Emily Larson
Emily Larson (born 1973) is an American politician and nonprofit executive who served as the mayor of Duluth, Minnesota, from 2016 to 2024.[1][2] A member of the Minnesota Democratic–Farmer–Labor Party, she was elected in 2015 with 72% of the vote and became the city's first female mayor.[1][3] Prior to her mayoralty, Larson worked as a social worker for twelve years and in organizational development, after earning degrees from the College of St. Scholastica and the University of Minnesota Duluth.[2][1] During her tenure, Larson prioritized environmental sustainability, including shoreline remediation along the St. Louis River Estuary, expanded public access to Lake Superior, and securing hundreds of millions in funding for land and water projects through public-private partnerships.[4] She also addressed housing improvements, the opioid epidemic, street infrastructure, and economic growth.[1] Her administration faced criticism over fiscal decisions, outsourcing of city promotions, and handling of social issues such as homelessness and drug problems, contributing to her narrow defeat in the 2023 election for a third term against challenger Roger Reinert.[5][6][7] In 2025, Larson became president and CEO of The Family Partnership, a Minneapolis-based nonprofit focused on family services, mental health, and anti-trafficking efforts.[2][4]
Early life and education
Upbringing and family influences
Emily Larson was born and raised in St. Paul, Minnesota, as the youngest of three children in a household of modest means characterized by active community engagement.[8] [9] Her parents divorced when she was ten years old; her mother worked as a poet and educator, while her father was employed in information technology.[9] [8] Both parents participated in local activism, including protests against the construction of Interstate 35E through their neighborhood near Linwood Park, exposing Larson to grassroots efforts addressing urban development impacts during her childhood in the 1970s and 1980s.[10] At age five, during the summer of 1978, Larson first visited Duluth and encountered Lake Superior, an experience that instilled an early personal connection to the region and its natural environment.[3] This familial backdrop of direct involvement in neighborhood issues and emphasis on communal responsiveness provided foundational influences on her formative worldview, rooted in observed patterns of collective action rather than abstract principles.[10] [9]Academic and early professional training
Emily Larson earned a Bachelor of Social Work from the College of St. Scholastica in Duluth, Minnesota, in 1995.[11] She subsequently pursued graduate studies at the University of Minnesota Duluth (UMD), completing a Master of Social Work degree between 2006 and 2008.[1] This program, housed within UMD's College of Education and Human Service Professions (CEHSP), provided foundational training in social services, including family systems therapy and community intervention strategies, equipping her with skills for addressing systemic social challenges through evidence-based practices.[12] Larson's academic focus on social work emphasized practical preparation for nonprofit and public service roles, with coursework likely incorporating field placements in local Duluth organizations to develop competencies in case management and community health.[13] In recognition of her application of this training to public leadership, CEHSP awarded her its Distinguished Alumni Award in 2018, highlighting her as an exemplar of the program's emphasis on ethical, data-informed social interventions.[12] These credentials formed the basis for her early expertise in empirically grounded approaches to social issues, distinct from later professional applications.Pre-political career
Social work and community roles
Following her Bachelor of Social Work degree from the College of St. Scholastica in 1995, Emily Larson began her career in direct social services at CHUM, a Duluth-based nonprofit organization dedicated to aiding homeless individuals through shelter and support programs.[12] She later obtained a Master of Social Work from the University of Minnesota Duluth, which informed her subsequent professional roles.[12] Larson worked as a social worker in Duluth for about 12 years, focusing on supporting families facing crises, though specific caseload outcomes or program evaluations from this period are not publicly detailed in available records.[2] [14] During this time, she contributed to a range of local nonprofits, providing assistance in operational capacities without documented leadership metrics or quantifiable impacts on community welfare indicators.[12] [15] In the years leading up to her 2011 City Council election, Larson transitioned to organizational development roles, including grant writing for nonprofits, marking a shift from frontline casework to administrative functions in community services.[2] This progression aligned with broader trends in social services toward managerial expertise, though her specific contributions to funding or program expansion remain unquantified in primary sources.[12]Political career
