To: Honorable Mayor and Members of City Council
From: Molly Rattigan, Community Resources Development Director
Prepared By: Michael Allen, Senior Planner (Retired Annuitant)
TITLE:
Title
Zinfandel Subdivision
LABEL
RECOMMENDED ACTION:
Recommendation
Adopt resolutions, (1) adopting a Mitigated Negative Declaration and a Mitigation Monitoring and Reporting Program for the Zinfandel Subdivision at 1583 and 1657 El Centro Avenue, and (2) approving, pursuant to a Mitigated Negative Declaration and a Consistency Analysis regarding the Certified 2020 General Plan Environmental Impact Report (Sch No. 95033060), a Tentative Subdivision Map and Design Review Permit to subdivide an approximately 9.56-acre property into 51 single-family residential lots with four (4) open space parcels, a Design Review Permit for the Tentative Map and house plans, and a Use Permit to authorize the use of small lot development and flag lot standards at 1583 & 1657 El Centro Avenue.
Body
DISCUSSION:
The Applicants, Robert, Mark & Sandra Biale, request a Tentative Subdivision Map, Design Review Permit and Use Permit to subdivide the existing 9.56-acre property into 51 single-family residential lots with seven (7) flag lots and four (4) open space parcels and application of Small Lot Development Standards for eight (8) of the lots. The subdivision would feature a new public street providing access to the subdivision from two intersections with El Centro Avenue. The proposed subdivision features lots ranging from 3,984 square feet to 7,423 square feet with eight (8) separate house plans, each with two architectural elevations. The homes range from 1,004 to 2,362 square feet including 12 accessory dwelling units (ADUs) in the Oak Knoll and Atlas Peak home models and 10 Junior ADU’s in the Coombsville and Chiles Valley home models. The improvements include approximately 2.26 acres along Salvador Channel set aside for flood detention and dedication of a strip of land for a future bike path that would be created as part of a future City project. For a more detailed description see Attachment 4, Project Description.
SITE CONTEXT AND HISTORY
The proposed project is located on an approximately 9.56-acre site located at 1583 and 1657 El Centro Avenue. The project site is bounded by El Centro Avenue to the north, Salvador Channel to the south, and single-family homes to the east and west. The single-family residence located at 1657 El Centro is not part of the project and is excluded from the project boundary.
The project site is currently developed with vineyards and also contains one single-family residence, a detached garage, small outbuildings, and a driveway connecting to El Centro Avenue. Salvador Channel runs through the southern portion of the project site, separating approximately 1.07 acres from the main project site. A pedestrian bridge in the southeastern portion of the project site crosses Salvador Channel, providing access to the southernmost portion of the project site. Aside from the vineyards and structures, the project site currently contains native oak trees and landscape fruit trees near the Salvador Channel and residence. Additionally, roughly half of the site is located within the Federal Emergency Management Agency’s (FEMA’s) National Flood Hazard Zone AE.
GENERAL PLAN
The Project site's Land Use Designation is Medium Density Residential which requires a density range of 8 to 18 units per acre per the current General Plan, “General Plan 2040”. Applied to the 9.56-acre site, the Project would normally have to provide between 76 to 172 housing units. However, the project application was deemed complete by the City on July 1, 2021, prior to adoption of the General Plan 2040, therefore the previous General Plan, “General Plan 2020” applies to this project maintaining the previous Land Use Designation of Single-Family Residential (SFR-20) which required a density range of 4 to 8 units per acre. At 9.56 acres the Project site must provide between 38 to 76 housing units. The 51-unit development would have a density of 5.33 units per acre, which is within the applicable General Plan’s density range, although not at the high end of the range. The ability to reach the high range is hampered by the dedication of approximately 2.26 acres of the Project site for Salvador Channel flood improvements. The project is also consistent with several policies and principles of the General Plan 2020. These policies 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 housing needs.
The following is an analysis of the consistency of the project proposal with the City’s General Plan 2020 and applicable General Plan 2020 policies:
Land Use Goal LU-3 encourages an even rate of development within the Rural Urban Limit (RUL). The RUL generally contains the incorporated lands of the city of Napa and “county pockets”, where in the past, residents have declined to become incorporated into the city, even though these areas are surrounded by land under City jurisdiction.
