Community Development Department – Planning Division
1600 First Street + P.O. Box 660
Napa, CA 94559-0660
(707) 257-9530
_________________________________________________________________________________________________
PLANNING COMMISSION STAFF REPORT
DECEMBER 2, 2021
AGENDA ITEM 6.A: File No. PL21-0120 – NAPA RIVER INN EXPANSION EXTENSION II
I. GENERAL INFORMATION
PROJECT
SUMMARY:
Request for a second, two-year extension of a previously approved Design Review Permit for an addition to the Napa River Inn
LOCATION OF
PROPERTY:
500 Main Street
APNs: 003-275-003, 003-275-004, 003-277-002, -003, -006, -008 GENERAL PLAN:
Downtown Core Commercial (DCC)
ZONING:
Downtown Core Commercial (DCC); Building Form Overlay (DT-II); Parking Exempt Overlay (PE); Planned Development Overlay (PD-1)
APPLICANT /
PROPERTY
OWNER:
Napa Mill, LLC
500 Main Street
Napa, CA 94559
Phone: (707) 251-8500
STAFF
PLANNER:
Michael Allen, Acting Planning Manager Phone: (707) 257-9530
LOCATION MAP
N
ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 2
II. PROJECT DESCRIPTION
The Applicant, Napa Mill, LLC is requesting a second, two-year extension of the previously approved Napa River Inn Expansion Design Review Permit (File No. PL11-0051). The project was originally approved on August 21, 2012, with an initial expiration date of August 21, 2019. The City Council approved the Design Review permit with an initial seven (7) year entitlement lifespan. The first extension was approved administratively on September 26, 2019 (PL19-009) which extended the entitlement to August 21, 2021. Although the expiration date has passed, the second extension application was submitted before the expiration date and is therefore automatically extended until the second extension request is acted upon. The Project approved the addition of 26 roo ms and associated amenities to the existing 66 room hotel located in the historic Napa Mill complex. A new three-story building would be constructed contain ing a spa, fitness center and potential commercial uses on the first floor and 16 hotel rooms on the second and third floors. Additionally, 10 rooms would be added in a third floor addition to the existing “Embarcadero” hotel building in the southwest portion of the site. The Project included multiple entitlements as described below. However, only the Design Review Permit has an expiration date which is in need of an extension.
The previous approvals included the following:
1. Design Review Permit for the new hotel building and third floor addition to the existing Embarcadero building;
2. An update/replacement of Planned Development Ordinance PD-1 adding the new hotel and additional floor to the Embarcadero building;
3. Abandonment of Main Street south of Fifth Street which is curr ently under an exclusive license for project parking; and
4. License Agreements for: (a) a portion of Fifth Street east of Main Street to extend its time frame and address project loading and parking; (b) a portion of Brown Street between Fifth and Division Streets to address parking and circulation; and (c) a portion of Brown Street between Fifth Street and Riverside Drive to provide an interim pedestrian walkway and oversize vehicle parking on the east side of the street.
FIGURE 1 – APPROVED NAPA RIVER INN EXPANSION BUILDING – FIFTH AND MAIN STREETS
ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 3
III. ORIGINAL PROJECT DESCRIPTION
The Napa River Inn Expansion Project (“Project”) proposes the addition of 26 rooms and associated amenities to an existing 66 room hotel located in the historic Napa Mill complex.
The project includes several components. A new three-story building would be constructed surrounding the existing spa building in the northwest corner of the site. This building would contain a spa, fitness center and potential commercial uses on the first floor and 16 hotel rooms on the second and third floors. An outdoor swimming pool would be located in the southwest corner of the building. Additionally, 10 rooms would be added in a third floor addition to the existing “Embarcadero” hotel building in the southwest portion of the site.
Parking would be provided in the onsite parking lot, including in the Brown and Fifth Street rights-of-way which would be licensed by the City for use by the Napa Mill complex and Napa River Inn, and in the Fifth Street parking garage where spaces have been reserved by the property owner.
