Community Development Department
–
Planning Division
1600 First Street + P.O. Box 660
Napa, CA 94559
-
0660
(707) 257
-
9530
_________________________________________________________________________________________________
PLANNING
COMMISSION
STAFF
REPORT
J
ANUARY
19 , 20
23 AGENDA ITEM
8.B
PL
2 2
-
0 055
–
NAPA PIPE
-
BRO
O
KFIELD
TENTATIVE
SUBDIVISION
MAP
I.
GENERAL
INFORMATION
PROJECT
SUMMARY:
Tentative
Subdivision
M
ap
implementing a portion of the Napa Pipe
Development Plan
(
Blocks 16, 19 & 22
)
creating
79 -
single family
parce
ls
LOCATION OF
PROPERTY:
Portions of 046
-
400
-
054 & 046
-
412
-
006
GENERAL PLAN:
ZONING:
APPLICANT
:
NP
-
MU (Napa Pipe
-
Mixed Use)
NP
-
MUR
-
W
:
AC
(Napa Pipe
-
Mixed
Use Residential
-
Waterfront:
Airport Compatibility
)
Brookfield Bay Area Holdings
, LLC Phone:
(
925
)
314
-
4051
12657 Alcosta
B
oulevard
, Ste
.
250
San Ramon, CA
94582
PROPERTY
OWNER:
STAFF PLANNER:
Napa Redevelopment Partners, LLC
Phone: (
510
)
267
-
3400
66 Franklin Street, Suite 200
Oakland, CA 94607
Lori
MacNab, Contract Planner Phone: (707)
257
-
9530
LOCATION MAP
ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
2 II.
PROJECT DESCRIPTION
The
Applicant
, Brookfield Bay Area Holdings, LLC
has submitted
a
Tentative Map
a
pplication to
create 79
-
single family lots
to be constructed
on three blocks
(16, 19 & 22)
created b
y
the Napa Pipe Redevelopment Tentative Map
. The development is the first
residential development to
be considered in
the Napa
Pipe
D
evelopment
Area
.
Th
is
subdivision implements a portion of Phase
1 of the Napa Pipe Development Plan
as
directed by the Second Amendment to
and First Restatement of the Napa Pipe
Development Agreement with the
Napa Redevelopment Partners, LLC
.
Phase 1
is a
91 -
acre
tract of la
nd east of the railroad tracks
within the Napa Pipe
Development Plan. Phase 1
includes
up to
350 market
rate and
moderate
-
income
residential units,
70 affordable
housing units
, office and warehouse space
s
and a
Membership
Warehouse Store (Costco)
.
Brookfield home
s
is proposing to develop the three blocks with
alley loaded single family
detached units. Two of the blocks wi
ll
feature
units fronting onto a garden court and one
block will feature
a linear park
designated by the Napa Pipe Development Plan.
The
proposed lots range in size from
2,
780 square feet to 3,235 square feet. The
79 -
units will
be divided onto three
blocks as follows:
Block 16:
28 units and a Garden Court
Block 19:
28 units and a
Garden Court
Block 22:
23 units and a Linear Park
III.
BACKGROUND
The Napa Pipe property is approximately 154 acres in size, generally located near 1025 Kaiser Road, south of Kaiser Road and east of the Napa River (Assessor’s Parcel Numbers
046
-
400
-
054, 046
-
400
-
055, 046
-
412
-
006 and 046
-
412
-
007).
It was annexed to
the City of Napa in two phases, in 2015 and 20
20 . Prior to its annexation, in
January
2013, the Napa County Board of Supervisors (“Board”) certified an Environmental Impact report
for the Napa Pipe Project (“Napa Pipe Project EIR” or “EIR”), followed by adopting a General Plan amendment and rezoning the property in June 2013 to redevelop the site
for housing and commercial uses adjacent to the
Napa River
.
The
Board also
executed
a
M
emorandum of Understanding (“MOU”)
with the City of Napa
which outlined how the
two jurisdictions
would
work
together to implement the Napa Pipe Project.
In late 2014 and early
2015
,
the County of Napa
approved a Master Tentative Map,
a
Development Plan, Design Guidelines
,
and
executed a
Development Agreement
to
guide
development of the
154
-
acre property
.
Th
is
original plan for development
called for the
following:
On the 63
-
acre parcel west of the
railroad tracks
•
up to 945 residential units
•
150
-
unit 225
-
bed senior/assisted living facility
•
40,000 sq. ft. of neighborhood
-
serving retail and restaurant uses
•
25,600 sq. ft. of community
-
serving uses and offices
•
150
-
room hotel.
ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
3 On the 91
-
acre parcel east of the railroad tracks
•
154,000 sq. ft. for a Costco wholesale store
•
165,000 sq. ft. of office, warehousing and other light industrial uses
•
5 -
acre community farm
•
19 acres of undesignated industrial uses classified as a future “study area”.
In 2018,
following the 2015 annexation of the 91
-
acre parcel east of the railroad tracks,
the Applicant filed applications with the City
of Napa
to make changes to the approved
project
, including amendments to the approved Master Map
, Development Plan, Design
Guidelines,
and associated Development Agreement.
The proposed
amendments
moved
more of the
residential
development to the east side of the railroad
and added parkland.
T
he key components of the approved project, with the land uses remain generally the same. The
currently
approved and proposed mix of land uses
now
includes:
Phase 1:
On the 91
-
acre parcel east of the railroad tracks
•
Up to 350 market rate and moderate
-
inco
me residential units
•
Up to 70 low and very low
-
income residential units
•
90,000 square feet of office space and 75,000 of warehouse space
•
A membership Warehouse store
Phase 2:
On the 63
-
acre parcel west of the railroad tracks
•
Up to
455
market rate and mod
erate
-
income residential units
•
Up to 70 low and very low
-
income residential units
•
40,000 square feet ground floor neighborhood serving retail
•
150
-
unit hotel
•
Allowance for a congregate care facility
The 2018 application
s
were appr
oved in January 2020
through
Resolution R2020
-
013
, and
the
remain
der of the Napa Pipe property was also annexed into the City in 2020. The entirety of
the future
Napa Pipe neighborhood
is now
within the City of Napa City Limit
and
is anticipate
d
to be developed within three p
hases over the next 18 years.
Tentative Map and Plan Review Processes
Under Napa Pipe Development
Agreement
The Napa Pipe Development Agreement (“DA”)
modifies the normal City processes
for
certain types of
parcel
-
specific development
applications
within the project
. Gene
rally
speaking, the DA provides for administrative (staff
-
level) review and approval of
improvement plans
for residential
and non
-
residential
structures based on conformance
with the approve
d Development Plan and Design Guidelines
,
modifying
the normal design
review
process
set forth in
Chapter 17.62 of the Napa Municipal Code.
In addition, the DA
provides that the approved Master Map satisfies the requirement in NMC Section
16. 12.010.C for a
“conceptual map”, and further provides that all future tentative map applications for the project be consistent with the approved Master Tentative Map (as amended in 2020) and other project approvals.
ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
4 I
V
.
ANALYSIS
A.
GENERAL PLAN
The property is located within the
NP
-
MU
;
Napa Pipe Mixed Use
General Plan
designation, which
envisions a diverse mixed
-
use
neighborhood
adjacent to the Napa
River.
The adopted Development Plan implements the
General Plan vision
and specifies
assumed
densities for
each residential
block
.
The Napa Pipe
-
Brookfield
t
entative map is
proposed for block
s 16, 19 and 22
, with
79 units
and is
consistent with the General Plan.
While the City of Napa recently adopted a new
2040
General Plan, the Develop
ment
Agreement for Napa Pipe was reviewed and approved under the previous General Plan .
The following analysis
i
s a review of policies from
the Napa 2020 General Plan, adopted
in 1998.
The
Napa Pipe
-
Brookfield project
is
consistent with
several policies and principles of the
2020
General Plan
1 , including policies that encourage the
creative and efficient use of
vacant land along with providing an increased mix of various
types of housing throughout
the City to meet the community’s housin
g needs.
Specifically, the project is consistent
with the following
policies:
Land Use Element Policy
-
LU
-
3.4:
The City shall provide for the efficient development
and redevelopment of land within the RUL in order to allow job and housing growth through t
he end of the planning period.
The proposed tentative map is implementing a portion of the Napa Pipe Development Plan which rezoned industrial lands to enable the building of a mixed used community within the Rural Urban Limit.
Land Use Element
Policy
-
LU
-
1.2:
The City shall strive to preserve and enhance the
integrity of existing neighborhoods and to develop new neighborhoods with similar qualities as the existing neighborhoods.
The Napa Pipe Development Plan creates a blueprint for a new neigh borhood near the
Napa River which has open spaces, trails and commercial spaces. The proposed tentative map implements a portion of the new neighborhood which aims to create an enduring community.
Housing Policy
-
H1.1
:
Efficient Use of Land. The City shal
l promote creative and efficient
use of vacant and built on land within its RUL to help maintain the City’s preeminent agricultural environment and open space.
The Development of the Napa Pipe neighborhood with up to 945 new homes will promote the develop
ment of compact neighborhoods which reduces the demand to develop surrounding agricultural and open space lands.