The Project site has been within the City’s Rural Urban Limit Line and has been designated for residential uses for more than forty years. The properties had been a County pocket until their annexation in 2006 and 2007. As proposed, this project is consistent with this Land Use Goal and the City’s regulatory documents.
Housing Element Policy H1.1 encourages the efficient use of land, and Housing Element Policy H1.4 encourages approval of well-designed projects in the mid- to high-range of the General Plan density.
The proposed 51-unit infill development project has been designed to achieve a density that is at the mid-range for the General Plan 2020 density of this property. Although, the higher range would be more desirable, the necessary dedication of approximately 2.26 acres for the Salvador Channel flood improvements renders achieving the high range impossible. However, the achieved density makes the most efficient use of land within the Rural/Urban Limit, consistent with Policies H1.1 and H1.4.
Land Use Element Policy LU-4.5 encourages projects to be compatible with the surrounding neighborhood.
The development’s approximately 4,000 to 9,000 square foot lots would be built with a density between that of the 4,000 square-foot lots adjacent to the site on the east along Moss Lane; the 5,000 square-foot lots to the south along Valencia and Lassen Streets; and the primarily 4,000 square foot lots located to the north of the site. The proposed lots are compatible in size with those in the neighborhood. The proposed single-family houses would be a mix of one-story and two stories tall, like the surrounding neighborhood. They would reflect a contemporary interpretation of traditional building styles that have similarities to the architecture of the existing neighborhood and are compatible with existing residences in the area consistent with this policy. The proposed single-family use, lot sizes, and density are consistent with the pattern of single-family development in the area.
Transportation Element Goal T-1 seeks: “To provide for extension and improvement of the City’s roadway system to ensure the safe and efficient movement of people and goods.
The proposed subdivision takes access from El Centro Avenue in the form of a new “horse shoe” shaped street that connects to El Centro Avenue in two locations. Currently, the frontage for this parcel is un-improved. As proposed, the project will add an additional 730 feet of gutter pan to create a parking lane across the entire frontage. Additionally, the frontage improvements will include a 6-foot landscape strip with detached sidewalk. The new street will include curbs, gutters, sidewalk and street parking on both sides.
ZONING
The property is located within the RS-4, Single-Family Residential Zoning District, which requires a minimum lot size of 4,000 square feet. RS 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 RS-4 Zoning District. The subdivision contains seven (7) flag lots. Pursuant to NMC Section 17.08.020, subdivisions with one or more flag lots require a use permit. Analysis of the flag lot standards is discussed in Subsection VI.C of this report. 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 of the Planning Commission and City Council. Further zoning analysis is discussed in the Planning Commission report, Attachment 8.
Table 1 in the Planning Commission report, Attachment 8 shows the RS-4 development standards. As proposed, all lots would meet or exceed RS-4 development standards with the exception of Lot Numbers 8 through 15. These lots propose the use of small lot development standards in accordance with NMC Section 17.52.470 which is discussed further in this report.
USE PERMIT - SMALL LOT DEVELOPMENT AND FLAG LOTS
Pursuant to NMC Section 17.08.020, the Applicant is requesting the approval of a use permit for the creation of seven (7) 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. 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 a typical manner. In addition to meeting parking requirements in NMC Chapter 17.54, one additional on-site guest parking space shall be required for each flag lot. Lots 19, 38, 39, 40, 49, 50 and 51 are identified as flag lots that have access to the public street provided by a private driveway. The largest portion of the lot is situated behind adjoining lots. All driveways provide the minimum width required for access and each flag lot provides one (1) guest parking space to make up for not providing a guest space on the street like a street adjacent lot would. The City of Napa Fire Prevention Staff has determined that the proposed design of all the flag lots are consistent with the Fire Department regulations. Staff has determined that the Project is consistent with the flag lot standards. As proposed, this is an appropriate use of flag lots.
