De Graaf attended the City Gymnasium Nijmegen from April 1969 until May 1975 and applied at the Radboud University Nijmegen in June 1975 majoring in Law obtaining an Bachelor of Laws degree in June 1977 and worked as a student researcher before graduating with an Master of Laws degree in July 1981. De Graaf served on the Municipal Council of Nijmegen from May 1978 until April 1979. De Graaf worked as a researcher at the Radboud University Nijmegen and the Centre for Parliamentary History from July 1981 until September 1985. De Graaf worked as a civil servant for the Ministry of the Interior from September 1985 until May 1994 for the department for Law Enforcement from September 1985 until February 1986 and as Deputy Director-General of the department for Legislative Affairs from February 1986 until August 1988 and as Deputy Director-General of the department for Legal Affairs from August 1988 until September 1991 and as Deputy Director-General of the department for Law Enforcement from September 1991 until May 1994. De Graaf served on the Municipal Council of Leiden from April 1990 until May 1994.