Graham attended the United States Naval Academy and served on numerous ships before being posted to the governorship.

[2] Later in his career, as a lieutenant commander, Graham headed the Department of Modern Languages at the United States Naval Academy.

After governor Graham explained the “Samoa for Samoans” policy of the Navy, Mau members were so impressed and discontinued their taxation efforts.

[5] Governor Graham recommended to the U.S. Navy's secretary that they adopt a patient and attentive approach to prevent conflict when engaging with the Mau movement.

A Samoan orator expressed that the community appreciated the Governor's willingness to meet and genuinely listen to them, contrasting with previous administrations that had treated them with disdain.