Graham Zoning

Executive Summary: The 2026 Graham Development Framework

Market Dynamics

Graham, North Carolina, is experiencing notable growth, with a projected 2026 population of 19,311. The city is the county seat of Alamance County and is currently growing at an annual rate of 4.77%. Since the 2020 census, the population has increased by 12.53%. This growth is fueled by its central location within Alamance County and proximity to larger employment centers like Burlington and the Research Triangle. The median household income in Graham is $54,783, with a poverty rate of 18.11%. This blend of growth and economic factors creates both opportunities and challenges for land use planning, requiring a balanced approach to development and affordable housing initiatives.

Political & Development Climate

The Graham City Council, led by Mayor Chelsea Dickey, is currently focused on promoting economic growth, maintaining infrastructure, and strengthening community engagement. The council is working towards a more transparent and accessible city government. A key initiative is the revision of the Unified Development Ordinance (UDO), a legally binding document that combines zoning, subdivision regulations, and environmental rules. This indicates a proactive approach to managing growth and ensuring that development aligns with the city's strategic goals. The council also prioritizes parks and recreation initiatives, infrastructure upgrades, and public safety.

Key Drivers

• Driver 1: Population Growth: Graham is experiencing significant population growth, necessitating strategic land use planning to accommodate new residents while preserving community character.
• Driver 2: Economic Development: The city's focus on economic development requires a balance between attracting new businesses and ensuring sustainable, well-planned growth.
• Driver 3: Infrastructure Investment: Addressing backlogs in utility upgrades and investing in infrastructure are critical for supporting current and future development.

Strategic Growth Corridors

Primary Commercial Arteries

Major highways such as US-70 and NC-54 serve as primary commercial arteries in Graham. These corridors support retail businesses, restaurants, and other commercial activities. Efficient traffic flow, adequate parking, and attractive landscaping are crucial for maintaining the economic viability of these areas. The city's Highway Corridor Overlay Districts likely implement specific standards for commercial construction, signage, and access management along these routes. Careful attention should be paid to balancing commercial development with pedestrian and bicycle access to ensure vibrant and accessible corridors.

Redevelopment Nodes

Downtown Graham is a key redevelopment node targeted for revitalization. The city has invested in infrastructure improvements, including rectangular rapid flashing beacons to improve pedestrian safety. The relocation of Sesquicentennial Park to a new location behind the Graham Historical Museum is also underway. The Downtown Master Plan serves as a vision for downtown development, guiding future city investments in engineering, design, and infrastructure. Revitalizing downtown Graham can serve as a catalyst for economic growth and enhance the city's overall appeal.

• Opportunity: Leveraging historic buildings and creating mixed-use developments can attract new businesses and residents to the downtown area.
• Constraint: Addressing parking limitations and ensuring pedestrian-friendly environments are essential for successful downtown revitalization.

Detailed Zoning District Analysis

The city's land use is governed by a Development Ordinance, which outlines permitted uses, setbacks, parking, landscaping, subdivision regulations, floodplain management, signage, riparian buffers, and stormwater management. The Code Enforcement Officer is responsible for addressing noncompliance with these regulations.

Residential Districts

Graham likely utilizes a range of residential zoning districts to accommodate varying densities. These may include designations such as "R-1" for low-density single-family housing, "R-2" for medium-density, allowing duplexes or townhomes, and "R-3" or higher for higher-density apartments and multi-family dwellings. Accessory Dwelling Units (ADUs) are likely permitted in some residential zones, especially given the recent state legislation mandating that local governments allow at least one ADU per single-family detached dwelling. Specific regulations for ADUs may address size, setbacks, and design requirements. The transition between these districts should be carefully managed to minimize conflicts and ensure compatibility with surrounding land uses.

Commercial & Mixed-Use

Commercial zoning districts in Graham likely range from neighborhood commercial (allowing small-scale retail and service uses) to general commercial (accommodating larger businesses and shopping centers). Mixed-use zoning districts may be implemented to encourage a combination of residential, commercial, and office uses within the same area. These districts often have specific design guidelines to promote pedestrian-friendly environments and minimize traffic congestion. Specific codes for commercial and mixed-use zones dictate building heights, setbacks, parking requirements, and permitted uses to achieve a balance between economic activity and community character.

Industrial & Special Purpose

Industrial zones in Graham are likely designated for manufacturing, warehousing, and distribution facilities. These zones may have specific requirements for buffering, landscaping, and environmental protection to minimize impacts on nearby residential areas. Special purpose districts, such as Planned Unit Developments (PUDs), may be used to allow for flexible development patterns and innovative land use mixes. PUDs often require detailed site plan reviews and negotiations to ensure that the development aligns with the city's overall goals. Attention to infrastructure capacity and transportation access is crucial for industrial and special purpose zones.

Recent Code Amendments & Trends

Regulatory Updates

The Graham City Council is currently initiating revisions to the Unified Development Ordinance (UDO), which combines zoning, subdivision regulations, and environmental rules into one code. This suggests a proactive approach to updating regulations to address current development challenges and opportunities. Interested parties can apply for ordinance text amendments. State legislation requires explicit, written consideration of adopted plans as part of the decision-making process for zoning amendments.

Housing Innovation

With the increasing need for diverse housing options, Graham is likely exploring strategies to promote housing innovation. This may include allowing Accessory Dwelling Units (ADUs) to increase density in existing residential areas. Senate Bill 495 mandates that local governments allow at least one ADU per single-family detached dwelling in residential zones. Other potential strategies include density bonuses for developers who include affordable housing units in their projects and promoting "missing middle" housing types, such as townhouses and courtyard apartments, to provide a range of housing options.

Infrastructure & Concurrency

Utility Capacity

The City of Graham's Water Utility is responsible for water and wastewater operations. The water treatment plant has a treatment capacity of 12 million gallons per day and a treated water storage capacity of 6 million gallons. The Graham-Mebane Water Treatment Plant distributes approximately 3.8 million gallons of water per day and also serves the Towns of Green Level and Swepsonville. The Graham Wastewater Treatment Plant (WWTP) has a permitted capacity of 3.5 million gallons per day and treats an average of 2.0 million gallons of wastewater each day. Addressing a backlog of utilities upgrades throughout Graham, including water, sewer and stormwater lines, is a priority for the city council.

Impact Fees & Permits

The City of Graham charges various development-related fees, including those for stormwater management review, sewer pump stations, buffer authorization, and floodplain development. Low-Density Stormwater Management Review and Inspection Fee costs a flat fee of $150. Sewer pump stations requiring a permit cost $5,000, which includes plan review, permitting, record drawings review, and limited construction inspection. Buffer Authorization Permit Fees are $25 for exempt buffer disturbance and $250 for non-exempt buffer disturbance. Floodplain Development Permit Fee costs a flat fee of $50. The city may also require water system hydraulic modeling for extensive offsite waterlines. While North Carolina municipalities cannot charge impact fees for future services, fees may be assessed at the time of actual use. The city's Rates and Fees Schedule provides detailed information on all applicable development fees.