RALEIGH — Citizens in Plymouth have raised concerns about conflicts of interest and self-dealing by town council members related to lease of a town property to a nonprofit called Quality of Life ENC.
Quality of Life ENC (QOL ENC) says it is an organization seeking to help individuals with addiction, mental health and other related issues.
The town of Plymouth is located in Washington County and has around 3,160 residents.
In the past year, citizens in Plymouth have raised concerns regarding QOL ENC tied to allegations of conflicts of interest and ethical violations by town council members, as well as procedural violations and selective enforcement in Plymouth’s town governance.
Plymouth has had some transparency issues in the past, specifically a 2021 state audit which found the town had failed to maintain town council meeting minutes. North State Journal (NSJ) also found some meeting minutes and links to video of town council meetings missing.
The current Plymouth Town Council members are Mayor Crystal Davis, Donsenia Teel (mayor pro-tempore, Ward I), Micah Weathersbee (Ward I), Jerry Rhodes (Ward II), Danny Wobbleton (Ward II) and Kim Williams (Ward III). Ward III Councilman Steven Brown abruptly resigned during the council’s Jan. 12 meeting.
“I am resigning on Jan. 12 from my position due to personal reasons,” Brown, elected to the seat last November, stated before departing the meeting entirely.
Citing state statute 160A-63, the town is now seeking applications to replace Brown with a deadline for submissions of Feb. 20.
The Jan. 12 meeting also included at times heated discussion regarding reducing zoning limits for business with electronic gaming operations as well as ending the longstanding Plymouth Food Pantry lease in favor of a church called United Full Gospel Revival Center.
Conflict of interest allegations
Critics have alleged that Davis should have recused herself due to self-dealing. The allegations centered on Davis’ founding role and board position with QOL ENC, from which she and another founder stepped down just before key votes.
According to publicly available documents at the N.C. Secretary of State, QOL ENC is a nonprofit organization founded by Crystal Davis, Marcus Williams and Cedric Wilkins on June 5, 2024. A little over a year later, July 5, 2024, records show Brown and Williams were removed from QOL ENC board. The removal came three days ahead of a town council meeting where a QOL ENC partnership and property lease were discussed and approved.
Neither Davis nor Wilkins have responded to NSJ’s requests for comment. Williams was not contacted due to a lack of a significant role in the lease controversy.
Other individuals present during town council meetings when QOL ENC was discussed were Town Manager Joanne Floyd and the town’s attorney, Arnita Dula of the Teague Campbell Law Firm, which has offices in Raleigh and Asheville.
Davis participated in and voted on multiple town council decisions benefiting the organization, including a partnership exploration in July 2024, a $1-per-year lease for the Allied Building, and town-funded bathroom/kitchen renovations in June 2025. Davis advocated for QOL ENC despite her founding role in the organization, which meeting videos show she did not disclose.
These issues appear to parallel the council’s strict enforcement of lease compliance against other entities, like the controversy surrounding the previously mentioned Plymouth Food Pantry eviction, a process which began in late 2025 at Davis’ initiative, further raising questions of disparate treatment.
NSJ has learned that the N.C. State Auditor’s Office received a tip about the QOL ENC issue, and a spokesperson indicated an investigation may happen following an initial probe of the matter.
Former town council candidate raises questions
John Shelton, a retired law enforcement officer who narrowly lost the Ward III council race in last November’s election, gathered documentation of issues with a lease to QOL ENC that was approved by the Plymouth Town Council in 2024. That information was shared with NSJ, which confirmed authenticity through public records requests, meeting materials and town council videos.
The issue with QOL ENC’s lease drew renewed attention in Nov. 12, 2025, when Shelton posted on Facebook detailing allegations including lease irregularities. Among the claims were a wrong insurance address being submitted, and there being no valid lease during the property’s renovation vote by the Town Council.
Additionally, Shelton raised conflicts of interest and ethics violations by Davis, Town Council procedural violations such as no 30-day notice or public hearing, and selective enforcement issues versus other leases such as the Plymouth Food Pantry.
In the Facebook post, Shelton notes who founded QOL ENC, and that the group was ‘leased’ the former Allied Building from the town “for $1 per year on a 10-year lease,” and “That lease was supposedly entered into in October of 2024, although it was never executed.”
Shelton had requested a signed and executed copy of the lease for the Allied Building from the town, but after weeks without receiving it, he went to the Plymouth Town Hall and was told by staff that Wallace had “lost” it. According to Shelton’s account, staff scrambled over the next 24 hours to get a new lease signed and executed but still failed to ensure a valid insurance policy was in effect. The town manager admitted in an email to Shelton reviewed by NSJ that she had not verified the insurance prior to having the new lease executed.
NSJ asked for the insurance documents and were given the same two documents Shelton obtained, which were for the wrong address of 104 W. Water St. instead of the Allied Building at 106 W. Water St. When asked about that issue, the town attorney told NSJ, “The town is trying to obtain the correct insurance policy.”
According to the documents and emails obtained by NSJ, the lease for the Allied Building (106 W. Water St.) was reported as “lost” by the town and was not properly executed. The town reexecuted the lease several months later, in September 2025. The space also was approved with partial insurance for a different address used by Wilkins.
NSJ also obtained a copy of QOL ENC’s lease which had to be reexecuted after being “lost.”
Shelton’s post asserted the QOL ENC lease should have been treated the same as other leases that were terminated.
“When Davis and Teel voted at Davis’ insistence in June of 2025 that the town pay for the bathroom and kitchen renovations to the Allied Building, QOL ENC did not have a valid lease because, just like the Bear Town Market and Food Pantry Leases, the Town Manager never executed the lease,” Shelton said in his Facebook post.
“By her own logic, Crystal Davis should evict her organization from the Allied Building. Y’all got the wool pulled over your eyes.”
Davis had responded to criticisms of her made by Shelton on social media, including one Facebook comment in which she called him “dumb” and that he had a “small penis” and “mommy issues.”
Shelton told NSJ he has applied for the seat vacated by Brown and was behind Brown by just five votes for the Ward III seat in the November 2025 election.
“Good questions”
On Jan. 30, NSJ contacted QOL ENC using the email address provided on its Facebook page of “[email protected].”
Questions posed to the organization included a request for the Allied Building’s current and valid insurance documentation.
Additionally, NSJ asked why Davis and Williams were removed from the QOL ENC board days before the town council discussed partnering with the group, as well as asking why QOL ENC failed to disclose Davis’ involvement when it made its pitch to the town council.
NSJ also asked if Wilkins had a familial relationship to anyone on the town council or any of the planning boards for the town, past or present.
A response received on Feb. 2 from “Cedric W.” using the QOL ENC Gmail address consisted of two words: “Good questions.”
NSJ followed up, asking if there were any “good answers” to the questions posed, and over a week later received the same response from Wilkins of “good questions.”
$45,000 in bathroom renovations
Renovations for QOL ENC’s requested ADA bathroom upgrades at the Allied Building discussed by the town council were estimated at $45,000.
Documents obtained by NSJ show a plumber bill for $11,950 paid to David Cook’s Plumbing and $29,955 paid to a vendor named “Lester Oliver.” The available balance listed on the second invoice reviewed by NSJ is “$58,000,” nearly 30% more than the previous estimate of $45,000.
Like the insurance having the wrong address, both vendor invoices state the work was for “rehab of bathrooms at 104 W. Water St.” and not for the Allied Building at 106 W. Water St. NSJ asked the attorney about the discrepancy but did not get an answer.
The town’s attorney told NSJ the 104 W. Water St. address on the invoices “is a mistake,” and that the Allied Building at 106 W. Water St. “is the correct address.” She also said the bathroom renovations had been completed.
Despite the upgrades allegedly being complete, the building remains unused and empty.
Lack of occupancies was verified by QOL ENC itself in interior photos posted on Facebook on Jan. 21 and Jan. 27, 2026. The images appeared after and amid NSJ’s inquiries about the property to town officials. Among the images was a completed bathroom.
The QOL ENC lease permits subleasing for profit, but the town attorney confirmed to NSJ in late January that no tenants were in the Allied Building.
During the June 18, 2025, town council meeting, Davis commented on the renovation of the Allied Building requested by QOL ENC, implying pushback on the issue was race-based.
“We’re not going to pretend like this isn’t a race issue because it is,” Davis said.
Teel also made remarks about fixing the building versus funds being spent fixing on other nonprofits while voicing support for Quality of Life for ENC and their goals.
Davis went further, threatening to derail funding for other buildings.
“Believe you me, that if you take this one out, I’m taking them all out, and I have the power invested in me under the law,” said Davis.
A timeline of the QOL ENC lease controversy can be found at the end of this article.
Transparency and a criminal history
Critics have also pointed out that Davis, elected mayor of Plymouth in 2025 and who was a previous town council member, ran a mayoral campaign reportedly promising “transparency, compassion, and purpose” in leading the town.
Despite that promise, the public had minimal awareness of her criminal history during the campaign cycle, aside from some Facebook comments in which Davis had attacked a council candidate, later identified as John Shelton.