IV. ANALYSIS
A. GENERAL PLAN CONSISTENCY
The project was determined by Staff to be complete in March 15, 2012 prior to adoption of the Downtown Specific Plan (DSP). Therefore, although the project was not required to comply with the DSP, the application was previously determined by Staff to generally meet the land use and property development requirements contained in the DSP and, in particular, the new Downtown Core Commercial (DCC) land use designation and zoning district. Only minor v ariations from the DSP were approved through the Planned Development (“PD”) zoning process described later in this report. The PD zoning was tailored to be consistent with the uses contained in the DSP, illustrating the Applicant’s commitment to the vision for Downtown Napa.
Applicable policies contained in the City’s General Plan relating to this project are listed below.
• Promote the continued rehabilitation and reuse of historic downtown structures through financial assistance packages and other mechanisms (LU-6.3). • Promote riverfront development that reorients downtown to the Napa River (LU -
6.4).
• Provide for development of hotel and conference facilities in the downtown area and to tie the facility to downtown and riverfront restoration through phys ical improvements (LU-6.5).
• Enhance public access to the downtown, including a stronger link to downtown residential neighborhoods through, among other things, pedestrian and bike trails along the river (LU-6.6).
• Promote 24 hour activity in the downtown (LU-6.7).
• Promote integration of public open space with adjacent private business to create active environments (LU-6.9).
• Support development of public amenities along the riverfront such as parks, plazas, trails, docks and landscaping (LU-6.10).
This project is an example of the type of development that helps implement these General Plan policies. The project is part of the Napa Mill complex, a historic mill site located along ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 4
the Napa River that was converted to a successful, pedestrian -oriented hotel and commercial complex in the early 2000’s. The Napa Mill was one of the earliest downtown reuse projects along the riverfront that established a high level of quality improvements and reorientation of uses toward the river. The project also contains a mix of uses, including restaurants, entertainment, a hotel and public art that have helped to revitalize the riverfront area of downtown. Flood Control improvements have been well integrated into the project, including a public river trail around the pr oject and a public plaza. The proposed Napa River Inn Expansion Project will further enhance this quality and improve the long term economic viability of the Napa Mill complex; thus, strengthening the continued vibrant reuse of the site into the future.
The project is within the Downtown Specific Plan’s Downtown Core Commercial (DCC) land use designation where the primary described intent is to promote the continued development and revitalization of the pedestrian -oriented district as a shopping and visitor-serving area and the center of the Napa community. New development should preserve the City’s historic heritage and provide a mix of land uses including retail shops, restaurants, entertainment and hotels that draw people downtown during the day, evening and on weekends and offer visitors and locals alike a pleasant pedestrian experience and outdoor gathering spaces.
The Napa Mill complex has been successful in helping the City meet the goal of transforming largely abandoned historic brick buildings and warehouses into a vibrant mix of uses. The property owner was also instrumental in working with the Flood District, Army Corps, Friends of the Napa River, and others in a collaborative effort to construct a riverfront trail around the entire complex. The existing historic buildings and proposed new addition were developed consistent with the Secretary of the Interior standards for historic design, use quality materials and are pedestrian oriented.
The Napa River Inn Expansion Project proposes to strengthe n the existing Napa Mill complex by adding 26 hotel rooms and associated amenities to the existing hotel, as well as to provide a small amount of additional retail and/or restaurant space to provide an appropriate balance of uses on the site.
B. ZONING
In 1993 PD Ordinance O93-037 established project uses to be developed in two phases and conditions of approval which appl y to the six parcels that comprise the Napa Mill complex (APN’s: 003-275-003, -004, 003-277-002, -003, -006, -008). That PD approved the Phase 1 project and a concept for Phase 2, which awaited further clarity with the proposed Flood Control Project and on soils mitigation. PD Ordinance O98-001 updated and replaced the conditions of approval from 1993 and approved Phase 2 of the Na pa Mill Project. The 1998 PD Ordinance has resulted in the current mix of hotel and commercial and entertainment uses and public spaces on the site.
The specific purposes of the Planned Development Overlay District (NMC Chapter 17.42) are to encourage hig h quality, innovative and creative development design, and possibilities for varied or mixed uses consistent with the General Plan by allowing flexibility in underlying zoning standards. The Overlay district also provides a mechanism for preserving open sp ace, natural and historic features, while continuing to permit efficient use of land. Variations in development regulations such as setbacks, yards, ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 5
height limitations, street standards, parking and loading, landscaping, open space and lot area are allowed with a PD Ordinance, as well as shifting uses between “conditional” (i.e., requiring approval of a conditional use permit) and “permitted” categories.