1 The project was deemed complete prior to adoption of the 2040 General Plan, therefore is subject to
the 2020 General Plan.
ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
5 B.
ZONING
The
proposed tentative map
is within the NP
-
MUR
-
W
-
AC
(Napa Pipe Mixed Use
Residential
-
Waterfront Airport Compatibility
)
zoning designation of the Napa Pipe plan
.
Th
is
district
is characterized by residential blocks and a network of park and open spaces.
There are a range of
residential
units anticipated for the Napa Pipe neighborhood.
The
development standards for the subje
ct tentative map
are
found
both
in
the Single Family
-
Napa Pipe Design Guidelines
and the Napa Pipe Development Plan
.
As summarized in
table below
, the proposed development complies with the
NP
-
MUR
-
W
development
standards
outlined in the
relevant
documents
(
see
Singl
e
Family Micro
-
Lot
excerpts of the
Napa Pipe D
esign Guidelines ATTACHMENT
3 )
.
TABLE
1 –
NAPA PIPE DEVELOPMENT STANDARDS
Napa Pipe Development Standards
Napa Pipe Design
Guidelines
, Micro
-
Lot
Brookfield Proposed
Height
40 feet
24’
11” to 34’ 10”
Lot Size
1,400
-
3,900 Square feet
2,780
-
3,235 Square Feet
Set
-
backs
3 -
Min, 10
-
max
3’ and 5’
Lot Coverage
63%
51%
-
61%
For reference, t
he
approved
single
-
family homes
will be
2 -
story with a 3
-
story bonus room
option and range in size from 2,342 to 2,910 square feet. If the optional 3rd story is implemented, the increase in size is approximately 200 square feet per home. 237 parking spaces
will be provided
consistent with the N
apa Pipe Development Plan. Each unit will
have two garage spaces with the balance of parking on the public street and 7 off -
street
guest spaces on block 22.
Density
T
he
various
blocks of the Napa Pipe Development Plan have assumed development capacity over the entire Napa Pipe Development Plan. Some variation in unit counts per block is expected and that is not intended to act as a density requirement , However,
t
otal
counts will not exceed the cap of 945 units
f
or the entire Napa Pipe
Development Area
,
and
will not exceed
420 units for
P
hase
I
.
As
t
entative
m
aps are ev
aluated,
S
taff will track
the number of units built so the maximum number of units allowed in the Development Agreement is not exceeded.
TABLE
2 –
NAPA PIPE DE
NSITIES
Napa Pipe Allowable Density
Napa Pipe Development Plan
,
block to be developed
N
apa
P
ipe
Assumed
Unit Count
Proposed
Unit
Block 16
24 28
Block 19
24 28
Block 22
21 24
Total
69 79
ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
6 C
.
TENTATIVE MAP
The
Napa Pipe Brookfield Tentative Map, Blocks 16, 19 and 22
is to be reviewed per
NMC
Chapter
16.20 , Tentative Maps
,
and the Napa Pipe Development Plan
(
see
Development Plan excerpts,
ATTACHMENT
4 )
.
Staff has reviewed the
subject map
against the
Napa Pipe
Development
A
greement, the Napa Pipe Design
G
uidelines
, the
Napa Pipe Develop
ment Plan
, and the municipal code relating to
subdivisions
. The
proposed map meets all necessary development standards.
The findings for the tentative
map are enumerated in the
resolution together with the conditions required to approve the tentative map.
FIGURE 1
–
PROPOSED
T
ENTATIVE MAP
FIGURE
2 –
PROPOSED
DEVELOPMENT PLAN
Section 16.04.090.B of the City’s
Subdivision Code requires subdivisions be subject to
design review in accordance with NMC Chapter 17.62.
Under Section 17.62.050, for
subdivision of five (5) or more lots, the proposed architectural improvements are subject to design review by the City Cou
ncil. As noted above, however, through the DA, the City Council delegated the authority for architectural design review for Napa Pipe residential subdivisions to the Community Development Director, who previously approved the ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
7 architectural design review fo
r
the proposed homes
on November 18, 202
2 .
Therefore, the
only remaining component of the Chapter 17.62 design review is the design of the subdivision map itself.
The Tentative Map has been designed to provide access to the proposed lots from new
streets that will be constructed
according to the amended
Master Map approved by the City
Council in 2020 (R2020
-
013)
.
Access alleys provide vehicular “motor courts” servin
g all
new homes. This configuration is consistent with the approved Development Plan and Design Guidelines which provide very specific development layouts per block .
D
.