Davis was convicted in 2001 of 14 felony counts of embezzlement from a Food Lion store in Washington County, with an order to pay $5,000 in restitution.
The criminal history information was documented in her campaign candidacy filings, but NSJ found no evidence it was disclosed to the public at large during her campaign for mayor or for town council.
Court records for Davis also show a 2000 citation for simple assault, and Department of Public Safety records show a previous misdemeanor conviction for theft of cable TV. These issues were not in her candidacy filings as they are not felonies.
Postelection reporting has focused on Davis’ historic win as Plymouth’s first black female mayor, with vote totals around 364-377 in a three-way race against incumbent Brian Roth and Mark Sexton, her background on the council and unrelated local disputes such as a food pantry closure.
NSJ reached out to Davis multiple times but she has so far failed to acknowledge our questions.
QOL ENC Lease Timeline
October 2024: QOL ENC received a 10-year lease for the Allied Building (106 West Water St.) at $1 per year.
July 8, 2024: Davis made a motion for the town to partner with QOL ENC, with council member Teel seconding it. Davis and Williams were removed from the QOL ENC board on the Friday before the town council meeting.
July 12, 2024: The town Council meets, and there is unanimous approval to move forward with the QOL ENC lease.
June 2025: Davis pushed for and voted (along with Teel) for the town to pay for bathroom and kitchen upgrades in the Allied Building. According to allegations, no valid lease existed at this time, like issues with other leases including Bear Town Market and Food Pantry. Around the same time, Shelton learned the original lease was “lost,” resulting in the town having to recreate and execute a new one.
Aug. 12, 2024: During the town council meeting, adding items to the QOL ENC lease agreement is brought up, and then-Mayor Roth suggests the item needed to be discussed in a closed session only. Town attorney Dula said she had “recommendations for that,” and the matter was not brought up again during the public meeting. Meeting minutes presented at the Sept. 17, 2024, meeting also show QOL ENC was not discussed publicly.
September 2024: Davis made a motion to lease the Allied Building to QOL ENC, with Teel seconding. The motion passed.
Halloween 2025: The Explorers group is unable to access the Allied Building at the usual time to start building a haunted house, with no explanation given for the delay. Speculation suggested this may have been due to QOL ENC needing to obtain insurance.
November 2025: The town council votes to evict Plymouth Food Pantry and Bear Towne Market over lease noncompliance. Davis initiated the motion, citing no lease or record.
Nov. 12, 2025: Shelton posted on Facebook detailing allegations about the Allied Building lease issues and the conflict of interest by Davis and Teel.
Jan. 16, 2026: NSJ sends questions to the town regarding the $45,000 ADA/renovation funds, specifically asking who the recipient was, the status of the work, names of any sublessees, and requesting current insurance coverage given that the previous coverage was partially paid, expired and for a different building. Town officials copied on NSJ requests include Floyd, Town Clerk Dorenda Wallace and Teague Campbell attorney Jennifer Busbee.
Jan. 21 and Jan. 27, 2026: QOL ENC Facebook posts appear on Jan. 21 and Jan. 27. One post includes 10 photos showing a new bathroom, empty space that appears to be in a state of repair, and a flier for a “community center” at 106 West Water St. The photos showed no operations for QOL ENC but instead an empty space under renovation despite the lease execution occurring in 2024. The updates on Facebook began shortly after NSJ inquiries.
Jan. 27-29, 2026: The town attorney responds to NSJ’s requests, sending the same incorrect insurance documentation for Wilkins’s 104 W. Water St. property that Shelton had received. Dula stated the town was seeking the correct policy, that renovations were complete, and that there were no sublessees.
Jan. 30, 2026: NSJ contacts QOL ENC using the email address provided on its Facebook page of [email protected]. Questions posed to the organization include a request for the Allied Building’s current and valid insurance documentation, why Davis and Williams were removed from the QOL board days before the town council discussed partnering with QOL, why did QOL ENC failed to disclose Davis’ involvement when it made its pitch to the town council, and if Wilkins has a familial relationship to anyone on the town council or any of the planning boards for the town, past or present.
Feb. 2 and Feb. 10, 2026: A response is received from “Cedric W.” using the QOL ENC gmail address which NSJ sent questions to. The response consisted of two words: “Good questions.” NSJ followed up, asking if there were any “good answers” to the questions posed but did not receive a response by publication time. After reasking the questions, a second reply of “good questions” was received from Wilkins on Feb. 10, 2026.
To date, no responses to NSJ’s questions have been received from Davis.
