Managing growth while preserving the town identity can be challenging. It becomes even more difficult when trying to preserve green spaces and create bike and pedestrian-friendly environments. Through strategic urban planning, zoning reform and effective land use, Davidson, NC has been able to achieve these goals while preserving its unique town character.
The History of Davidson
Davidson is a small town 20 miles north of Charlotte with a population of 16,000. It boasts Davidson College, a historic downtown, a thriving restaurant scene and a greenway. Additionally, it is one of the top wealthiest towns in North Carolina.
Burdette explained, “Davidson didn’t happen by accident. Town leaders and residents made some really bold decisions 30 years ago that have profoundly shaped today’s Davidson.” Davidson was an early adopter of form-based code, which according to Burdette, “reinforces the elevation of design in our community.”
Planning Foundations
According to the U.S. Census, the south accounted for 87% of the nation’s growth in 2023. The images below depict the increase of housing units in the south between 1960 and 2010 with Arkansas and North Carolina highlighted.
This macro level of growth across the south rings true on the micro level for Davidson as well.
As Charlotte grew in popularity, Davidson recognized the need for immediate action to address growth in the early 1990’s. Through town-wide meetings, they sought to answer the following questions:
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What do we like about Davidson?
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What would we do differently as we grow, if we had the chance?
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What do we want to avoid as we grow?
The feedback from those meetings revealed common values such as having walkable main streets, the culture surrounding Davidson College, preserving rural and natural spaces, narrow streets with sidewalks and porches and maintaining diversity and connectivity while also having a commercial and industrial tax base.
This vision led to the implementation of the Davidson Land Plan of 1995, which established guiding principles, addressed development concerns and, according to Burdette, had a “greater emphasis on the regulatory mechanisms to achieve those desired outcomes.” The land use plan introduced form-based code zoning options as an alternative for conventional development. Since the adoption of form-based codes was uncommon at the time, developers were given an option as to which code they could use.
In 2001, Davidson established a Form-Based, Unified Development Code which applied to the entire jurisdiction. Several innovative approaches were included such as creating a design review board to approve all commercial developments and any residential above a duplex and a 2-story minimum requirement for commercial spaces.
Davidson also adopted North Carolina’s first inclusionary zoning ordinance in 2001 to increase affordable housing options. The ordinance required 12.5% of all for sale units to be affordable based on AMI. This remarkable feat was not without its challenges. Multiple lawsuits ensued due to a lack of expressed authority from the state authorizing this ruling.
In response to the lawsuits and in order to remain flexible, the town began offering a payment in lieu option where developers could pay a fee, which is currently $50,000, to opt out of the affordable units. The fees from this option were directed into a fund, enabling financing to other programs such as critical home repair, down payment assistance, rental subsidies and other partnerships.
The inclusionary zoning ordinance implemented an Affordable Housing Framework focused on 4 pillars: educate, create, preserve and support. A key element of this framework included a “Built Unit Waiver Incentive” which aimed to address the challenge of developers preferring the payment in lieu option. This 2 for 1 incentive allows developers to build half of what was originally required to fulfil their affordable housing requirement because as Burdette stated, “we’d rather have built units on the ground.”
In 2020, A Comprehensive Plan led to a “Conservation and Growth Framework Map” for intentional growth management. They also created the Affordable Housing Needs Assessment in 2022, which revealed the need for 800+ affordable units and led to pursuing the development of town owned land.
Implementation of Zoning Reform
By establishing the regulatory processes that guide zoning reform, Davidson built a solid foundation for exploring specific instances of implementation.
Burdette highlighted the St. Albans neighborhood where in 1998, developers had a conventional zone design and one form-based code designed by Dover Kohl. The developers then let the public decide which was preferred. The public preferred the form-based code which included townhomes, integrated public spaces and multiple connections to existing street networks.
The Davidson Bay project from 1999 was also a form-based code project that included affordable housing, missing middle housing commercial space and natural lands. This neighborhood is still under construction yet it has yielded some of the most beneficial best practices and lessons learned for the town planners.
The Circles @ 30 project is an extension of downtown that is immediately adjacent to the interstate. Despite it's proximity to the highway, it remains a pedestrian friendly village with a mix of residential, commerical, office and retail, has connection to downtown Davidson and maintains the form-based requirements set by the town. It even includes a 2-story gas station.
The Cultivating Conservation and Quality Growth plan was developed to preserve natural space while promoting intentional growth. This plan was able to uphold town values, conserve 57% of the open space and create walkable urbanism within the rural area. Davidson ensured that the town's core values and vision were prioritized while addressing growth.
A mobility plan was also implemented with an impact report to include vehicles, pedestrians and cyclists and is assessed town wide. Burdette mentioned that education is key to safety, especially since tourists are unaware of the town's crosswalk safety standards. An aggressive safety plan was implemented to maintain safe and equitable mobility.
Key Success
Aside from a town-wide form-based code and inclusionary zoning, the implementation of a Utility Service and Annexation Criteria is a key success for the town.
The USAC score card is grounded in the comprehensive plan and was developed as a form of growth management. Developers are required to submit this score card and criteria is based on what is important to the town. A score of 60%, based on eligible points, allows the utility decision to be administrative, not legislative. There is also an incentive on building affordable housing included on the score card. This sets clear expectations and creates predictability for all stakeholders.
Lessons Learned
After 30 years of intentional growth management, Burdette highlighted some of Davidsons key lessons:
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Make form-based code applicable everywhere.
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Pivot when extra regulation is needed.
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Allow ADUs everywhere, which helps with naturally occurring affordable housing.
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Create streets where people and front doors want to be.
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Tell your story to builders, developers and the public.
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Use comprehensive plans as a menu for your strategic plan.
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It’s okay to say no and make bold decisions.
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Design for the pedestrian.
Burdette stated that, by designing for the pedestrian, and by default, the public realm “a lot of these other pieces fall into place. You might need to pivot; you might need to be flexible...If you get these basic pieces right, it’s a fantastic foundation for creating good places.”
Davidson, NC stands as a testament to the power of strategic planning and community-driven initiatives in managing growth while preserving its unique identity. By prioritizing community values and maintaining a clear vision for the future, Davidson has not only safeguarded its charm but has also fostered a model for other towns striving to achieve similar goals of sustainable growth and cultural preservation.
