Seattle Moves To Ban Land Use Tactics That Create Food And Pharmacy Deserts

In a move aimed at increasing access to food and medicine, Mayor Bruce Harrell has introduced legislation to the Seattle City Council that would prohibit restrictive land use covenants blocking the future operation of grocery stores and pharmacies. The proposal comes as neighborhoods across Seattle face growing risks of becoming food and pharmacy deserts.

“When a company closes a grocery store or pharmacy, they can add a restrictive covenant into a property’s deed or lease that blocks a new grocery or pharmacy from locating at the same place,” Mayor Harrell said. “They do this to block competitors, and these actions harm neighborhoods and contribute to grocery and pharmacy deserts. Our legislation will make these restrictive covenants illegal in Seattle.”

Restrictive covenants, often used to limit competition, can remain in place for decades, leaving otherwise suitable properties off-limits for new essential retailers. At least two such covenants have been recorded in Seattle, restricting grocery store use for as long as 50 years. Industry consolidation and recent store closures—including the Fred Meyer in Lake City—have heightened concerns over new covenants deepening food and medicine access gaps in local communities.

The proposed legislation includes an emergency clause, ensuring it would take effect immediately upon the mayor’s signature. Council President Sara Nelson, who supports the measure, emphasized its urgency.

“Everyone deserves convenient access to grocery stores and pharmacies,” Nelson said. “This emergency legislation will help prevent the spread of ‘food deserts’ throughout Seattle by eliminating future inequitable restrictions that prevent grocery stores and pharmacies from moving into older properties.”

The effort builds on the mayor’s broader food and public health strategy. Earlier this month, Harrell announced nearly $12 million in proposed investments in his 2026 budget to expand food access. He is also calling on the state legislature to exempt grocery stores and pharmacies from the state’s Business & Occupation tax, recognizing their slim profit margins and community value.

Harrell’s budget also includes $1 million to address retail theft and property damage at grocery stores, funding to be administered through the Seattle Office of Economic Development.

Seattle’s Comprehensive Plan and recently updated Food Action Plan both identify convenient access to food and medicine as a public policy priority. The new legislation is intended to help meet those goals by reducing barriers for food and pharmacy providers to re-enter neighborhoods.

Experts and community leaders are voicing strong support.

“Restrictive covenants are yet another barrier to food and health access for Seattle’s communities,” said Dr. Yona Sipos, Associate Teaching Professor at the University of Washington School of Public Health. “With this proposed new legislation, the City is taking another important step toward creating healthier, more equitable neighborhoods. This smart, community-minded food policy reform may also inspire cities across the country.”

Bridget Igoe, Strategic Advisor for Food Policy at the Seattle Office of Sustainability & Environment, said the measure will help restore fairness. “Restrictive covenants that keep closing stores from being re-opened by new operators put anticompetitive corporate interests ahead of community needs,” she said. “By prohibiting these unfair land-use restrictions, we are strengthening food access, public health, competition, and community resilience.”

In neighborhoods already impacted, advocates see the legislation as essential.

“The University District has lost too many essential businesses in recent years and today we don’t even have a single pharmacy,” said Don Blakeney, Executive Director of the University District Partnership. “By lifting outdated restrictive covenants, we can clear needless barriers and welcome new pharmacies and grocery stores back into our community.”

Ilona Lohrey, President and CEO of GSBA, called the legislation a long-overdue step.

“GSBA is thrilled that Seattle has taken steps to eliminate restrictive covenants, an outdated provision from the redlining days that serves only to monopolize local markets,” she said. “These vacancies, which often occur in Seattle’s poorest neighborhoods, contribute to neighborhood blight, limit the growth of small businesses, and create food deserts. If passed, this legislation would bring local communities more freedom to build the retail infrastructure they need for success.”

Council President Nelson plans to schedule consideration of the legislation later this month.