To confront the rising unaffordability of housing in Seattle, the government sought to implement Mandatory Housing Affordability. The hope was that through community engagement such as focus groups, that legislation would be representative of all.
Problems and Purpose
In order to confront the rising unaffordability of housing in Seattle, the government sought to implement Mandatory Housing Affordability (MHA). To engage the community in the process of developing MHA, the city created the Housing Affordability and Livability Agenda (HALA). The primary purpose of HALA was to engage with all residents of Seattle through community engagement in order to develop the MHA policy that would affect communities across the city in different ways. The hope was that through community engagement such as focus groups, that legislation would be representative of all including underrepresented and marginalized groups.
Background History and Context
In 2015, the city of Seattle was facing its worst affordability crisis in decades. The population had grown by more than 75,000 people in 5 years [1]. Additionally, over 45,000 households were spending more than half of their income on housing leading to a severe cost burden. In response, the City of Seattle sought to increase their supply of rent and income restricted housing through the creation of MHA. The city’s aim was to create 50,000 homes by 2025 including 20,000 affordable homes. Of those 20,000, the MHA would provide at least 6,000 new rent-restricted homes for households with income no higher than 60% of the area’s medium income[2]. MHA would give developers the choice between providing affordable housing or paying into a fund that Seattle’s housing office would use for the development of affordable housing.
With the exponential rise in the cost of living, the city sought a new vision for the city and elected Ed Murray as mayor in the 2013 mayoral election. Murray was elected in 2013 based on his progressive agenda and was deemed one of the most progressive mayors in the United States. In September of 2014, Ed Murray and City Council gathered Seattle leaders to develop an agenda for increasing the affordability and availability of housing within the city (HALA)[3]. In October of 2015, the council passed Resolution 31622, declaring its intent to consider many HALA recommendations [4]. The resolution established, for the first time, a 2-year work plan for community engagement and policy analysis to inform possible Council action on specific implementation steps to address HALA [5]. From 2015 to 2017 the city canvassed 10,000 homes, engaged in online dialogue through calls, emails and Reddit boards, and held almost 200 community events [6]. The city also hosted community focus groups which were central to community engagement and receiving feedback on MHA.
Organizing, Supporting, and Funding Entities
In the city's 2015-2016 proposed budget, $125,000 in funding was provided to support the development of HALA [7]. In the 2016 budget, the government spent $124,000 for HALA outreach and community engagement[8]. In 2016, $9,600 was provided to Sound Sage Puget and $99,968 to EnviroIssues Inc, for consultation, facilitation, and community outreach [9]. In the 2017 budget, the city allocated $125,000 to HALA which for outreach and engagement plan to help residents of Seattle understand HALA through mailers, large scale public events, telephone town halls, logistics, advertising, public outreach and engagement [10]. The city also hired Brock Howell as a consultant and provided $40,000 for a HALA engagement project [11]. For the community focus groups, Cedar River and Associates along with MAKERS, were hired by the city to organize, facilitate and document [12]. Facilitation for the focus groups were conducted by members of EnviroIssues Inc.
Participant Recruitment and Selection
The overall purpose of HALA was to engage with residents from all over Seattle whether it be through online forums or community events. When the city’s Department of Neighborhoods (DON) put out the call to participate, residents from mostly white North End neighborhoods opposed to MHA applied [13]. For most community outreach initiatives, it is normal for the majority of applicants to be from rich, educated, and primarily Caucasian background, therefore to address the lack of representation, DON reached out to community organizations, and 661 applications were received from individuals of various backgrounds from across the city[14]. Additionally, the selection committee met with Puget Sound Sage, an organization working to bring members of underrepresented groups into the focus group process, with the aim at welcoming diverse perspectives while further equipping traditionally underrepresented groups with experience and skills in government and community leadership [15]. Of the 181 selected, Puget Sound Sage recommended 10 people who had applied and incentivized them with small stipends. The selected participants were divided into 4 groups in which 4-6 members represented each of the villages.
All meetings were open to the public and were also broadcasted online to reach additional community members who could not directly participate. To ensure that there were no barriers for those who wanted to participate, the city provided accommodations as needed for transportation, translation, childcare, interpretation, and even small stipends for low-income participants [16].
Methods and Tools Used
The method used to guide this focus group was World Café which refers to a methodology for hosting conversations about relevant questions and themes[17].The tools and techniques used include Q&A periods [18], Roundtable discussions[19] and dynamic facilitation[20] which are often used in conjunction. The city chose these methods and tools because they wanted to encourage discourse and dialogue amongst all participants and ensure that it is representative of the community. There was no information provided as to why these methods and tools were selected in specific.
