To: Honorable Mayor and Members of City Council
From: Vincent Smith, Community Development Director
Prepared By: Ryder Dilley, Associate Planner
TITLE:
Title
Vintage Farm Subdivision
LABEL
RECOMMENDED ACTION:
Recommendation
Adopt a resolution approving a Tentative Subdivision Map and Design Review Permit to subdivide an approximately 10.45-acre property into 53 single-family residential lots with five (5) open space parcels, a Design Review Permit for the house plans and “back-on” fence treatment, and a Use Permit to authorize the creation of five (5) flag lots at 1185 Sierra Avenue and determining that the actions authorized by this resolution were adequately analyzed by a previous CEQA action.
Body
DISCUSSION:
Executive Summary
The Applicant, Davidon Homes, requests a Tentative Subdivision Map and Design Review Permit to subdivide an approximately 10.45-acre property into 53 single-family residential lots with five (5) open space parcels, a Design Review Permit for the house plans and “back-on” fence treatment, and a Use Permit to authorize the creation of five (5) flag lots.
A more complete project description is summarized below under “Project Description,” and provided in Attachment 2, Project Description. The proposed subdivision is located at 1185 Sierra Avenue, which is the site containing the existing Vintage Farm owned and operated by the Napa Valley Unified School District (“NVUSD”).
Pursuant to Napa Municipal Code (“NMC”) Sections 16.12.010(A) and 17.62.050, an application for a design review permit is required for subdivisions of five or more lots. In conjunction with the application for design review of the subdivision, the Applicant is required to provide home designs and details for “back-on” fence treatment for consideration. These physical improvements are subject to review by the City Council.
An application for a use permit is also required to authorize the creation of flag lots within the RI 4 Zone District pursuant to NMC Section 17.08.020. Details related to the five (5) flag lots are further described in Section E below.
Site Context and History
The Project site is currently the location of the Vintage Farm, which is owned and operated by NVUSD. NVUSD entered into an agreement to sell the property to Davidon Homes. The sale of the land would contribute to the larger plan for NVUSD to build a new modern farm at a new location that will provide better access for the students and new facilities. The Project site is approximately 10.45-acres and features existing shed and barn buildings, ornamental trees, and other agricultural-related uses.
The overall site is located between the eastern terminus of Sierra Avenue and along the western edge of Villa Lane and sits just south of an undeveloped portion of Garfield Park. The site is adjacent to single-family residences to the east, south, and west. The existing residential neighborhood provides for a mix of single-story and two-story construction on lots ranging from approximately 4,200 to 6,800 square feet, with a few lots exceeding that range. The site is also located less than 650 feet from the grounds of Vintage High School.
Project Description
The Applicant is proposing to subdivide the existing property into 53 single-family residential lots with five (5) flag lots and five (5) open space parcels, and to permit the house plans and “back-on” fence treatment at the site of the Vintage Farm. The subdivision would feature new public streets and an extension of Sierra Avenue east to the northern terminus of Villa Lane. There will be a total of three (3) ingress/egress points for access connecting to both Sierra Avenue and Villa Lane. The proposed subdivision features lots ranging from 4,823 to 8,246 square feet with four (4) separate house plans ranging from 1,870 to 2,862 square feet including an option to add an accessory dwelling unit (ADUs) as part of house “Plan 4” for up to a total of 13 ADUs. The improvements located along Sierra Avenue including, but not limited to, relocating the Austin Miller Memorial Bike Path, would be designed consistent with the Garfield Park Master Plan as shown in Attachment 3, Tentative Map.
A. Tentative Subdivision Map
As shown in Attachment 3, Tentative Map, the Applicant is proposing to subdivide an approximately 10.45-acre property into 53 single-family residential lots with five (5) flag lots and five (5) open space parcels. The standard residential lots would range from 4,823 to 8,246 square feet and provide a minimum of 45-feet in width and a depth of approximately 85-feet.
B. Proposed House Plans
The Project proposes four (4) house plan options: a single-story and three (3) two-story plan options, each with three style options (A, B, C). Plan 4 also includes an alternate floor plan option that would include an attached ADU. The house plans range from approximately 1,870 to 2,862 square feet in size, as further described in the Planning Commission staff report which contains renderings/elevations of each model. Please refer to the Commission staff report Attachment 10 for design review discussion of the home plans.
C. Parking & Circulation
The subdivision would feature new public streets and an extension of Sierra Avenue east to the northern terminus of Villa Lane. There will be a total of three (3) ingress/egress points for access connecting to both Sierra Avenue and Villa Lane. The improvements located along Sierra Avenue including, but not limited to, relocating the Austin Miller Memorial Bike Path (Class I), providing bioretention facilities, creating a pedestrian crosswalk across Sierra Avenue, and installing street adjacent landscaping described in Section D. below, would be designed consistent with the Garfield Park Master Plan as shown in Attachment 3, Tentative Map. The extension of Sierra Avenue is designed wide enough to permit dual direction vehicle and bicycle (Class II) traffic, and parking along the northwest side adjacent to the park.
The Project proposes to include a two-car garage and sufficient space for two (2) vehicles in each driveway, providing 4 off-street spaces per home. In addition, there is sufficient street frontage for a minimum of one additional vehicle on-street to satisfy the guest parking requirements of one (1) space per unit pursuant to NMC Section 17.54.040.
House Plan 4 features an optional fifth bedroom in lieu of the loft space. If the prospective home buyer chooses to include the optional fifth bedroom with House Plan 4, the Applicant would be required to provide a fifth off-street parking space beyond the minimum required front setback of 20-feet.
D. Proposed Landscaping
The Applicant is proposing landscape improvements and fencing as shown in Attachment 5, Landscape Plans. The typical streetscape within the subdivision would include a curb, planting strips with street trees and groundcover, and detached sidewalk space. The Sierra Avenue frontage landscaping would slightly differ in that there are three (3) separate bioretention facilities located adjacent to the right-of-way frontage. Villa Lane also provides for a similar existing streetscape design, where a majority of the existing Sycamore trees would be maintained except for fifteen (15) trees along the southeast side of the Project site. Removal of the fifteen (15) trees would allow an additional street connection from Villa Lane to the internal streets and an additional bioretention facility.
The Applicant is also requesting “back-on” (or side-on) fence treatment through a combination of landscaping and fencing adjacent to through lots, and the removal of trees classified as Protected Native Trees pursuant to NMC Chapter 12.45. Please refer to the Planning Commission staff report (Attachment 10) for design review discussion of the landscaping and tree removal.
E. Flag Lots
Pursuant to NMC Section 17.08.020, the Applicant is requesting the approval of a use permit for the creation of five (5) flag lots. Flag lots have less than the minimum required frontage on a public or private street, have access to a public or private street by a narrow strip of land, and the largest portion of the lot is situated behind adjoining lots which front on a public or private street. There are three (3) flag lots located to the southwest of the project site (Lots 13-15) and two (2) located to the southeast (Lots 22 & 23). These lots would be accessible by an approximately 27.3-foot-wide access easement in the form of a private paved driveway across Lots 13-16, and Lots 22-23.
The front setbacks for the flag lots would be measured starting at the edge of the access easement with the side and rear yards measured from the interior property lines in typical manner. In addition to meeting parking requirements in NMC Chapter 17.54, one additional on-site guest parking space will be provided for each flag lot.
ANALYSIS:
A. General Plan
The property is located within the Low Density Residential General Plan Designation of the Napa 2040 General Plan. The Low-Density Residential designation consists of single-family residential development with densities ranging from 3.0 to 8.0 units per gross acre. This designation is mainly intended for detached single-family dwellings, but attached single-family units may be permitted, provided each unit has ground-floor living area and private outdoor open space. Mobile homes, and compatible uses such as residential care facilities are permitted. The proposed single-family residential subdivision provides for a residential density of approximately 5.07 dwelling units per gross acre, and could be found to be compatible with adjacent residential uses in the surrounding area and consistent with the following goals outlined in the Napa 2040 General Plan:
• Policy LUCD 6-2 Promote a diversity of compatible land uses throughout the City to enable people to live close to job locations, have adequate and convenient commercial services, and enjoy public amenities and services such as transit, parks, trails, and schools.
• Goal LUCD 10 Enhance the City’s character and image as a desirable residential, active, and sustainable community, and celebrate the diversity of residents.
• Policy LUCD 10-1 Preserve the character of existing residential neighborhoods while promoting “complete neighborhoods” with safe and convenient access to the goods and services needed for daily life.
B. Zoning
The property is located within the RI 4, Single-Family Infill Zoning District, which requires a minimum lot size of 4,000 square feet. RI areas include subdivisions typically with regular lot patterns, varied designs, and a limited mix of unit types. Single-family detached developments are permitted within the RI 4 Zoning District. Pursuant to NMC Section 17.62.050, subdivisions of five or more lots require home designs to be submitted with the application for design review of the subdivision. The design review permit is subject to the review and approval by City Council. Further analysis is discussed in Subsection D. below.
Table 1 below shows the RI 4 development standards. As proposed, all lots would meet or exceed RS 4 development standards.
TABLE 1
RI 4 Development Standards
|
Criteria |
Standard |
Proposed |
|
Lot Area (sq. ft.) |
min. 4,000 |
min. 4,823 |
|
Height (feet) |
max. 30 |
max. 28”-9’ |
|
Front Setback (feet) |
min. 20 |
min. 20 |
|
Side Yard |
min. 5/10 |
min. 5/10 |
|
Side Setback |
min. 15 |
min. 15 |
|
Rear Yard (feet) |
min. 15 |
min. 15 |
|
Lot Coverage (percentage) |
max. 50% |
max. ≈ 46.8% |
C. Tentative Subdivision Map
The Applicant is requesting approval of a tentative subdivision map pursuant to NMC Chapter 16.20 for the creation of 53 single-family residential lots with five (5) flag lots and five (5) open space parcels. The findings for the tentative subdivision map are described as part of the resolution included as Attachment 1 of this report.
D. Design Review Permit
Pursuant to NMC Sections 16.12.010(A) and 17.62.050, an application for a Design Review Permit is required for subdivisions of five or more lots. In conjunction with the application for design review of the subdivision, the Applicant is required to provide home designs and details for “back-on” fence treatment for consideration. These physical improvements are subject to review by the City Council. To approve a Design Review Permit, the City Council is required to make the findings prescribed in NMC Section 17.62.080. The findings for the design review permit are described as part of the resolution included as Attachment 1 of this report.
In addition to the Design Review Permit findings, the project is subject to the City’s adopted Residential Design Guidelines. However, pursuant to the Housing Accountability Act, Government Code Section 65589.5, the City may only apply “objective” development standards and design standards to the project. Therefore, the City may only apply those provisions in the existing Residential Design Guidelines that are objective, which is defined as “a standard involving no personal or subjective judgment by a public official and being uniformly verifiable by reference to an external and uniform benchmark or criterion available and knowable by both the development applicant or proponent and the public official.” The project conforms with the objective design standards in the Residential Design Guidelines.
For example, the architecture uses a variety of forms and materials including wood trim, stone veneer, and stucco. The house plans provide for a variety of architectural styles and schemes. The proposed homes vary, but have a coherent architectural composition, while the roofs, walls, and materials gracefully transition from front, side and rear elevations. The proposed massing for each style is also broken up with bays and stepping wall plains.
E. Use Permit
Pursuant to NMC Section 17.08.020, the RI 4 Zone District allows a subdivision with 1 or more flag lots subject to the approval of a Use Permit. Use Permits are required 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. Flag lots are subject to additional site and use regulations pursuant to NMC Section 17.52.190. To approve a Use Permit, the City Council is required to make the findings prescribed in NMC Section 17.60.070. The findings for the use permit are described as part of the resolution included as Attachment 1 of this report.
Planning Commission Meeting
On October 5, 2023, the Planning Commission held a public hearing to consider this application. The Commission was generally pleased with the design of the subdivision, its compatibility with the existing neighborhood, and the Applicant’s willingness to expand upon prior architectural styles. The Commission sought clarification on the parking requirements for house Plan 4, siding and roofing material choices, actions for mitigating construction-generated dust, and swapping plan types from a two-story option to a single-story option for Lot 15. Staff and Applicant team, collectively responded to the Commissioners’ questions.
During public comment, four (4) members of the public spoke voicing concerns and two (2) members representing NVUSD spoke in support of the Project. Concerns ranged from site water retention and overflows into Salvador Creek, traffic generated with the extension of Sierra Avenue through to Villa Lane, construction-related traffic, rodents fleeing the site from ground disturbance and demolition, and safety along Villa Lane. The members representing NVUSD voiced support of the Applicant and additional housing, and the opportunity the sale of the property provides NVUSD in constructing a new farm closer to Vintage High School and with new facilities.
The Applicant’s representatives, Mr. Abbs and Andrew Duarte, with dk Engineering, spoke about the onsite water retention, construction-generated traffic, and applicable Homeowner’s Association (HOA) fees. Mr. Dilley spoke to pest control requirements for the developer prior to ground disturbance or demolition.
The Commission began deliberation, and discussion ensued. The comments generally consisted of the following:
• General concerns with the renderings showing window mullions that are “fake” and the roofing type choice.
• Acknowledgement of the Applicant and their effort towards this Project, and the significance of the project for NVUSD and adding to housing unit numbers.
• The Project is compatible with the adjacent neighborhood.
• Outside of the scope of this Project, the roads nearby need to be analyzed for safety.
• Concerns about Project contributing to climate change. City needs to consider objective standards for building to fight climate change and Applicant shall consider options for prospective home buyers.
At the conclusion of the hearing, the Planning Commission recommended approval of the project by a vote of 3-1, with one abstention.
The Planning Commission meeting minutes excerpt is attached to the Commission staff report, Attachment 10.
Public Comments
As of this writing, no public comments have been received for the Council meeting. However, four (4) public comments were received prior to the Planning Commission meeting and are attached to the Commission report.
FINANCIAL IMPACTS:
No direct financial impacts to the General Fund have been identified with this application.
CEQA:
City Staff recommends that the City Council determine that the Project falls within the scope of the Napa 2040 General Plan (General Plan) Final Environmental Impact Report (General Plan FEIR) certified by the City Council on September 20, 2022 (SCH #2021010255) and no further environmental review is required under the California Environmental Quality Act (CEQA) pursuant to Public Resources Code Section 21166 and CEQA Guidelines Sections 15162 and 15168(c) as documented in the CEQA checklist prepared for the project included as Attachment 8.
DOCUMENTS ATTACHED:
ATCH 1 - Resolution with EX A
ATCH 2 - Project Description
ATCH 3 - Tentative Map
ATCH 4 - Architecture Plans
ATCH 5 - Landscape Plan
ATCH 6 - Arborist Report
ATCH 7 - Garfield Park Master Plan
ATCH 8 - CEQA Memorandum
ATCH 9 - NVUSD Letter
ATCH 10 - Planning Commission Report with Correspondence
NOTIFICATION:
Notice that this application was received was provided by the City on May 12, 2023, and notice of the scheduled public hearing was provided on October 27, 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 October 28, 2023, and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication.