Born in Brooklyn and educated there at the Polytechnic Institute, Baxter came to Syracuse in 1872 to study architecture at the newly established School of Fine Arts at Syracuse University. He opened an office here in 1883 and was associated with J. H. Kirby and E. M. Buell. Among his best work were the Everson Building and the Forence Flats in Syracuse (both demolished). He served as Treasurer of the Western New York State Association and was a member of the A.I.A.