What Went On: Process, Interaction, and Participation
The participants of the focus group met once a month for 8 months in 2016. The meetings began with an introduction, then either a presentation on the focus of the month followed by a Q & A was conducted or small group discussions on a specific topic occurred [21]. Towards the end of the meeting, a time was reserved for observer comments, followed by a discussion of the contents of the next meeting.
The issues discussed varied depending on the month. In May the focus group reviewed the cities Race and Social Justice Initiative (RSJI) and the principles for implementing MHA followed by group discussions [22]. In June small group sharing on MHA implementation principles occurred. In July, the participants engaged in an open house to engage with city staff on MHA principles and had a large group discussion to share perspective[23]. In August, another open house took place to share final MHA implementation principles and had a large group discussion to review how HALA addresses displacement while soliciting feedback on alternative development [24]. In September the group reviewed zoning changes and discussed their opinions in small and large groups [25]. In October they participated in zoning map activities while considering a set of questions and discussing [26]. Finally, in November, the group had a Q&A on zoning maps and considered a set of questions for discussion.
There were complaints on the time that each participant got to express their concerns during focus groups [27]. Some conversations were overpowered by participants such as Toby Thaler, a longtime Fremont neighborhood activist, who stood up pointing his finger down at the seated audience and denounced the whole focus group process and suggested that the city chose people for the focus groups based on “some other criteria”. Jessica Brand, a city staffer for DON, explained that the city’s facilitators did not do a good job of challenging what people said [28]. She explained that the facilitators “just did not do a good job of challenging people when they said things like “you don’t know about this, I’ve been here forever”. In November, participants formulated a summary of focus group input on MHA zoning which were released online to the broader public. Additionally, principles agreed upon would be used to shape and evaluate MHA implementation choices in the coming months.
Influence, Outcomes, and Effects
The goal of the initiative did have its intended result which was to engage with the community to have constructive dialogue about affordable housing programs and other HALA recommendations. By the end of the focus group process, recommendations were made to the city by each group. The goal was not to come to a consensus but to provide feedback to the city on a matter of public policy which formed the basis of the legislation that was eventually drafted and passed. No information provided on the influence that this initiative had on others like it.
To implement MHA, the city sought community input on zoning changes in existing commercial and multifamily zones and in urban villages and centres. Based on the principles HALA created, the focus groups prepared draft MHA zoning maps for review and previewed an example urban village map. The feedback provided was then shared with city decision makers to guide MHA implementation.
Analysis and Lessons Learned
HALA community engagement was the first of its kind in Seattle. Over the span of 2 years, community events were held in every village to ensure there existed no barriers for residents to be able to participate. Online outreach ensured that people who could not attend in person could still contribute meaningfully to the experience. On the other hand, there were numerous complaints concerning the focus group facilitators which was one of the reasons for the drop off in participation over the months. Laura Bernstein, a University District activist who resigned from the focus group noted that she “got discouraged when she saw her group being dominated by the “observers” who were supposed to watch quietly and not participate” [29].There were also complaints by participants who stated that there needed to be more of an attempt to meet people where they are at with their knowledge on complex issues. Finally, Puget Sound Sage expressed concerns over the lack of stipends offered to participants. Although most applicants interested in the focus group were white homeowners, the city engaged with organizations who could help reach demographics who otherwise would have been underrepresented.
To ensure the impartiality of facilitators, future initiatives should incorporate training sessions. Puget Sound Sage argues that all their participants participated in the focus group until the end [30]. The organization accredits this to their meetings with the members as well as small stipends to ensure that people who otherwise would not be able to join can [31]. Giulia Pasciuto, a research analyst at Puget Sound Sage, said all 8 of Sage’s participants stuck with the focus group process but made it clear that sustaining a long term commitment has required some long term investment from her organization which provided small stipends for people who otherwise could not afford to spend two hours a month at meetings. There was no consensus to be reached by the group, however opinions on the initiative varied.
Comparing this case to “Community Engagement on Contra Costa’s Public Health Services” [32], yes, they both consult with organizations and disseminate information, there is a lack of information and education present within HALA’s MHA focus groups. The case identifies that the participants are educated on the subject matters in which they are examining. In comparison, according to residents, there was a lack of education on MHA and zoning laws and as a result, several members stopped attending meetings. If HALA could educate participants there could be more of a retention in participants. By working to meet the needs of residents and ensuring that equal representation remains present throughout the entirety of focus groups recommendations can be more representative of the entirety of the city.
References
[1] “Mandatory Housing Affordability- Citywide Implementation Director’s Report and Recommendation,” Government of Seattle (Seattle, Washington : Government of Seattle, February 2018), https://www.seattle.gov/Documents/Departments/HALA/Policy/Directors_Report_MHA_Citywide.pdf.
