A Tool for Maintaining Neighborhood Scale and Context
As Raleigh grows, many of our established neighborhoods are changing rapidly. You may have seen it on your own street: a modest bungalow or mid-century ranch is replaced by a new structure that significantly exceeds the surrounding scale—towering over neighbors, sitting closer to the sidewalk, or appearing on a lot that has been subdivided into two.
A Neighborhood Conservation Overlay District (NCOD) is a specific zoning tool in Raleigh’s Unified Development Ordinance (UDO) designed to prevent these conflicts. Rather than focusing on paint colors or architectural flourishes, an NCOD regulates the built environmental characteristics (height, setbacks, and lot sizes) that define the physical traits of a street. By applying tailored standards that are often more restrictive than base zoning, an NCOD ensures that new development remains compatible with the existing neighborhood framework.
Raleigh Examples
Because every neighborhood has a different “built inheritance,” the regulations for one NCOD might differ significantly from another. Raleigh currently has over 20 active districts. The first was implemented in 1990, while the most recent was approved in 2019.
1. Mordecai
Mordecai is divided into two districts to reflect different development patterns across the community.
- Conservation District 1: Larger lots with a minimum 35-foot front yard setback.
- Conservation District 2: Smaller lots with a maximum building height of 35 feet and a setback range of 15 to 25 feet.
2. Forest Park (Formerly Cameron Park)
In this historic neighborhood, the NCOD is designed to maintain the “street wall” and prevent auto-centric changes.
- Garages: No portion of a garage or carport may protrude beyond the primary facade of the house.
- Building Height: Generally capped at 34–38 feet.
3. North Ridge (West & Way)
In North Raleigh, the NCOD protects the low-density, mid-century profile.
- Minimum Lot Size: Lots must be at least 20,000 square feet (nearly half an acre) to prevent lot-splitting.
- Maximum Height: A strict 29-foot limit keeps the neighborhood’s lower height profile intact.
The Controversy: Preservation vs. Density
While NCODs are often favored by residents seeking stability, they can also be controversial in city-wide policy debates regarding housing supply and transit.
A current high-profile example is Rezoning Case Z-40-25 in Mordecai. A developer is seeking to remove two parcels—the historic Bryan-Lee Funeral Home (ca. 1920 Georgian Revival) and an adjacent parking lot—from the Mordecai 2 NCOD.
- The Conflict: Under the current NCOD, the site is limited to 35 feet and single-family scale. The developer is requesting a move to 4 stories (OX-4-CU) to allow for townhomes or higher-density apartment use.
- The Debate: Housing advocates argue that removing the NCOD allows for needed density near downtown and transit corridors. Some preservationists and neighbors argue that “chipping away” of NCOD parcels erodes the predictability of the neighborhood and threatens the scale of historic assets.
NCOD vs. HOD
It is important to remember that a Neighborhood Conservation Overlay District is not the same as an Historic Overlay District. They serve two different purposes:
| Feature | Neighborhood Conservation Overlay District (NCOD) | Historic Overlay District (HOD) |
| Primary Focus | Spatial scale and placement | History, architecture, and materials |
| Design Review | Standard city permits only | Requires a “Certificate of Appropriateness” |
| Materials | No regulation of colors/materials | Regulates siding, windows, and design |
| Demolition | No delay of demolition | Can delay demolition up to 365 days |
The Implementation Process
According to the Raleigh UDO Section 5.4.3, the creation of an NCOD is a rigorous, multi-step public process:
- Eligibility: The area must be at least 15 contiguous acres (unless an extension) and at least 75% of the lots must be developed.
- Neighborhood Application: Residents submit a petition to City Council. If approved, Council directs City Planning to conduct a “Built Character Study.”
- Built Character Study: City Planning analyzes existing lot sizes, frontages, setbacks, and heights to determine the “standard” characteristics of the neighborhood.
- Text Change: Council holds a public hearing to approve a “Text Change” that defines the specific rules for the new district.
- Official Rezoning: A formal rezoning petition is circulated. It must be signed by at least 51% of property owners in the area within four years of the Text Change approval.
Maintaining Context in a Growing City
Zoning is often seen as a technical hurdle, but for Raleigh’s established neighborhoods, the NCOD is an important form of preservation. It is one of the few tools that allows residents to define the “building envelope” of their own streets.
As our city continues to evolve and densify, the conversation around NCODs will only grow. Whether we are discussing the future of a historic property in Mordecai or the lot sizes in North Ridge, the goal remains the same: ensuring that Raleigh’s growth respects the physical characteristics that make each neighborhood unique. By maintaining context in a growing city, we ensure that progress doesn’t come at the cost of the very character that makes our neighborhoods worth living in.
Sources & Resources
- Interactive Map of NCODs: Raleigh NCOD Explorer
- UDO General Info: Overlay Districts in the Unified Development Ordinance
- Statewide Overview: Preservation NC: Understanding NCODs
- Official City Page: Character Preservation & Overlay Districts
- UDO Section 5.4.3: Detailed NCOD Regulations by Neighborhood
- Strategic Planning: 2024 NCOD Strategic Planning Document (PDF)
- Active Rezoning Document: Z-40-25: 831 Wake Forest Rd & 904 Mordecai Dr
Staff Analysis: RHDC Staff Memo on Z-40-25