As part of this application, the Applicant is also requesting a Use Permit approval for application of the City’s small lot development standards in accordance with NMC Sections 17.08.030 and 17.52.470. Lot 8 through Lot 15 do not meet the minimum square footage requirements and all are requesting the use of 5-foot side yard setbacks on both sides of each lot. As previously mentioned, NMC 17.08.030 specifies up to 20% of the lots of a subdivision with 10 or more lots may use small lot development standards. The eight (8) lots using these standards represents less than 17% of the 51 lots.
In applying Small Lot Development Standards, the following standards apply:
1. House Plans. House plans shall be included as part of the application.
House plans have been included.
2. Lot Size and Width. No specific requirement; however, plans shall consider neighborhood development patterns.
The development is located in a transitional area along El Centro Avenue between traditional 4,000 square foot traditional lots north of El Centro Avenue and the 5,000 square foot lots south of the Project site and the smaller, multi-family lots west of the Project site. The proposed size of Lots 8 - 15 is consistent with the surrounding neighborhoods.
3. Lot Frontage. Shall provide adequate frontage for the house, driveway and side yards/side setback. On a public street, 18 feet of continuous full height curb shall be provided.
All lots using small lot development standards exceed the 18 feet minimum and provide 36 feet to 48 feet of continuous full height curb at lot frontages.
4. Side Yards. Duets: zero feet one side; five feet one side; detached dwellings: five feet one side; five feet one side.
Only Lot’s 8 through 15 take advantage of a 5-foot side yard setback.
5. Front and Side Setbacks. Homes fronting on existing public streets shall use the setbacks of the base district. Homes fronting on new private or certain new public streets may utilize the pedestrian friendly street standards.
All lots provide a 20-foot front setback which is consistent with the RS-4 development standards. Lots 1, 27, 28, 34 and 47 provide a 15-foot minimum “street” side setback which is consistent with the RS-4 minimum street side setback of 15 feet.
6. Other: All other regulations of the underlying district and this title shall apply to small lot developments.
The deviations that are proposed for the Project are as follows and are permitted by application of the small lot development standards: 1) lot sizes for Lots 8 through 15 that are below the minimum 4,000 square foot lot size, 2) 5-foot side yard setbacks for Lots 8 through 15. The remainder of the project conforms to all other regulations of the RS-4 district.
The Project also proposes curb adjacent sidewalks on both sides of the new interior street (Clementia Circle). Per NMC Section 17.52.360.E, Pedestrian-Friendly Street Standards, curb adjacent sidewalks may be considered if General Plan minimum densities cannot be met due to unusual site constraints. The Salvador Flood Channel’s location across the Project site and the approximately 2.26 acres being set aside for flood improvements along the channel represents an unusual site constraint that hinders the Project’s ability to achieve the General Plan minimum density. Therefore, the curb adjacent sidewalk is an acceptable design alternative.
DESIGN REVIEW
Pursuant to NMC Sections 16.04.09.B and 17.62.050.C.1, 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 for consideration. These physical improvements are subject to review by the Planning Commission and City Council. To approve a Design Review Permit, the Planning Commission and City Council are required to make the findings prescribed in NMC Section 17.62.080. These findings are found in Attachment 2, Draft Resolution.
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. For a more detailed discussion of the proposed house elevations see the Design Review section of the Planning Commission staff report, Attachment 8.
TENTATIVE SUBDIVISION MAP
As shown in Attachment 5, Tentative Map, the Applicant is proposing to subdivide an approximately 9.56-acre property into 51 single-family residential lots with seven (7) flag lots and four (4) open space parcels. The standard residential lots would range from 4,823 to 8,246 square feet. Approximately 2.26 acres of the Project site along the Salvador Channel will be set aside for channel and flood protection improvements. The inability to develop this portion of the site required variations to the development standards for the Project to achieve the minimum density required by the General Plan 2020. This necessitated the need for use of Small Lot Development Standards, Flag Lot Development Standards as well as a pedestrian Friendly Street Standards for a curb adjacent sidewalk along the new street (Clementia Circle). The subdivision has been designed to avoid the Salvador Channel and to include terracing along the north and south banks of the channel to lessen floodplain impacts mitigating potential impacts related to 2, 10 and 100 year flood events. The overall design of the subdivision makes efficient use of the developable portion of land and uses one looped road with two access points from El Centro Avenue. The subdivision would also improve El Centro Avenue along its frontage to include 730 feet of sidewalk and gutter pan to create on street parking across the entire frontage. Staff believes that the general design of the subdivision is the most appropriate for the size and shape of the property and its relation to the surrounding development and roadways, including the Salvador Channel.