Duluth City Council service
Emily Larson was elected to an at-large seat on the Duluth City Council in the November 8, 2011 municipal general election.[16] Her term began in January 2012 and continued until January 2016, when she resigned following her election as mayor.[3] During this period, Larson represented the city in legislative capacities, focusing on community and economic development issues aligned with her prior social work background. In 2014, Larson was elected president of the Duluth City Council, a leadership role she held through 2015.[17] As president, she presided over council meetings, facilitated agenda-setting, and coordinated on municipal budgeting and policy deliberations in a nonpartisan body where members often navigated diverse fiscal and social priorities.[18] Her tenure included efforts to build cross-council consensus, though she faced tensions with local labor groups over concessions or reforms, which she later described as lessons in effective governance.[8] Larson's council service established her as a collaborative figure capable of advancing progressive-leaning initiatives, such as community investment priorities, amid Duluth's structurally balanced budget requirements under Minnesota law, which mandate annual fiscal equilibrium without deficits.[19] Public records indicate no major legislative controversies tied directly to her votes during this era, though her leadership contributed to steady council operations supporting local housing stability and economic planning precursors to later mayoral policies.[1] This record helped amass political capital for her 2015 mayoral bid, where she advanced from the primary as the council president.[20]Mayoral administration (2016–2023)
Emily Larson assumed office as mayor of Duluth, Minnesota, on January 4, 2016, following her election in November 2015 with 52% of the vote, becoming the city's first female mayor. Her administration emphasized collaborative governance, sustainability, and equity, as outlined in her inaugural "Forward Together" agenda, which prioritized community engagement through neighborhood forums and listening sessions to incorporate diverse voices.[21] Larson focused on fiscal stability by reallocating resources, such as freeing $800,000 for street repairs in her first 100 days and investing $500,000 in energy efficiency projects that yielded $100,000 in annual savings.[22] She proposed annual budgets with modest levy increases—such as 3.96% for 2019—to fund affordable housing and public safety, while establishing a long-term streets funding plan projected to generate $10.8 million annually via sales tax partnerships.[23] [24] Larson's policy initiatives centered on environmental sustainability and urban revitalization, including joining America's Pledge on Climate Change in June 2017 and committing to a clean energy economy through municipal planning and the revival of an Environmental Advisory Council.[25] These efforts contributed to Duluth receiving the League of Minnesota Cities' 2022 Sustainable City Award under her leadership.[25] She advanced housing strategies to rehabilitate aging stock and address affordability, linking it to broader sustainability goals, while prioritizing St. Louis River estuary remediation and expanded Lake Superior public access.[26] [4] Economic development involved workforce training and opioid response programs, with partnerships yielding 60% local sourcing of the city's $35 million annual goods and services spend.[21] In 2019, she launched initiatives targeting racial disparities, including new programs and positions to reduce inequities in health and justice outcomes.[27] Despite these pursuits, Larson's tenure faced criticism for inadequate handling of rising social challenges, including homelessness, drug overdoses, and downtown crime, which escalated during her second term amid national trends but drew local blame for visible encampments and safety concerns.[28] Housing costs and homeless rates increased, alongside drug-related deaths, prompting responses like a 2022 Downtown Task Force and community courts revival, yet public frustration peaked, contributing to her narrow 2023 defeat.[29] [30] Reelected in 2019 with 64% against a newcomer, her administration ended with a projected budget surplus transition, though successors inherited deficits exceeding $7 million by 2026, partly from deferred maintenance and post-pandemic pressures.[31] [32]Policy initiatives and governance approach