The 2012 PD Ordinance supersedes the previous two PD Ordinances which applies to the entire Napa Mill complex. The PD Ordinance shift s certain existing uses on the property such as the hotel and nightclub from “conditional” to “permitted” uses consistent with its earlier PD Ordinances and includes v ariations in parking, loading and street standards. The PD Ordinance also updated prior conditions of approval and incorporated only those conditions that are applicable to the existing and proposed new project.
Previous conditions that are no longer applicable to the site were eliminated by the 2012 PD Ordinance.
C. PARKING
The existing project parking demand is met through the existing onsite parking lot, plus spaces in the garage that replaced a previous shared parking agreement. Based on Staff’s analysis of the parking demand study prepared for the project, the project generates the need for 75 additional spaces (39 spaces lost with the construction of the new hotel building in the northwest portion of the site and 36 spaces generated by the expansion of the hotel and associated uses). This impact is reduced by 15 spaces as provided in the shared parking analysis. The resultant demand for 60 spaces is met by the Applicant through the provision of 47 spaces reserved for the Napa Mill project in the Fifth Street garage and 15 to 30 spaces (daytime/times when the library is not open) on Brown Street approved through the 2012 license agreement. The Napa Mill properties are within the Parking Exempt Overlay (PE) district. Commercial development is not required to provide on-site parking, but rather payment of a fee for the parking that would be required by the development. Napa Municipal Code Section 17.44.030.C requires a use permit to establish on -site parking for a development within the PE district in lieu of paying the established fees. When the Napa Mill development was originally approved, it was not within the PE district and the project provided parking as required at that time.
Now that the Napa Mill properties are within the PE district, the existing parking is now considered to be legal non -conforming since a use permit was not granted for its construction. The 2012 PD Ordinance made the existing parking lot, along with the newly proposed parking spaces a permitted use.
D. DESIGN REVIEW
Design Review is required for new commercial construction. The project proposes a new 16,071 square foot three-story building in the northwest corner of the Napa Mill parking lot.
A 6,020 square foot third -floor addition is also proposed for the existing E mbarcadero building in the southwest portion of the site. The new building provides design elements indicative of a “Second Empire” Victorian such as the mansard roof that encompasses the third floor including several tower elements. The mansard roof will be clad with corrugated metal seam material to complement the corrugated metal seam roof and walls of the Napa Mill buildings. The first two floors will be sided with brick which also complements the brick construction of the Napa Mill and the existing floors of the Embarcadero building. The third floor addition to the Embarcadero building will also be clad in a corrugated metal seam mansard roof. Windows and balconies will be provided through dormers that protrude from the mansard roof (see building elevations in PC Staff report; Attachment 3).
ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 6
The principles of the Soscol Corridor Design Guidelines recommend projects respect adjacent development and provide comfortable environments. Key design concepts should include:
- Buildings should have a defined base, a clear pattern of openings and surface features and a recognizable entry.
The new hotel building will provide a well-defined base of brick which will extend over the first two floors. The brick construction is intended to relate to the existing Napa M ill and Embarcadero buildings which are also constructed with brick. The brick construction provides a sense of permanence and quality. The main entrance is clearly defined by a porch flanked by brick pillars extending up to the third floor. The secondary entrance has a similar, yet subordinate entrance treatment. A cantilevered metal seam awning is a proposed surface feature that also helps to distinguish the first floor from the second floor.
The proposed new awning will emulate the existing awning on the northwest corner of the Napa Mill.
- The palate of wall materials should be kept to a minimum, preferably a maximum of two.
Pilasters, columns, and cornices should be used to add visual interest.
The building is comprised of a brick body with a corrugated metal seam mansard encompassing the third floor and roof. The pillars at the two entrances will be crowned with plaster pinnacles. Cast limestone textured accents, brushed metal finished windows and balcony railings are proposed on the third floor and bro nze window frames and balcony railing will be used on the second floor to accent the walls. The building walls also include vertical plane breaks which add to the visual interest.
