All-America City application will ask applicants to discuss the strength of their civic capital—the formal and informal relationships, networks and capacities they use to make decisions and solve problems—and to provide examples of three community-driven programs that have adapted and transformed the community. At least one of these efforts must be focused on the 2025 theme – Strengthening Environmental Sustainability through Inclusive Community Engagement. 

Learn more at: www.nationalcivicleague.org SEPTEMBER 2024

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LARM

Three steps to effective risk management:

Identify, Evaluate & Mitigate

DAVE BOS EXECUTIVE DIRECTOR, LARM

In the world of managing public entities, risk is inevitable.

Effective risk management is crucial for the success of any city or village. It involves a structured approach to identifying, evaluating, and mitigating risks. This article is intended to provide a brief overview of these three essential steps in the risk management process.

1.

Identify risks

Risk identification is the first and most critical step in the risk management process. It involves discovering potential risks that could impact the achievement of objectives. The goal is to uncover risks before they materialize, so they can be managed effectively.

Techniques for risk identification: • • • •

Brainstorming: Engage employees from various departments to generate a list of potential risks. This collaborative approach ensures a diverse range of perspectives.

Active and engaged safety committees can play a huge role in this process.

SWOT Analysis: Evaluate Strengths, Weaknesses, Opportunities, and Threats. This method helps identify internal and external risks related to each aspect of the SWOT framework. Using the SWOT analysis in post-incident debriefs can be very useful.

Checklists: Use established risk management checklists as a reference. These lists are often based on previous experiences.

Historical Data Analysis: Review past records and incidents to identify risks that have affected similar situations.

Document all identified risks, including: • • • •

Risk Description: A clear and concise explanation of the risk.

Risk Owner: The person responsible for managing the risk.

Risk Category: Classification of the risk (e.g., financial, operational, strategic).

Potential Impact: A description of how the risk could affect objectives.

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2.

Evaluating risks

Risk evaluation involves assessing the identified risks to determine their potential impact and likelihood. This step helps prioritize risks based on their severity and probability.

Techniques for risk evaluation: •

Qualitative Risk Analysis: Assess risks based on their nature and impact without numerical data. This involves rating risks as high, medium, or low in terms of impact and likelihood.

Quantitative Risk Analysis: Use statistical methods to measure the probability and impact of risks

•

When evaluating risks, consider the following factors: • • • •

Likelihood: The probability that the risk will occur.

Impact: The extent of the effect on objectives if the risk occurs.

Exposure: The potential for the risk to occur over time.

Severity: A combination of impact and likelihood.

3.

Mitigating risks

Risk mitigation involves developing strategies to manage or reduce the impact of risks. The objective is to minimize negative outcomes and enhance opportunities.

Strategies for Risk Mitigation • • • •

Avoidance: Change the plan or strategy to eliminate the risk. For example, choosing a process that is less prone to failure.

Reduction: Implement measures to reduce the likelihood or impact of the risk. This might involve adding safety features or increasing staff training.

Transference: Shift the risk to another party. This can be done through outsourcing, insurance, or contractual agreements.

Acceptance: Acknowledge the risk and decide to manage it without taking additional actions. This is typically done when the cost of mitigation exceeds the risk itself.

Create a Risk Response Plan that outlines: • • •

Mitigation Actions: Specific steps to reduce risk.

Contingency Plans: Alternative actions if the risk materializes.

Monitoring Procedures: Methods for tracking risk and assessing the effectiveness of mitigation strategies.

Effective risk management is vital for the safety of employees and achieving organizational goals. By carefully identifying, evaluating, and mitigating risks, uncertainties can be navigated, and objectives safeguarded. Each step in the risk management process builds on the others, creating a solid framework for managing risks.  SEPTEMBER 2024

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Fireworks captured by drone in Hickman

NDOT announces funding availability for meeting transportation needs

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Check out this awesome photo of fireworks in Hickman. This image was originally posted in the Nebraska Through the Lens Facebook group and photographer John Shaw gave us permission to share with readers of the Nebraska Municipal Review. Thanks, John!

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he Nebraska Depar tment of Transportation (NDOT) has announced funds are now available to private non-profit organizations and governmental entities for transportation needs of elderly persons and persons with disabilities for whom mass transportation services are unavailable, insufficient or inappropriate. Eligible applicants include private non-profit organizations incorporated within Nebraska and governmental entities.

Governmental entities must certify that there are no non-profit agencies in the service area readily able to provide the service. Applications will only be accepted for the rural and small urban areas and Lincoln. Applicants in the Omaha area should contact MAPA for information about applications.

The Federal Transit Administration’s Section 5310 program is a federal grant program managed by NDOT. The purpose of the program is to enhance the mobility of seniors and individuals with disabilities.

Applications are restricted to the acquisition of transportation vehicles.

Applications are due by October 31, 2024.

Ad d i t i o n a l i n f o r m a t i o n a n d applications can be obtained at www. nebraskatransit.com/funding-andapplications or by contacting Carly Grutel, Federal Aid Administrator II at carly.grutel@nebraska.gov or 402479-3185.  Source – Nebraska Department of Transportation

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Norfolk

_________

Continued from page 7

and some low waterfalls, but not the type of “whitewater” seen in Colorado, Utah, or Wyoming.

So whitewater parks such as those developed in Norfolk and Kearney are unusual.

Moenning said that when he was first elected mayor, he heard a constant refrain of how “there’s nothing for young people to do” in the city.

Developing a riverfront area along the North Fork had been discussed for years, but it wasn’t until a decade ago that the idea of developing a whitewater park first took hold.

So far, besides waves of kayakers and folks on float tubes, the development has spawned a multi-unit housing development The new whitewater park in Norfolk has generated tourism dollars but along the whitewater trail and discussion of a new restaurant also new developments along the trail including a multi-unit housing there, according to Moenning. development and discussion of a new restaurant. Photo provided by the Already, he said, redevelopment of Norfolk’s downtown City of Norfolk. area has created an eight-block-long entertainment district So far, the mayor said, the investment in the whitewater with 20 restaurants and snack shops, 15 bars and 15 retail park — which required no tax dollars — is paying off in shopping outlets. increased visitors from out of town and increased interest Plus, Moenning said, he’s discovered there’s a “subculture” in downtown redevelopment. of people who like to kayak and river surf and are willing to “It shows there’s no harm in thinking big,” he said.  drive to Norfolk to get their feet wet.

Source – The Nebraska Examiner. Read more at www.nebraskaexaminer.com

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