Larson's governance approach in Duluth's strong mayor-council system involved proposing policies to the nine-member city council while emphasizing collaborative, inclusive decision-making and community input.[33] She prioritized steady progress through processes like the Imagine Duluth 2035 comprehensive plan, which incorporated feedback from 125 meetings and over 5,000 resident surveys to adapt strategies based on local needs.[34] This non-partisan, partnership-driven style extended to cross-sector collaborations with county officials, hospitals, and nonprofits, focusing on foundational investments rather than high-profile announcements.[35][34] Key policy initiatives centered on environmental sustainability, with the administration achieving a 15% reduction in municipal greenhouse gas emissions by the end of her first term in 2019 and proposing a sustainability officer to coordinate broader energy strategies, including LED lighting upgrades and renewable sources like community solar gardens.[27] Goals included an 80% emissions cut by 2050, later refined to carbon-neutral city operations by 2050, alongside protections for Lake Superior and local waterways through energy efficiency and pollution reduction efforts targeting health disparities in low-income areas.[27][34][36] Housing development was a core focus, aiming to add 4,500 units by 2020 with emphasis on affordability for households earning under $50,000 annually; initiatives included the "Rebuild Duluth" contest offering city land parcels, creation of a housing developer position and task force, a $4 million Housing Trust Fund, and allocation of $19.2 million in federal funds for 358 new affordable units plus preservation of 36 others, resulting in 1,500 total units added by 2022.[34][27][36] Public health and safety efforts addressed the opioid crisis, marked by doubled heroin overdose deaths in St. Louis County—the state's highest per capita rate—through establishment of an Opioid Withdrawal Unit, an Opioid Abuse Response Strategies summit, reduced prescriptions via healthcare partnerships, and embedding social workers in police operations to curb "doctor shopping."[34] Additional measures included community courts for chronic offenders, career pathways on city projects for women and disadvantaged workers to tackle racial unemployment gaps (where African-American and Native American residents faced four times the rate of others), and child care expansions like low-interest loans for providers and a downtown center for public employees and low-income families.[27][36][35] Economic and infrastructure policies sought universal high-speed fiber-optic internet within six years, starting with a federal-funded pilot for 2,000 Lincoln Park households, alongside $500 million in investments and a downtown task force to spur growth in Duluth's economy.[36] Workforce stability was targeted through these efforts to support sectors like tourism and manufacturing.[35]Notable achievements
Larson spearheaded a voter-approved half-percent sales tax increase in 2016 specifically for street repairs, enabling the city to expand annual road resurfacing from 2 miles under prior administrations to 17 miles by 2023.[31][37] This funding also supported related infrastructure, including investments in the St. Louis River corridor for environmental remediation and public access improvements.[38] In 2021, Duluth issued over 7,000 building permits for projects valued at more than $560 million, signaling a surge in private investment and housing development during her term.[39] Larson attributed this growth to policies fostering new housing stock and economic activity, with the city reporting record levels of private sector contributions by 2023.[30] At the state level, her administration secured restorations of $700,000 in local government aid in 2019 and described a 2023 legislative package as providing unprecedented regional support, including funding for housing, workforce development, and infrastructure.[40][41] These efforts aligned with broader priorities like climate resilience planning and sustainable energy transitions, though measurable outcomes such as emissions reductions remained incremental amid ongoing national trends.[6][42]Criticisms and policy shortcomings
Critics of Emily Larson's mayoral administration pointed to persistent challenges in addressing homelessness and related public safety issues in downtown Duluth, where visible encampments and open drug use contributed to a perception of urban decay. During her tenure, the city struggled with homeless encampments, prompting complaints from residents about public safety and quality of life, as officials sought to balance compassion with enforcement but faced ongoing difficulties in relocating individuals into housing. Petty crime rates increased, leading Larson to propose reviving a community court in 2021 to handle low-level offenses like theft and trespassing more effectively through restorative justice rather than traditional prosecutions. Opponents argued that these measures were insufficient, with mental health and addiction crises exacerbating the problems, as evidenced by the city's need to address repetitive offenses tied to substance abuse.[43][44] Fiscal management drew scrutiny amid economic pressures, particularly during the COVID-19 pandemic, when Duluth faced deepening budget shortfalls. In May 2020, Larson acknowledged projections of a $10 million deficit for 2021, following an initial $25 million gap that was partially mitigated through cuts and federal aid, but critics contended that structural spending increases in areas like affordable housing and social services strained city finances without yielding proportional improvements in core services. Her 2019 budget proposal sought a 3.96% levy increase to fund housing initiatives, which some viewed as prioritizing progressive priorities over fiscal restraint, contributing to voter dissatisfaction reflected in her 2023 electoral defeat. Additionally, decisions such as raising tourism taxes in Canal Park were blamed for deterring visitors and harming local businesses, amplifying perceptions of policy missteps.[45][46][47] Other shortcomings included responses to media portrayals of Duluth's social issues, such as a 2018 Rolling Stone article highlighting opioid abuse and domestic violence, which Larson defended as overstated but acknowledged as real challenges under her watch. Proposals like outsourcing city promotions in 2021 faced backlash for potentially undermining local control and economic branding efforts. These elements culminated in her loss to challenger Roger Reinert, who secured nearly 60% of the vote in November 2023, signaling voter demand for change in addressing entrenched urban problems.[48][5][49]Controversies and public debates
Handling of homelessness and drug issues
During her mayoral tenure from 2016 to 2023, Duluth experienced a marked escalation in visible homelessness, with official point-in-time counts and shelter capacities reflecting chronic overflow. By 2023, estimates indicated over 600 individuals experiencing homelessness within the city, contributing to persistent encampments that strained public resources and neighborhood relations.[50] Emergency shelters, totaling around 155 beds, operated at or beyond capacity throughout this period, underscoring insufficient supply relative to demand.[51] Pre-2016 baselines showed lower reported incidences, with poverty-driven vulnerabilities present but fewer large-scale encampments or overflow documented in local assessments prior to her administration's emphasis on expanded social services.[52] Larson's administration prioritized housing-first approaches and harm reduction strategies, including investments in affordable units and partnerships with nonprofits for shelter referrals and prevention assistance. In 2023, St. Louis County initiatives under city alignment handled 833 homeless assessments, issuing 377 prevention referrals and 190 shelter placements, yet these measures failed to curb encampment proliferation in downtown and residential areas.[53] Critics argued that such policies, while compassionate, neglected enforcement against open-air drug use and loitering, allowing unregulated markets to persist and exacerbating public disorder without deterring underlying behaviors.[43] Drug-related crises intensified concurrently, with opioid overdoses surging from 106 tracked incidents in 2018 to 174 in 2019 and a peak of 213 in 2020—the highest since monitoring began in 2013—resulting in at least 20 confirmed deaths that year alone.[54] Duluth ranked among Minnesota's worst per capita for opioid fatalities as early as 2017, a trend that worsened under policies favoring syringe exchanges and medication-assisted treatments via groups like Harm Reduction Sisters, without commensurate crackdowns on distribution networks.[55] [56] This approach, while aiming to mitigate fatalities through access to reversal agents like naloxone, drew scrutiny for enabling visible addiction cycles in public spaces, as task force seizures of drugs and firearms continued but did not reverse the upward trajectory in overdoses through 2023.[57] Empirical data indicated that harm reduction's focus on survival over abstinence correlated with sustained or growing encampments tied to substance misuse, contrasting with deterrence-oriented models that prioritize treatment mandates and public order.[58]Media portrayals and city image disputes
In June 2018, Rolling Stone published an article by Ana Marie Cox titled "A Night Among the Trump Believers Way Up North," which described Duluth as a "grimy, drug-ridden city" amid coverage of a Trump rally, highlighting visible urban decay and social challenges.[48] Mayor Emily Larson immediately rejected the characterization, stating on June 22, "We are not a grimy city" and asserting that the piece overlooked the city's broader vibrancy, cultural assets, and economic progress.[59] [60] Larson defended Duluth's image by pointing to empirical indicators of resilience, including steady tourism recovery and investment inflows during her administration. By 2022, tourism tax collections had increased 13% year-over-year, even after adjusting for inflation, reflecting sustained visitor interest in areas like Canal Park despite national pandemic disruptions.[61] Hotel occupancy rates also surpassed pre-2019 levels by late 2022, with Larson attributing this to targeted marketing yielding over 525 million earned media impressions.[62] City image disputes nonetheless arose from tensions between these metrics and on-the-ground realities of visible deterioration, such as persistent street-level disorder that external observers like Cox amplified. Larson maintained that such portrayals distorted a data-backed narrative of renewal, including $35 million in housing investments yielding 850 new units by 2022, which she argued bolstered long-term appeal over short-term optics.[63] Critics, however, questioned whether progressive fiscal measures—like lodging tax hikes to fund infrastructure—unintentionally reinforced decay perceptions by raising visitor costs and slowing private development, as higher taxes can erode urban competitiveness per basic supply-demand dynamics in local economies.[64] These clashes underscored Larson's emphasis on aggregate economic data against anecdotal media narratives, though tourism revenue hit a record $15 million in 2023, suggesting the city's draw endured amid the debate.[64]Factors in 2023 electoral defeat