DEV
ELOPMENT AGREEMENT CONSISTENCY
The
D
A
between the City and Napa
Redevelopment Partners LLC
establishes various rules
and regulations for development of the Napa Pipe property over
the
next 18 years. There
are many public benefits that
will come as the neighborhood development. The phasing
plan and affordable housing pl
an
outline when such things as open spaces and
moderate
-
income
housing units will be built.
No
moderate
-
income
units will be built with this tentative
ma
p, but t
he
Napa Pipe Brookfield Tentative Map, Blocks 16, 19 and 22
does
implement
the following
components:
Open Space
:
Open Space element P12,
East Collector Park will be built with this Tentative
Map, consistent with the
Open Space Phasing Plan approved through the DA.
Transportation: Through the conditions of approval, the developer will pay the ir
required
transportation fees to go toward Napa Pipe
road and intersection improvements
Stormwater:
The proposed
Tentative Map has an erosion and sediment control plan that has been reviewed by City
S
taff.
V
.
PUBLIC NOTICE AND COMMENT
Notice that this application was received was provided by the City on April 27, 2022
and
notice of the scheduled public hearing was provided on
January
5 ,
2023
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
January 6, 2
023.
The l
egal notice included a general
explanation of the matter to be considered and any
related permits, identification of
the location
of the property involved where site specific,
a description of the date, time and
place of the public hearing, the i
dentity of the hearing
body, and a statement consistent
with the Code of Civil Procedure regarding the time limit to commence any legal
challenge and matters that may be raised by such challenge. The Applicant was also
provided a copy of the report and att
achments prior to the meeting
.
VI
. ENVIRONMENTAL REVIEW
In January 2013, the Napa County Board of Supervisors certified an EIR for the Napa Pipe Project. In its EIR, the County identified the City of Napa as a “responsible agency” that would be required to take certain actions to implement the Project. Suppleme ntal
environmental reviews and addenda were prepared (including a City adopted addendum s
in 2014
and 2020
) in connection with earlier project reviews and approvals .
Under
CEQA’s
implementing regulations, also known as the “CEQA Guidelines,” a responsible ATTACHMENT 5
PL
22 -
0055
–
N
apa Pipe
Brookfield Tentative Subdivision Map
8 a
gency acting to implement a project that has been the subject of a certified EIR may prepare an “initial study” to determine whether its implementing action will have environmental effects that were not identified and addressed in the certified EIR and whe
ther additional environmental review is required. If the responsible agency determines that all of the potential environmental effects from its implementing action were identified and addressed in the certified EIR and that none of the conditions described
in CEQA
Guidelines Section 15162 for preparation of further environmental review would occur as a result of the proposed amendments, then no additional environmental review.
In 2020,
p
ursuant to CEQA Guidelines
,
the City of Napa prepared an initial stud
y to
determine whether the City actions to approve the amended entitlements resulted
in
environmental effects that were not identified and addressed in the
Napa Pipe EIR. Based
on that initial study, the City determined that the City actions to implement t he Napa Pipe
Project
as described in the Development Agreement and the various project approvals ,
did
not result in any significant environmental effects that were not identified and addressed in the County’s certified Napa Pipe EIR.
Th
rough Resolut
i
on
R2020
-
013, the
City
adopted
an Addendum to the Napa Pipe EIR to document that determination.
The
development of property proposed by this tentative map
is within the scope of
and
consistent with the
development program evaluated by the certified EIR and
its subsequent
addenda,
thus
no further
environmental
review is necessary.
VII
. REQUIRED FINDINGS
Approval of the project is subject to the
requirements of the City’s Subdivision Code,
including the
required findings
set forth in
Section 16.20.070
.
These
findings are provided
in the draft resolutions attached to this Staff Report.
VIII
.
STAFF RECOMMENDATION
Staff recommends that the
Planning Commission forward a recommendation to the City
Council to
adopt a resolution
:
(
1 )
determining that the recommended action was adequately
addressed by a previous CEQA action; and (2)
approving
the
Napa Pipe Brookfield
Tentative Map
based
on a dete
rmination that the application is consistent with the City’s General Plan,
the Napa Pipe Development Plan and the Napa Pipe Design Guidelines.
I
X
.
ALTERNATIVE
S
TO RECOMMENDATION
1. Continue the application with direction for project
modifications
and allow the Applicant
an opportunity to prepare a revised proposal
.
2. Recommend that the application be denied by the City Council .
X
.
DOCUMENTS ATTACHED
1. Draft Resolution
2. Tentative Subdivision Map
3. Napa Pipe
Design Guidelines
(Excerpt)
4. Napa Pipe
Development Plan
(Excerpt)
ATTACHMENT 5