Before his major league career, Baxter played junior ice hockey for Winnipeg in the Western Canada Hockey League (WCHL). The Cleveland Crusaders of the World Hockey Association (WHA) drafted the Winnipeg-born Baxter in the first round as the 11th overall pick of the 1974 WHA Amateur Draft, and signed him that July. The following year he was drafted by the Pittsburgh Penguins of the National Hockey League (NHL) in the third round as the 49th overall pick of the 1975 NHL Amateur Draft. Baxter joined the Quebec Nordiques of the WHA in 1976, and when the Nordiques joined the NHL, Baxter was made a priority selection by Quebec, preventing Pittsburgh from reclaiming him. He played a year in the NHL with the Nordiques, and later spent three years with the Penguins and another four with the Calgary Flames. He retired from the NHL after 470 games, recording a total of 48 goals, 121 assists, 169 points, and 1564 penalty minutes. Baxter is the all-time leader in penalty minutes for the WHA with 962, and is also the single-season leader for the Pittsburgh Penguins with 409 during the 1981–82 season.
Baxter continued his career as a coach, joining the Salt Lake Golden Eagles of the International Hockey League (IHL) to the Turner Cup title in 1987-88. He went on to become the assistant coach of multiple NHL clubs, including the Calgary Flames when they won the 1989 Stanley Cup.
Baxter coached the Wenatchee Wild of the North American Hockey League (NAHL) from 2008 until November 2010, leading the team to two division titles and a berth in the Robertson Cup in 2009. He then went to the Wichita Falls Wildcats of the NAHL as head coach, general manager, and part owner in May 2011. He left his operational positions with the Wildcats in October 2016 while remaining part owner. The team ceased operations at the end of the season.

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