Zoning might not be attention grabbing, but it quietly shapes the way we live, determining not just where homes are built, but who can afford them.

“To be honest with you, next to people having better jobs, zoning is probably the number two thing that helps people to have housing,” said Reginald Johnson, director of the Community Development Department in Durham.

As Durham continues to grow, the city faces pressing challenges in balancing urban development, affordability and sustainability.

Experts across various fields – urban planning, nonprofit housing, environmental policy and government – highlight zoning as a crucial yet complicated factor in shaping Durham’s future.

Zoning changes are accomplished through the Unified Development Ordinance. The UDO is a legally binding set of regulations that governs how land can be physically developed across both the city and county.

Johnson’s department manages the city’s affordable housing funds, which primarily support nonprofit developers.

Nonprofit organizations play a crucial role in filling the gaps in availability by developing and maintaining housing for those who might otherwise be left out of the market.

Organizations such as CASA N.C. serve individuals earning 30% or less of the Area Median Income, and around 70% of its residents live with a disability.

“Affordable housing is just a reminder that there are different levels of people’s needs, and we are serving that part of the population that often has the least amount of resources and help,” said Cheyanne Murdock, annual funds manager CASA N.C.

For City of Durham programs, affordable housing is designated for individuals and families earning at or below 80% of the Area Median Income, which is adjusted based on family size.

For 2024, 80% of AMI in Durham/Chapel Hill for a single individual was $59,300 and $67,800 for a family of two.

Murdock said while many developers build housing at or near that 80% threshold, there is considerable need well below that level, which is the people CASA N.C. aims to help.

Habitat for Humanity Durham requires a family or individual to earn at least 50% of the AMI to be considered for the organization’s home ownership program.

“For those that are accepted into the program, there’s required education, anything from home maintenance to financial education,” said Shannon Massey, communications and brand manager for the organization.

How does Durham provide Affordable Housing?

The city’s approach to affordable housing involves zoning, financial density incentives and collaboration with nonprofit developers.

The city provides incentives for affordable housing, including density bonuses that allow developers to build more units if they include affordable housing. However, Planning Commission Chair Kimberly Cameron said developers often do the bare minimum.

“Many offer just 5% of their units at 80% AMI, which isn’t enough,” she said.

While density bonuses are meant to encourage mixed-income development, critics argue the incentives don’t go far enough to produce deeply affordable housing for residents earning below 60% AMI.

Others are pushing for stronger requirements, such as deeper affordability targets or mandatory inclusionary zoning policies.

Commercial developers, who stand to lose the most from stricter affordability requirements, often resist policies that would cut into their profit margins.

“As a nonprofit, we don’t have deep pockets like developers. We need to act quickly or write a strong request for proposal to secure properties,” CASA’s Murdock said.

Nonprofits such as CASA N.C. and Habitat for Humanity Durham often compete with commercial developers for tracts of land, but Cameron said the new City Council seems to be more affordable housing friendly when considering proposals.

As Durham continues to balance growth with affordability, the collaboration between policymakers, nonprofit developers and community advocates will be crucial in ensuring housing remains accessible for all, Cameron said.

What can residents expect for the future of Affordable Housing?

Cameron stresses the importance of the upcoming Unified Development Ordinance (UDO) that is set to reshape zoning policies. She said hearings for the new UDO are likely to begin in June.

“The UDO really aims at more affordable housing in Durham. It also aims at equitable developments and aims at environmentally friendly developments,” she said.

Cameron emphasizes that once the UDO is approved, zoning will change automatically. Certain areas will be rezoned to allow for multi-family housing without developers needing to request individual rezoning changes.

One section of the UDO includes affordable housing provisions such as lot dimensions, yard requirements, development standards, residential density and more.

“Affordable units shall be incorporated throughout the project, and shall not be distinguishable from market-rate units through location, grouping, unit size, interior finishes or exterior design,” according to the Durham UDO website.

Cameron also said she hopes to see Durham become a “15-minute” city in the coming years.

“That means you should be able to get to any services you need within 15 minutes, so groceries, restaurants, medicine and medical care within 15 minutes,” she said.

Despite these efforts, concerns persist over the influence of large corporations and economic shifts on affordability.

“Google, Apple, Meta and Amazon are here, bringing higher wages and driving up housing prices,” Community Development Department’s Johnson said. “The question is, where will restaurant workers, first responders and nurses live?”

While zoning alone cannot solve Durham’s housing crisis, it remains a powerful tool for shaping an inclusive and sustainable city.

“Generally, you need other strategies combined with zoning to achieve affordability. But, I will say, that not changing anything is not any kind of solution,” said Andrew Whittemore, associate professor at the Department of City and Regional Planning at UNC-Chapel Hill.