- Materials and Color: The Guidelines call for an enduring image of quality and durability in materials and color.
Earth tone colors and natural materials are used throughout the building. This building’s style provides a traditional appearance intended to relate to the historic Napa Mill, but is more elegant than a simple replica of the mill. The design contains materials that are found on the mill, yet its variety of materials and forms lend a subtle elegance that will not overpower the surrounding landscape.
Based on the analysis above, Staff has determined that the project is consistent with the Soscol Corridor Design Guidelines and compatible with the existing Napa Mill buildings.
VI. ENVIRONMENTAL REVIEW
Staff recommends that the Planning Commission determine that the Extension is exempt from the requirements of CEQA similarly to the original Project, pursuant to Section 15332 of the CEQA Guidelines (Categorical Exemptions; Class 11 and 32), which exempts infill development projects.
The exceptions to categorical exemptions identified in Section 15300.2 of the CEQA Guidelines are inapplicable because the land is in an urbanized area with no environmentally sensitive habitats or species of concern on the property, there has been no successive effort to intensify land uses in the area, and no unusual circumstances ATTACHMENT 2
PL21-0120 – Napa River Inn Expansion Extension II 7
exist that would pose a reasonable possibility of having a significant effect on the environment, and the project does not involve or affect histor ic resources. Based on this analysis, no significant environmental effects would result from this project and the use of categorical exemptions is appropriate.
VII. REQUIRED FINDINGS
Since the circumstances upon which the original approvals were based have not substantially changed, the project remains in compliance with the required findings in NMC Section 17.62.080 relating to Design Review Permits . These findings are provided in Resolution No. R2012-112, included as Attachment 2 of this Report.
VIII. PUBLIC NOTICE
Notice of the scheduled public hearing was provided on November 17, 2021, by US Postal Service to all property owners within a 500 -foot radius of the subject property. Notice of the public hearing was also published in the Napa Valley Register on November 19, 2021 and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication. The Applicant was also provided a copy of this report and the associated attachments in advance of the public hearing on the project.
IX. STAFF RECOMMENDATION
Staff recommends that the Planning Commission forward a recommendation to the City Council to adopt a resolution : (1) determin ing that the project is exempt from CEQA pursuant to Section 15332 of the CEQA Guidelines; and (2) approving a second two-year extension of a previousl y approved Des ign Review Permit for the Napa River Inn Expansion.
X. ALTERNATIVE TO RECOMMENDATION
1. Recommend denial of the proposed extension.
XI. DOCUMENTS ATTACHED
ATCH 1 - Draft City Council Resolution for Extension
ATCH 2 - Previously Adopted Resolution R2012-112
ATCH 3 - Applicants Letter Requesting an Extension
ATCH 4 - Approved Project Plans
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
This application by the Napa River Inn is requesting a two -year extension of the Design Review approval which authorized a new three -story hotel in the northwest corner of the property and a third-floor addition to the existing Embarcadero building in the southwest portion of the site.
The new 16,071 square foot hotel building is to be constructed surrounding the existing spa building in the northwest corner of the site. This building will contain a spa, fitness center and potential commercial uses on the first floor and 16 hotel rooms on the second and third floors. An outdoor swimming pool would be located in the southwest corner of the building.
Additionally, a 6,020 square foot third floor addition was approved for the existing Embarcadero building which will provide 10 guest rooms. No changes to the design review approval are proposed with this extension request.
The original approvals included an update to the Planned Development Overlay, a Comprehensive Sign Program, Lot line Adjustment and a license agreement to address parking requirements. As the Planned Development is a Zoning Overlay no extension is required. The Comprehensive Sign Program has already been implemented and as such, no extension is required. The approved Lot Line Adjust has expired and the applicant is no longer requesting the adjustment. The license agreement will be completed at some future date and is not required for the purposes of the design review extension request.
The design review approval extension is requested beca use of the recent restrictions placed on hotel operators associated with the Covid 19 outbreak. T he operators of the Napa River Inn are unable to complete the construction of the approved additions at this time and are requesting additional time to complete the proposed hotel additions.
