Community Development Department – Planning Division
1600 First Street + P.O. Box 660
Napa, CA 94559-0660
(707) 257-9530
_________________________________________________________________________________________________
PLANNING COMMISSION STAFF REPORT
APRIL 6, 2023
AGENDA ITEM 7.A File No. PL22-0080 – DEVLIN BED & BREAKFAST
I. GENERAL INFORMATION
PROJECT
SUMMARY:
Request for a Use Permit to convert a three-bedroom historic house into a bed and breakfast inn with two guest rooms and one manager’s quarters.
LOCATION OF
PROPERTY:
962 Jackson Street
APN 003-051-016
GENERAL PLAN:
Medium Density Residential
ZONING: Single Family Infill (RI-5)
APPLICANT/
PROPERTY
OWNER:
Robert Devlin
1775 Pine Street
Napa, CA 94559
Phone: (415) 481-1095
STAFF
PLANNER:
Michael Allen, Senior Planner Phone: (707) 257-9530
ATTACHMENTS: ATCH 1 – Draft Resolution
ATCH 2 – Project Plans
II. RECOMMENDATION
Staff recommends that the Planning Commission adopt a resolution (Attachment 1 ) denying a Use Permit for a bed and breakfast inn with two guest rooms and one manager’s quarters at 962 Jackson Street as shown below in Figure 1, Location Map, and determining the project is exempt from the requirements of the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15061(b)(4).
III. EXECUTIVE SUMMARY
On July 9, 2021, the Applicant, Robert Devlin, submitted an application for a Use Permit to convert a single-family residence at 962 Jackson Street into a bed and breakfast inn with two (2) guest rooms and one (1) manager’s suite.
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 2
Pursuant to Napa Municipal Code (NMC) Section 17.08.020, a use permit is required for a bed and breakfast within the RI -5 Zoning District, subject to findings of NMC Section
17.60.070 for a use permit, and NMC Section 17.52.060(D) findings for bed and breakfast inns.
Staff is recommending denial of the application for the reasons described throughout this staff report.
FIGURE 1
Location Map
IV. SITE CONTEXT AND HISTORY
The home (see Figure 2) is identified as a Listed Resource on the City’s Historic Resources Inventory. According to the State Department of Parks and Recreation “DPR” form, it was built circa 1880 and probably began life as a Queen Anne cottage but “has been changed so often that its appearance is now more funky than historic”. Albeit it is listed in the City’s Historic Resource Inventory which is required per Napa Municipal Code (NMC) Section
17.52.060 for consideration of a use permit for a bed and breakfast inn.
Surrounding land uses include older single-family homes on the north, south, east, and west. Several light industrial uses are located one block to the east beyond Yajome Street.
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 3
FIGURE 2
962 Jackson Street
V. PROJECT DESCRIPTION
As mentioned above, the Applicant requests conversion of an existing single -family residence to a bed and breakfast with two rooms and a manager suite, as shown in Figure
3. One of the three required parking spaces would be on -site. The application requests the remainder of the parking requirement be met with on-street parking. On-street parking immediately adjacent to the corner parcel could accommodate three cars. No exterior alterations are proposed to the structure; therefore, Cultural Heritage Commission review would not be required. Although the property owner does not currently reside on site, the application indicates that a manager would be hired to live on site and manage the two - room bed and breakfast. A more complete description is provided in Attachment 2.
FIGURE 3
Floor Plan
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 4
VI. ANALYSIS
A. General Plan
The property is located within the Medium Density Residential General Plan Designation of the Napa 2040 General Plan (General Plan) , which provides for densities ranging between 8 to 18 units per gross acre.
The site is also located within the “Central Neighborhood”, one of the twelve neighborhoods recognized in the General Plan. Housing types would typically encompass single-family detached and attached uses. Limited non-residential uses such as bed-and- breakfast inns and public and quasi -public uses of an administrative, educational, recreational, religious, cultural, communications, or public service nature may be allowed.
Although a bed and breakfast use is allowed with approval of a use permit, the proposed project would not generally align with the goals of the General Plan because it would not assist in the preservation and adaptive reuse of a historic resource since the home was previously renovated and due to its small size, (1,200 square feet, three bedrooms) is not in need of adaptive reuse. For these reasons, the proposed use would not be consistent with the following General Plan Goals and policies:
• Goal LUCD-8: Support the preservation and enhancement of the City’s existing housing stock to be utilized as primary residences and homes.
• Policy LUCD-8-1: Continue implementation of existing Ordinances to limit conversion of residential units to short-term rentals through regulation and permit requirements.
• Goal HCR-1: Preserve and enhance Napa’s historic resources. Encourage rehabilitation and adaptive reuse, as well as sensitive, context-compatible infill design.
Further, unlike the typical historic Victorian , which due to its larger floor plan with numerous bedrooms, formal dining room, drawing room and other ancillary rooms , is larger than a modern day single family may need and would be costly to maintain , the size of the subject home is typical, and in fact ideal, for its continued use as a single- family residence . This notion is emphasized in the Central Neighborhood “mission statement” which identifies, “several larger, stately homes have been converted to bed and breakfast inns.” The home at 962 Jackson Street would not be considered large or “stately” due to its relatively small size at approximately 1,200 square feet.
Repurposing the home at 962 Jackson into a bed & breakfast allows for short term rentals which does not further the preservation of the City’s housing stock. Also, the home does not appear to be in need of rehabilitation or adaptive reuse. It has already been renovated and is an ideal size home for an individual, couple, or small family. Therefore, conversion to a bed and breakfast use would not result in rehabilitation or adaptive reuse of the historic resource unlike a large Victorian home which is typically larger than the conventional family’s needs and is often a financial burden to maintain.
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 5
B. Zoning
The property is located within the Single-Family Infill (RI-5) Zoning District. This district provides for detached and attached single -family homes, accessory dwelling units, clustered and planned developments, duplexes, triplexes, manufactured housing, group residential, live-work housing and similar compatible uses such a s day care and larger residential care facilities. Bed and breakfast inns may also be allowed with approval of a use permit.
C. Use Permit
Pursuant to NMC Section 17.52.060, bed and breakfast inns require the approval of a Use Permit. Use Permits are require d for land uses that may be suitable only in specific locations or require special consideration in their design, operation, or layout to ensure compatibility with surrounding uses. To approve a Use Permit, the Planning Commission is required to make the f indings prescribed in NMC Section 17.60.070 , along with the findings of NMC Section 17.52.060(D) specific to bed and breakfast inns. Those findings are shown below under the “Findings” section, along with Staff’s analysis of each finding.
D. Bed and Breakfast Inn Purpose and Standards
Pursuant to NMC Section s 17.52.060(A) and (C), there are specific purposes and standards applicable to bed and breakfast inn uses , as it relates to operations of such use. However, Staff finds the project cannot be found to be consistent with the purposes and standards of the Bed and Breakfast Inn use, as proposed. Staff’s analysis is provided below.
Bed and Breakfast Inn Purpose (NMC 17.52.060(A))
The specific purposes listed in NMC 17.52.060(A) include the following:
1. To assist in preservation and adaptive reuse of city historic resources.
2. To serve visitors to the Napa Valley.
3. To assure compatibility with residential neighborhood surroundings.
4. To mitigate impacts on local rental housing stock, to the extent permitted by state law.
As previously discussed in the General Plan analysis (Section V I.A) the subject home that would be converted to a bed and breakfast is not in need of assistance for preservation nor is it of a size and configuration that renders it economically infeasible to be rehabilitated if needed or to remain used as a single-family residence. Also, the conversion from a single-family home to a bed and breakfast effectively elimi nates one more home from the City’s housing stock. Therefore, the project would not meet two of the specific purposes.
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 6
Bed and Breakfast Inn Standards (NMC Section 17.52.060(C))
1. On-Site Owner/Manager. The building must be the primary residence of the owner or manager of the bed and breakfast use.
The project description states that the property owner does not currently reside on the property, and that a manager would be hired who would live on site and manage the two- room bed and breakfast. However, it doesn’t seem economically feasible to hire a live in manager simply to manage two guest rooms.
2. Location and Size. Principal and accessory buildings may be used for bed and breakfast guest rooms. The majority of the guest rooms shall be in the principal building. Additions to either the principal building or accessory buildings shall be visually subordinate to the principal building. New accessory buildings are not encouraged but may be acceptable if the Applicant provides evidence and the city finds that there is no economically feasible way to restore the principal building without new accessory buildings.
All guest rooms would be in the principal building. No additions are proposed.
3. Meals. There shall be only one meal, breakfast, served daily and limited to guests and owner/manager of the bed and breakfast inn.
The application indicates light breakfast of pastries, coffee and juice would be offered.
4. Parking. One parking space shall be provided for the owner/manager’s unit and each guest room. On-site parking shall be designed and located to not detract from the residential and historic character of the site’s buildings and grounds.
Credit may be given in limited instances for on -street parking fronting the structure where a survey documents such parking is available and does not affect adjacent residential uses.
The two guest rooms and the manager’s room require three (3) parking spaces. One parking space will be on -site, and three will be on -street parking spaces immediately adjacent to the property. NMC Section 17.52.060.C.4 allows for credit to be given for on- street parking fronting the structure. The Applicant provided an informal study of on-street parking availability proximate to the proposed B&B (see Attachment 2). The Applicant provided pictures from various times of the day on 13 separate days which indicate that at any given time the majority of on -street parking spaces along the corner property’s two frontages were available for guest parking.
5. Signs. Signs shall be limited to two square feet attached directly to the residential building or structure unless a sign permit is obtained.
No signage is included with this application. Signage is subject to an Administrative Sign Plan Check to ensure that it meets the requirements of the Sign Ordinance.
6. Number of Guest Rooms. The number of guest rooms permitted will be determined based on the size of the existing building, grounds and site; the ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 7
relationship of the site to the character, size and scale of surrounding neighborhood buildings; and visitor access and parking. In general, the number of guest rooms should not exceed 10.
The number of guest rooms would not exceed 10, as proposed.
7. Concentration of Inns. When a new bed and breakfast inn is proposed within 300 feet of another, the decision-making body shall additionally find that the new inn doesn’t harm the character and livability of adjacent residential properties.
There are no bed and breakfast inns located within 300 feet of the project.
8. Design. Rehabilitation Guidelines for Historic Properties contained in the Design Guidelines for the Napa Abajo/Fuller Park Historic District shall be utilized for bed and breakfast inn exterior remodels and additions.
The conversion of the building to a bed and breakfast inn does not require any exterior changes.
VII. ENVIRONMENTAL REVIEW
Staff recommends that the Planning Commission determine that the project is exempt from the requirements of the California Environmental Quality Act (CEQA) in accordance with Section 15061(b)(4) which exempts projects that are disapproved.
VIII. REQUIRED FINDINGS
The following section provides the findings for both a use permit and the findings specific for bed and breakfast inn uses, as required by NMC Sections 17.060.070 and
17.52.060(D).
A. Use Permit
The Planning Commission’s consideration of this project is subject to the required findings in NMC Section 17.60.070 relating to Use Permits. These findings are provided below and relate to consistency of the project with the General Plan, Zoning Ordinance, and applicable Guidelines.
Staff has de termined that the Project would not comply with these findings and has therefore recommended denial of the proposed use permit, as provided in Attachment 1.
1. The proposed use in accord with the General Plan, applicable specific plans, the objectives of the zoning ordinance and the purposes of the district and overlay district in which the site is located.
The proposed conversion of the single -family home into a bed and breakfast would not be in accord with the General Plan, or Zoning Ordinance as the conversion would not further the stated purpose of the Bed and Breakfast Inns Ordinance (NMC Section
17.52.060) to assist in the preservation and adaptive reuse of City historic resources ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 8
because the home has already been renovated and due to its small size, is not in need of adaptive reuse. The 1,200 square foot, three -bedroom home is an ideal sized home for continued use as a single-family residence.
2. The proposed use, together with the conditio ns applicable thereto, will not be detrimental to the public health, safety, or welfare, or materially injurious to properties or improvements in the vicinity, or to the general welfare of the city.
The proposed use would be detrimental to the welfare of properties in the vicinity as the Project’s use for transient occupancies could pose negative impacts to the residential neighborhood due to typical transient activities.
3. The proposed use complies with each of the applicable provisions of the zoning ordinance.
The Project would not comply with the provisions of NMC Chapter 17.54 (Parking), NMC Section 17.52.070 (Bed and Breakfast Inns) and NMC Chapter 17.60 (Use Permits) because the Project does not further the purpose of the Bed and Breakfast Inn Ordinance for the preservation and adaptive reuse of a historic resource since the subject property has already been restored and is well suited for continued residential use.
4. The proposed use complies wi th any other applicable findings required under other chapters of this title for the specific use.
The proposed conversion to a bed and breakfast would be detrimental to the character of the neighborhood and surrounding land uses as it would increase the visitor traffic within the residential neighborhood.
B. Bed and Breakfast Inns
In addition to use permit findings prescribed under NMC Section 17.60.070, analyzed above, t he Planning Commission’s consideration of this project is also subject to the required findings in NMC Section 17. 52.060(D) relating to bed and breakfast inn uses .
These findings are provided below and relate to consistency of the project with the General Plan, Zoning Ordinance, and applicable Guidelines.
1. The establishment of the bed and breakfast inn is consistent with General Plan policies regarding historic preservation regarding the loss of rental units in the housing stock.
See discussion under Staff Report Section VIII.A.1.
2. The bed and breakfast inn use will not be detrimental to the historic or architectural character of the existing building(s).
See discussion under Staff Report Section VIII.A.1 and VIII.A.3.
3. The bed and breakfast use is compatible with and will not be detrimental to the character of the neighborhood and surrounding land uses.
ATTACHMENT 3
PL22-0080 – Devlin Bed and Breakfast 9
See discussion under Staff Report Section VIII.A.2.
IX. PUBLIC NOTICE
Notice that this application was received was provided by the City on August 9, 2022, and notice of the scheduled public hearing was provided on March 22, 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 March 28, 2023, and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication.
X. PUBLIC COMMENT
As of this writing, no public comments have been received.
XI. ALTERNATIVES TO RECOMMENDATION
1. Continue Consideration to Future Date. Continue the application with direction for modifications and allow the Applicant an opportunity to prepare a revised application.
2. Approve the Request. Direct Staff to return to the Planning Commission with a resolution documenting findings from the record of the hearing to support approval of the proposed project.
ATTACHMENT 3
ATTACHMENT 3