Reinert secured 60% of the vote (17,577 votes) to Larson's 40% (11,718 votes) in the November 7, 2023, general election, with a turnout of approximately 54%, reflecting a strong voter mandate for change after Larson's two terms.[47][65] This outcome echoed Reinert's primary victory on August 8, where he garnered 63% against Larson and three other candidates, signaling early dissatisfaction with the incumbent's continuity-focused pitch.[66] Voters expressed fatigue with Larson's administration amid persistent challenges in housing affordability and homelessness, which contributed to perceptions of Duluth becoming "very expensive to live" and driving away younger residents.[47] Reinert's campaign capitalized on these gaps by prioritizing roads, taxes, housing, and public safety, contrasting with critiques of Larson's emphasis on initiatives like climate change over immediate local needs such as infrastructure maintenance.[65] Specific grievances included inadequate snow plowing and rising property taxes, which alienated residents seeking reliable basic services rather than "pet projects."[47][65] The election highlighted a broader shift toward moderation within Duluth's Democratic-Farmer-Labor (DFL) base, as Reinert—positioned as a "fresh face" open to bipartisan approaches—appealed to those feeling unrecognized by Larson's progressive governance.[47][67] Despite Larson's campaign efforts, including door-knocking over 18,000 households, Reinert's non-confrontational style and focus on accountability resonated, amplifying outsider critiques of policy shortcomings without delving into personal attacks.[65] This dynamic, coupled with voters rejecting multiple DFL-endorsed council candidates, underscored a rejection of entrenched leadership rather than ideological extremes.[67]2023 mayoral election
Campaign dynamics
The 2023 Duluth mayoral election unfolded through a nonpartisan primary on August 8, 2023, designed to advance the top two candidates from a field of five to the general election on November 7. Incumbent mayor Emily Larson, seeking a third term, secured second place behind challenger Roger Reinert, a former state senator and city council member who had announced his candidacy emphasizing leadership renewal.[66][30] The primary structure highlighted Reinert's early momentum, with him capturing 63% of votes, yet Larson's advancement set up a direct incumbent-challenger matchup described by observers as the city's most competitive mayoral race in 15 years.[66][30] Larson's campaign leveraged institutional support, including endorsements from EMILY's List, the Minnesota Democratic–Farmer–Labor (DFL) Party, organized labor groups, and Governor Tim Walz, who publicly backed her on August 7 citing her administrative record.[68][69][70] Reinert countered with a narrative centered on policy shifts and fresh governance, gaining endorsements from the police and fire unions to appeal to voters seeking alternatives to the status quo.[69][49] These contrasting alliances shaped resource allocation, with both campaigns prioritizing targeted voter outreach in a field complicated by simultaneous contests for six at-large city council seats.[71] Public engagements intensified post-primary through a series of debates, including a September 13 forum that drew standing-room crowds and a final October 26 event hosted by PBS North, where candidates clashed on visions for downtown revitalization and urban challenges.[7][72] These forums allowed Reinert to press critiques of Larson's tenure while she defended continuity in progressive priorities, underscoring tactical differences in framing experience versus innovation.[73][74]Results and aftermath
In the Duluth mayoral election held on November 7, 2023, challenger Roger Reinert defeated incumbent Emily Larson, receiving 17,577 votes to Larson's 11,718, or approximately 60% to 40% of the total 29,295 votes cast.[47][75] Larson conceded defeat shortly after polls closed, around 9:30 p.m., prior to the full tabulation of results.[76][47] Delivering her concession speech at her election watch party at Bent Paddle Brewing Co., Larson reflected on her eight-year tenure, stating that the city had faced tough challenges including a global pandemic but had persisted without allowing them to halt progress.[76][75] She expressed gratitude to the community for its engagement, her 265 campaign volunteers who had doorknocked 18,000 homes and contacted over 8,000 residents by phone, and city staff for their support.[75][47] Larson congratulated Reinert, wished him success in the demanding role, and underscored Duluth's underlying economic strength as she concluded her time in office.[47] In the immediate transition period, Reinert announced plans for meetings with city officials and requested dedicated space at City Hall to facilitate handover processes, signaling an intent to assemble a new leadership team while maintaining focus on core services.[47] Larson remained in office until Reinert's inauguration on January 8, 2024, during which no abrupt policy reversals were enacted, though Reinert indicated intentions to redirect unspent federal pandemic relief funds toward infrastructure and to review prior decisions such as a proposed golf course closure.[47]Post-mayoral career
Transition and 2025 nonprofit role
Following her electoral defeat on November 7, 2023, Emily Larson embarked on a year-long sabbatical characterized as "radical rest" to recover from over two decades in public service, including roles since her teenage years.[2] This period allowed her to step away from professional obligations, during which she volunteered, including transporting injured animals to recovery centers, before resuming structured employment.[2] On June 27, 2025, Larson announced her appointment as President and CEO of The Family Partnership, a Minneapolis-based nonprofit founded in 1878, with her tenure commencing July 1, 2025.[77] [2] The organization, which manages an $8 million annual budget and employs approximately 80 staff, delivers services such as anti-sex-trafficking programs, outpatient mental health care, and developmental therapies for children, having served over one million individuals historically.[2] [77] This transition represented a return to her social work roots—where she held prior experience in housing, family therapy, and nonprofit management—shifting from elected public office to private-sector nonprofit leadership amid growing demands on community services.[2] [78] Early priorities included addressing intensified needs among at-risk populations, particularly in response to federal funding reductions in areas like Medicaid and early childhood programs, with Larson stating, "It feels like a really important time to prioritize places and organizations and people who are at risk."[2] She plans to divide her time between Duluth and the Twin Cities to fulfill these responsibilities.[2]Personal life
Family and relationships
Emily Larson is married to Doug Zaun, an architect and co-owner of the Duluth-based firm Wagner Zaun Architecture.[3][79] The couple has two sons, Gabe and Eli.[2] Larson has maintained a low public profile regarding her family life, with limited details shared beyond these basic facts in interviews and local media coverage.[3] No further verifiable information on extended family or other relationships is publicly available from primary sources.Interests and public persona
Larson has expressed a deep affinity for Duluth's outdoor environment, crediting Lake Superior as a pivotal influence since first encountering it at age five during a 1978 family vacation.[3] As an avid trail runner, she maintains a personal best marathon time in the low 3:20s and frequently completes a seven-mile loop through the Chester, Bagley, and Hartley neighborhoods, demonstrating her comfort in varied weather conditions and athletic disposition.[80] This engagement with nature underscores her emphasis on connecting urban planning to environmental assets, such as the city's 30% parkland coverage and 42 creeks.[3] A distinctive personal certification highlights her adventurous pursuits: Larson became llama-certified following a five-day backcountry hiking trip in Wyoming, where llamas were used to transport gear, marking her as the first such certified mayor in Duluth's history.[80] In consumer habits, she adheres to a "voting with dollars" philosophy, prioritizing purchases from local businesses and sustainable products to align spending with community and environmental values, a practice rooted in her upbringing in a politically engaged household.[10] Larson's public persona is characterized by warmth and authenticity, often conveyed through relatable anecdotes and a listener's approach, as evidenced by her statement: "Everybody has a story. If you just slow down and listen to it you can find yourself in that story."[80] Interviews portray her as approachable yet resolutely policy-oriented, balancing personal connections with advocacy for initiatives like river corridor revitalization.[3]Electoral history
Overview of key races
Emily Larson served as mayor of Duluth, Minnesota, following victories in the 2015 and 2019 elections, before her defeat in 2023.[31][75] In 2015, she became the city's first female mayor by defeating challenger Chuck Horton in the general election on November 3.[81] Her electoral performance showed a declining vote share across the three mayoral contests, with margins narrowing from a landslide win to a substantial loss, alongside varying turnout levels including 52.3% in 2023.[82]| Election Year | Opponent | Larson's Vote Share |
|---|---|---|
| 2015 (General) | Chuck Horton | 71.9% |
| 2019 (General) | Dave Nolle | 63.3% (13,071 votes) |
| 2023 (General) | Roger Reinert | 40.0% (11,716 votes) |