[2] “Seattle Housing Affordability and Livability Agenda Final Advisory Committee Recommendations to Mayor Edward B. Murray and the Seattle City Council,” 2015, pg.6, https://cedarrivergroup.com/crgwpf/wp-content/uploads/2015/07/HALA_Report_2015.pdf.
[3] Ibid., 7
[4] Ibid., 7
[5] Ibid.,7
[6] “Mandatory Housing Affordability-Community Input Summary,” HALA (Seattle, Washington: Housing Affordability and Livability Agenda Committee, November 2017), pg., 5, https://www.seattle.gov/Documents/Departments/HALA/Policy/MHA_FEIS/AppB_MHA_FEIS_2017.pdf#page=3.
[7] Ben Noble, “City of Seattle 2015 Adopted and 2016 Endorsed Budget,” Government of Seattle (Seattle, Washington: City of Seattle, 2016), https://www.seattle.gov/documents/departments/financedepartment/15adoptedbudget/budgetbook.pdf.
[8] “City of Seattle 2016 Adopted Budget,” Government of Seattle (Seattle, Washington: Government of Seattle, 2016), https://www.seattle.gov/documents/Departments/FinanceDepartment/16adoptedbudget/2016adoptedbudget.pdf.
[9] Russell Daveda and Porkalob Sara, “City of Seattle- Summit Purchase Orders for Consultant Contracts by Department,” Government of Seattle (Seattle, Washington: Government of Seattle, 2017), https://www.seattle.gov/Documents/Departments/FAS/PurchasingAndContracting/Consulting/Summit_ConsultantContract_POs.pdf.
[10] “City of Seattle 2017-2018 Proposed Budget,” City of Seattle (Seattle, Washington: Government of Seattle , 2017), https://www.seattle.gov/documents/departments/financedepartment/17proposedbudget/2017-2018proposedbudgetbook.pdf.
[11] Russell and Porkalob, Consultation Contracts, pg.55
[12] “HALA/MHA Neighborhood Workshops - MAKERS Architecture and Urban Design,” MAKERS architecture and urban design, September 15, 2022, https://www.makersarch.com/projects/hala-mha-neighborhood-workshops/.
[13] Erica Barnett, “Diminishing Returns at HALA Focus Groups ,” Soth Seattle Emerald”, November 4, 2016, https://publicola.com/2016/11/04/diminishing-returns-at-hala-focus-groups
[14] Barnett, Diminishing Returns at HALA Focus Groups, 2016
[15] Barnett, Diminishing Returns at HALA Focus Groups, 2016
[16] Mandatory Housing Affordability-Community Input Summary ,2017, pg., 14,
[17] Yuna Kim, “Conversation Cafés,” Participedia, 2025, https://participedia.net/method/conversation-cafs.
[18] Alli Welton , “Q&A Session – Participedia,” Participedia, April 2012, https://participedia.net/method/qa-with-experts-and-officials.
[19] Benjamin Stelzle, “Roundtable Discussion – Participedia,” Participedia, June 14, 2018, https://participedia.net/method/roundtable-discussion.
[20] Z Rosa, “Dynamic Facilitation – Participedia,” participedia.net (Participedia , March 2024), https://participedia.net/method/1692.
[21] “June Agenda,” Government of Seattle (Housing Affordability and Livability Agenda , 2016), https://web.archive.org/web/20170130095745/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/June/2016_06_HALA_FG_Expansion_Agenda.pdf.
[22] “May Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095902/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/May/2016_0523_HALA_FG_Expansion_Agenda.pdf.
[23] “July Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095736/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/July/2016_0711_HALA_Expansion_FG_Agenda_v3.pdf.
[24] “August Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095727/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/August/2016_0815_HALA_Expansion_Agenda_Final.pdf.
[25] “September Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095726/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/September/2016_0927%20HALA%20Focus%20Group%20September%20Meeting%20Agenda.pdf.
[26] “October Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095725/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/October/2016_1017_HALA_FG_Agenda_Expansion.pdf.
[27] “November Agenda,” Housing Affordability and Livability Agenda (Government of Seattle, 2016), https://web.archive.org/web/20170130095633/http://www.seattle.gov/Documents/Departments/HALA/FocusGroups/November/2016_1121_HALA_ExpansionFG_Agenda_Final.pdf.
[28] Ibid., 2016
[29] Ibid., 2016
[30] Ibid., 2016
[31] Ibid., 2016
[32] Abdulganyu Jimoh, “Community Engagement on Contra Costa’s Public Health Services – Participedia,” Participedia, March 2004, https://participedia.net/case/community-engagement-on-contra-costas-public-health-services.
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