With rapid population growth reshaping Baldwin County, zoning and land-use regulations are drawing increased attention as residents and officials consider how best to manage development.

Zoning determines how land can be used — whether for residential, commercial or other purposes — but in Baldwin County, not all areas are subject to the same rules. Much of the county remains unzoned, particularly in unincorporated areas, where development is guided by a combination of state law and county regulations.

According to Baldwin County Planning and Zoning Director Jay Dickson, about 30% of unincorporated Baldwin County is currently zoned, with 24 of the county's 37 planning districts having adopted zoning.

Planning districts, which are identified by number rather than community name, vary in size across Baldwin County's unincorporated areas — parts of the county outside city limits that are governed by the county rather than a municipal government.

Zoning in Baldwin County operates differently than in many other parts of the country. Rather than being imposed by the local government, zoning is a resident-driven process established by state law.

"Residents within a proposed planning district must initiate zoning through a petition, then it must be approved through a referendum vote by the actual residents of that district," Baldwin County Commissioner Billie Jo Underwood said.

Because of that structure, the Baldwin County Commission does not have the authority to impose zoning on its own.

"Nor do I believe that we should," Underwood said.

Planning districts serve as the foundation for zoning decisions. Dickson said these districts are geographic areas created by state law, but zoning regulations only apply if residents vote to adopt them.

"Zoning regulations do not apply to a planning district unless residents within an individual planning district have voted through referendum to adopt zoning for their specific district," Dickson said.

Growth driving conversations

Baldwin County is one of the fastest-growing areas in Alabama, a trend that is shaping how officials and residents think about land use.

The county's population grew from 231,767 in 2020 to an estimated 261,608 in 2024, according to U.S. Census Bureau data.

Over a longer period, Baldwin County has seen sustained growth for decades, driven largely by people moving into the area.

Officials say those trends are contributing to more conversations about zoning and long-term planning.

"In some areas, we are starting to see more conversations about zoning as growth pressures increase," Underwood said.

Recent activity in Baldwin County reflects that shift. Dickson said several planning districts voted to enact zoning between 2020 and 2023, though requests have slowed in recent years.

"Since then, only two zoning requests have been made; Planning District 17 and the very recent Planning District 3 (Stockton)," Dickson said.

Dickson said Planning District 17 did not meet the minimum signature requirement to move forward, while a petition in Planning District 3 — which includes the Stockton area — is currently under review by the Baldwin County Probate Court.

At the same time, Dickson said most of the county's recent development has occurred in areas that are already zoned.

"Recognizing the high growth potential in their communities, they elected to adopt zoning as a tool to help guide development," Dickson said.

Zoned vs. unzoned areas

In areas that remain unzoned, property owners generally have more flexibility in how they use their land, as long as they comply with county subdivision regulations, building codes and other ordinances.

"In unzoned areas, the county cannot regulate the type of land use or enforce zoning requirements," Dickson said. "However, property owners must still comply with applicable development standards."

Underwood said that flexibility can sometimes create challenges, particularly as growth increases.

"In areas without zoning, development is less predictable because property owners have broader rights in how their land can be used," Underwood said. "That can sometimes lead to situations where uses are not compatible with surrounding properties."

That dynamic has played out recently in North Baldwin County, where residents in the Stockton area are pursuing zoning after learning about proposed large-scale solar developments. The resident-led effort is tied to Planning District 3 and follows concerns about how projects could impact nearby communities and environmentally sensitive areas.

Community members opposing the project quickly organized to meet early requirements in the zoning process, collecting enough signatures within days to advance their petition. Organizers have said the effort reflects broader concerns about land use in an unzoned area and a desire for more local control over future development.

At the same time, she said the mix of zoned and unzoned areas reflects the diversity of Baldwin County and allows communities to decide what level of regulation they prefer.

"It provides flexibility while also giving high-growth areas the option to pursue zoning if they feel it is needed," Underwood said.

For residents, zoning decisions can shape how communities grow and what types of development occur nearby.

Underwood said concerns about growth are often tied to infrastructure rather than zoning itself.

"The biggest concerns I hear relate to infrastructure, particularly traffic congestion and stormwater management," she said.

She noted that while zoning regulates how property can be used, it does not address how development is built.

"Infrastructure issues like traffic, drainage and utilities are addressed through the county's subdivision regulations, not through zoning," Underwood said.

In unzoned areas, where the county has limited authority over land use, Underwood said development can be less predictable for nearby residents "because property owners have broader rights in how their land can be used."

Looking ahead

As Baldwin County continues to grow, officials say zoning will likely remain a topic of discussion, particularly in areas experiencing increased development pressure.

"In areas that continue to see significant growth, I do expect zoning to be considered more often," Underwood said. "But ultimately, that decision will remain with the citizens in each district."

Simultaneously, several cities across Baldwin County have recently taken steps to slow development as they update long-term plans and infrastructure. Municipalities including Robertsdale, Foley, Orange Beach, Fairhope and Gulf Shores have enacted temporary moratoriums on certain types of residential development to reassess zoning regulations and capacity.

Local officials have said those pauses are intended to give cities time to evaluate infrastructure, update comprehensive plans and guide growth more deliberately as population increases continue.

Dickson said the county's role is to balance growth with maintaining quality of life while following state law.

Officials say understanding how zoning works — and where it applies — will remain an important part of how Baldwin County plans for the future.

Gabriella Chavez is a Report for America corps member who writes about growth and development in Baldwin County and our natural spaces for Gulf Coast Media. Your donation to match our RFA grant helps keep her writing stories like this one; please consider making a tax-deductible gift of any amount today by visiting https://tinyurl.com/yaf8yf5n.