In order to incorporate a city in 1946, there had to be at least 25 male registered voters residing in the area. Mr. Graham had twenty five families move into the apartment homes that he had converted in order to qualify the Village for incorporation. He then hired Willard Webb, a Miami Beach tax assessor, to draft a charter for the Village. After the charter was completed, the Village of Bal Harbour was incorporated on August 14, 1946, by Mr. Graham and 25 male registered voters. The Village was operated under the city manager form of government.