The applicant believes that the extension should be approved as the required findings from the original design review permit remain valid and that the application has been submitted prior to the project expiration.
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
ATTACHMENT 2
Plann
ing Commission Regular Meeting Minutes Excerpts for December 2, 2021 Page 1 of 2 PL
ANNING CO
MMISSION
RE
GULAR ME
ETING MI
NUTES EX
CERPTS
D
ECEMBER 2, 2021
MEE
TING CAN BE VIEWED BY CLICKING HERE
1. C
ALL TO ORDER: 5:30 P.M.
A.
R
OLL CALL: C
ommissioners – Kelley, Oñate, Huether, Hurtado, Massaro ABSENT: None
STAFF: Community Development – Vin Smith, Michael Allen, Steve Rosen, Bond Mendez, Neal Harrison, Patty Baring, Jess Shue, Kasey Lyons
City Attorney’s Office – Sabrina Wolfson
2. PLEDGE OF ALLEGIANCE
3. AGENDA REVIEW AND SUPPLEMENTAL REPORTS
No changes were made to the Agenda.
4. PUBLIC COMMENT
There were no requests to speak.
5. CONSENT CALENDAR
A. PLANNING COMMISSION MINUTES
Consideration of Planning Commission Regular Meeting Minutes for November 18, 2021.
Vice-Chair Oñate commented that he received an email from one of the speakers at the November 18, 2021 Planning Commission Meeting clarifying the required retention of 90 days for surveillance videos at Cannabis Dispensary establishments.
Commissioners Oñate and Hurtado moved and seconded to approve the Consent Calendar as submitted.
Motion carrie
d:
AYES: Kelley, Oñate, Hurtado, Massaro
NOES:
ABSENT:
ABSTAIN: Huether
RECUSED:
6. CONSENT HEARINGS
A. NAPA RIVER INN EXPANSION EXTENSION II – 500 MAIN STREET (PL21-0120) Application for a second two-year extension of a previously approved Design Review Permit for the Napa River Inn Expansion. The previously approved project (PL11-0051 & PL19-0099) includes the addition of 16 hotel rooms in a new three-story building also containing a hotel spa expansion, a fitness center and/or meeting ATTACHMENT 2
Plann
ing Commission Regular Meeting Minutes Excerpts for December 2, 2021 Page 2 of 2 r
oom and swimming pool, and commercial space for retail or restaurant use, including an additional 10 rooms in a third -floor addition to the existing embarcadero building. The project site is located at the southern terminus of Main Street, southeast of the intersection of Brown Street and Fifth Street within the DC-486, Downtown Core Commercial General Plan designation and the DCC, Downtown Core Commercial Zoning District (APNs: 003-275-003, -004, 003-277-002, -003, -006, -008) (Allen)
CEQA DETERMINATION: The proposed project is exempt from the California Environmental Quality Act (CEQA) pursuant to Section 15332 which exempts in-fill development projects.
RECOMMENDED ACTION: Adopt a resolution approving a second, two -year extension of the Design Review Permit for the Napa River Inn Expansion at 500 Main Street and determining the project is exempt from CEQA.
Commissioners Huether and Oñate moved and seconded to ap prove the consent hearing s as submitted.
Motio
n carried:
AYES: Kelley, Oñate, Huether, Hurtado, Massaro
NOES:
ABSENT:
ABSTAIN:
RECUSED:
7. COMMENTS BY COMMISSIONERS AND STAFF
Chair Kelley expressed gratitude for the Commission and Staff getting through the year affected by the pandemic, with which hearings were held on Zoom at the beginning and the progression to in -person meetings.
Acting Planning Manager Michael Allen reminded the Commission that applicatio ns for the three open Planning Commissioner seats are due Friday, December 3, 2021 at 5:00 p.m. to the City Clerk.
10. ADJOURNMENT
The meeting was adjourned at 8:56 pm. The next regular meeting of the Planning Commission is scheduled for December 16, 2021 at 5:30 pm.
_________________________________
Vin Smith, Secretary
COMMUNITY DEVELOPMENT DEPARTMENT
ATTACHMENT 2