PLANNING COMMISSION REVIEW
The Planning Commission reviewed the Zinfandel Subdivision at their December 18, 2025 meeting. Five (5) members of the public spoke during public comment. The comments provided were concerns about traffic, desire for a bike lane, flooding and construction noise. The Commission acknowledged those concerns, but articulated that the Project has addressed all potential impacts and is mitigating all to less than significant. They expressed the need for housing and that the Project site has been designated for housing for many years. They were pleased with the project and it’s provision of smaller, likely more affordable homes. The Commission unanimously recommended that the City Council approve the Project. Public correspondence received prior to and after the Planning Commission meeting are attached to the PC report, Attachment 8.
FINANCIAL IMPACTS:
No direct financial impact to the City has been identified with this agenda item.
CEQA:
The project was evaluated for consistency with the development density and zoning established by the City’s 2020 General Plan, for which a Program Environmental Impact Report (EIR) was previously certified (SCH No. 95-03-3060). In accordance with Public Resources Code Section 21083.3 and CEQA Guidelines Section 15183, a Consistency Checklist was prepared to determine whether the project would result in any environmental effects that are peculiar to the project or its site, or that were not previously analyzed as significant effects in the General Plan EIR, or for which substantial new information shows impacts would be more significant than previously described. The Consistency Checklist, included as Appendix A to the Mitigated Negative Declaration (MND) (Attachment 3), concluded that, with the use of Small Lot Development Standards, the project is consistent with the established density and zoning, and that all potential impacts, except for biological resources, were previously analyzed and mitigated as needed in the General Plan EIR. No further review is required for those areas.
An Initial Study was prepared for the project pursuant to the requirements of the California Environmental Quality Act (CEQA) (see Attachment 3). The Initial Study identified certain impacts resulting from this project and concluded that the impacts were either not significant or identified mitigation measures to reduce the impacts to an insignificant level. Based on the conclusions of the Initial Study, a Mitigated Negative Declaration (MND) has been prepared. Inclusion of mitigation measures in the Mitigation Monitoring and Reporting Program (Attachment 3) will ensure that the project does not have any adverse impacts on public health, safety and welfare. The posting period of the Mitigated Negative Declaration was from August 7, 2025 through September 5, 2025. Fifty-three (53) comments were received during the public review period; a summary of comments and responses is provided in the Final MND (Attachment 3). Readers are directed to the Final MND for detailed responses to all public comments.
In summary, the CEQA review for the Zinfandel Subdivision Project combined a 15183 Consistency Checklist, demonstrating consistency with the General Plan EIR and exemption from further review for most topics, with a MND focused on biological resources, ensuring comprehensive environmental analysis and compliance with CEQA. Based on the Consistency Checklist and the Initial Study and MND, the City has determined that, with the implementation of the proposed mitigation measures in the MMRP, no significant effects on the environment would occur. Accordingly, the Community Development Director recommends that a MND be adopted and the MMRP be approved for this project.
DOCUMENTS ATTACHED:
ATCH 1 - Draft CEQA Resolution
ATCH 2 - Draft TM, DR, UP Resolution including MMRP
ATCH 3 - Mitigated Negative Declaration (with CEQA Guidelines Section 15183 Consistency Analysis)
ATCH 4 - Project Description
ATCH 5 - Tentative Map
ATCH 6 - Architectural Plans
ATCH 7 - Landscape Plan
ATCH 8 - Planning Commission Report w/Correspondence (12-18-2025)
NOTIFICATION:
Notice that this application was received was provided by the City on May 12, 2019, and notice of the scheduled public hearing was provided on January 14, 2026, 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 16, 2026, and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication.