When Larry Waters first took office as Sevier County Mayor in 1978, he was 25 years old, Jimmy Carter was President, gas was 65 cents a gallon, and the U.S. had recently emerged from a major recession a few years prior. Much like the rest of East Tennessee, Sevier County was on the brink of transformation—but few could have imagined how much change would come. Over the next 47 years, Mayor Waters would help guide that change with steady, unifying leadership, a deep commitment to community, and a dedication to regional progress.

Born and raised in Sevier County, Waters graduated from Sevier County High School and earned a B.S. in Business Administration from the University of Tennessee in 1974. He began teaching in 1975 and became a principal just one year later. At 25, while still serving as principal, he ran for office—ultimately becoming the youngest elected mayor in Tennessee. Today, he holds the distinction of being the state’s longest-serving elected official. Over the decades, Waters has witnessed incredible transformation—not just in the county and region he’s served, but in his own leadership journey.

Five Decades of Growth

Sevier County now attracts more than 21 million visitors annually, due to its proximity to the Great Smoky Mountains National Park and the many attractions available to visitors. But this didn’t happen overnight. Much of this growth has taken place under Mayor Waters’s leadership. Significant changes have occurred in both the county and the region, especially as it pertains to growth in local economies and the population. This necessitated growth in infrastructure and government services to provide for the influx of citizens, and specifically in Sevier County—the influx of tourism.

“In the county, Gatlinburg was always the catalyst for tourism in the 1960s and 1970s,” Waters says. “Then, in the mid-1980s when Dollywood began, Pigeon Forge took off. Sevierville, which always had an industrial base, began to grow as a tourist destination in the 1990s. In addition to having tourism, we’ve had several industrial parks here, and Sevierville served as a hub of both tourism and industry.”

While tourism surged, industrial development remained an essential focus. Sevierville served as a hub for both, and the county invested in infrastructure to support its expanding economy. Since Waters took office, Sevier County’s budget, which includes the local school system, has grown nearly twentyfold. What began with a small staff has expanded to 33 departments reporting to the mayor’s office, with the population tripling from 30,000 to over 100,000—and during peak season, another 100,000 tourists in the county each night.

Waters’ leadership evolved alongside that growth. “Initially, I focused on making the everyday things work,” he says. “But over the years, I’ve realized you also have to establish a vision and prepare for 15 to 20 years down the road.”

The Impact of Regional Economic Development

In 1978, Waters recalls that regional economic development wasn’t yet a priority. “Back then, it was more about individual communities trying to sell themselves,” Waters states. He noted that Sevier County didn’t have a designated economic development professional until the 1980s, when it hired an economic counselor to help diversify the economy beyond tourism.

Waters also recognized the need for regional collaboration. Since joining East Tennessee Economic Development Agency (ETEDA) in 2001, he’s been a vocal supporter of marketing East Tennessee as a unified region. “For us to compete with markets like Charlotte, we have to sell ourselves as a whole region,” he says. “Sevier County may have the national park, but another community may have the land or industrial space. We benefit from each other.”

His advice to other counties? Ensure your infrastructure, land, and workforce are ready—and stay connected. “Be plugged into ETEDA, Tennessee Department of Economic and Community Development (TNECD), Tennessee Valley Authority (TVA)—all the organizations that can help you recruit and prepare to become a business-friendly community.”

The Balance of Tourism and Industry

While Sevier County is known for tourism, it has made intentional efforts to grow its industrial base. An industrial park near the interstate provides jobs for many residents, and the county is seeking land for another site to further diversify opportunities.

“Not everyone wants to work in tourism,” Waters notes. “It’s important to have options. One family member might work in industry, another in tourism—it’s complementary. Industry diversifies our economy and offers a broader range of opportunities.”

The Greatest Challenge

Of all the challenges Waters has faced, the 2016 Gatlinburg wildfires were the most difficult. The fires claimed 14 lives, injured 190 people, and destroyed 2,500 structures.

“The hardest part was dealing with the devastation—the lives lost, working with FEMA, and helping folks get back on their feet and recover. We did it, but it wasn’t just me—it was the community and everyone working together,” Waters says. It is this spirit of unity that makes his leadership style unique, and it will be the legacy he leaves behind. One of the most notable things about Mayor Waters is his unique ability to bring people together.

Building a Legacy of Unity

Waters’s first term began amid a new form of government and political upheaval. By 1982, change was underway, and local leaders began working together toward shared goals. The electorate selected professionals who prioritized the county’s best interests, with Waters serving as a catalyst for the progress that followed.

To this day, Waters meets monthly with city managers and mayors across Sevier County. “We all get along very well, and while we may not agree on everything, we have come to the point where we can disagree on one thing but move forward on others. It’s the same with the cities and the County Commission and the other elected officials. This cooperation has been important, because Sevier County has over 21 million visitors a year and a population over 100,000, and there are many challenges we face. We can accomplish much more by doing it together.”

Relationships are key to succeeding, and he speaks to the importance of not only working through today’s problems but also addressing challenges that are 15 to 20 years down the road. He attributes growth to the vision of both the business community and leadership in Sevier County that understands the necessity of growing the infrastructure to set the stage for future growth.

On a Personal Note

Beyond business, Waters is simply a humble, caring person. His faith plays a significant role in his life.  “I lived with my grandfather who was a Baptist minister, so I’ve been involved in church since I was a kid, and it provides guidance for everything I do. I meet people out on the street who say, ‘We’re praying for you,’ and that that means so much to me.”

Faith has always been a part of Waters’s life, but so has hard work. “One of the things many people don’t know about me is that I went from working on a farm to waiting tables in the tourism industry. From high school until my senior year at the University of Tennessee, I worked at the old Mountain View Hotel, where we were required to remember our orders. We didn’t write anything down. I could remember up to about 16 or 17 at a time back then!”

When Waters isn’t hard at work, his perfect day would be spending time on the golf course in the morning and wrapping it up with a picnic in the mountains.

His family also plays an integral role in his life. He is married to his wife, Terri, who has her own art studio in Gatlinburg where they live. They have two children, David and Adrienne, and are grandparents to Caden and Camilla Waters and Charlotte and Amelia Ogle. His children are following in his footsteps. His son David has a travel company locally, in Virginia Beach, and in Pennsylvania. His daughter Adrienne was appointed Circuit Court Judge in 2024 in the fourth judicial district, which includes Cocke, Grainger, Jefferson, and Sevier Counties. She is the first woman to serve as circuit court judge in the district.

A Future Built on Vision

Since 1978, Mayor Waters has created a legacy through his leadership in both Sevier County and the region. His ability to cast vision, unify leaders, and serve through both tremendous growth and incredible challenges is a testament to his character and dedication to building a future for Sevier County and the region that residents, industries, and visitors from across the globe will enjoy for generations.