To: Honorable Mayor and Members of City Council
From: Molly Rattigan, Interim Community Development Director
Prepared By: Michael Walker, Senior Planner
TITLE:
Title
Wilkins Townhomes
LABEL
RECOMMENDED ACTION:
Recommendation
Adopt a Resolution approving a Use Permit, Design Review Permit, and Tentative Subdivision Map for Condominium Purposes to subdivide an existing, approximately 0.6-acre parcel into ten (10) parcels and a Common Lot, Lot A, for an 11-unit residential condominium development on property located at 2005-2069 Wilkins Avenue, and determining that the actions authorized by this Resolution are exempt from CEQA.
Body
DISCUSSION:
The Applicants, Wilkins Townhomes, LLC and Ryan Gregory (KG Planning Partners), have applied for a 10-lot Tentative Subdivision Map for Condominium Purposes on an approximately 0.6-acre property (“Project”) located at 2005-2069 Wilkins Avenue (“Site”). A more detailed project description is provided below, along with the Applicant’s project description included as Attachment 2, Project Description.
Pursuant to Napa Municipal Code (“NMC”) Section 16.12.010(A), the Project requires approval of a Tentative and Final Map for Condominium Purposes for the subdivision of the property. In addition, pursuant to NMC Sections 16.04.090(B) and 17.62.050(B)(5), the Project also requires approval of a Design Review Permit for the design of the subdivision and the condominium units. Finally, pursuant to NMC Section 17.54.040.B, the Project requires a Use Permit to implement modified parking standards. Pursuant to NMC Sections 17.60.070 and 17.62.080, the Planning Commission has the authority to approve the Use Permits and Design Review Permits, respectively. However, the proposed project involves a subdivision to create condominiums that could be sold to individual owners. Under the Subdivision Map Act, a Tentative Subdivision Map is required for a subdivision creating 5 or more condominiums. Therefore, the Tentative Subdivision Map which subdivides the project into 10 townhouse condominiums with a common area requires review and approval by the City Council. Pursuant to NMC Section 17.68.060(C), when more than one permit is required for a development project and authority rests with both the Planning Commission and City Council, the final action on all discretionary permits shall be taken by the City Council, following a recommendation from the Planning Commission.
SITE CONTEXT AND HISTORY
The Site is located on the northwest corner of Shetler Avenue and Wilkins Avenue. Access to the site would be provided by driveways on Shetler Avenue and Wilkins Avenue. Surrounding properties include single family homes to the north, east, south, and west. In the larger vicinity there are established single-family neighborhoods, multi-family apartments, and Tulocay Cemetery.
A previous project, PL22-0082 Wilkins Townhomes, was approved by Administrative Design Review Permit on January 20, 2023. The previous project was a 10-unit condominium project on a single lot and expired on January 20, 2025. Because the project expired, the subsequent application was required to adhere to the density allowances of the Napa 2040 General Plan adopted on October 18, 2022, which required a minimum of 11 units to meet the 18 to 40 units per acre High Density Residential density standards. To achieve the required density, Unit 10 is proposed to be developed as two units, Unit 10A and Unit 10 B, as further described in Section V - Project Description. The exterior of the townhomes has not changed from what was previously approved in 2023.
PROJECT DESCRIPTION
The Applicant proposes to subdivide the property into ten (10) residential condominium parcels and a common parcel, Lot A, which provides access and common area features including open space and landscaping. The Applicant also proposes to modify the previous Administrative Design Review approval (PL22-0082) to add an eleventh unit in order to conform with the new General Plan designation.
As shown in Attachment 3, Design Review Plans, Lot 10 is proposed to be developed with two units. Unit 10A is a ground-floor studio unit and Unit 10B is a two-bedroom unit upstairs. Unit 10A is being offered as a deed-restricted Low-Income affordable unit (up to 80% AMI). Modified parking standards are requested for Unit 10A to allow the required parking space to be located on Wilkins Avenue in front of the townhome development. The Tentative Subdivision Map proposes the creation of ten parcels. Units 10A and 10B are within proposed Lot 10 and will be under common ownership.
Site Design & Access and Architectural Design
The Project would use Wilkins Avenue and Shetler Avenue, public streets, for vehicle access to the proposed residential lots. The access drive would be located on Lot A.
The project is subject to the City’s adopted Residential Design Guidelines and conforms with the guidance found in the document. As previously noted, the exterior of the townhomes has not changed from the design originally approved in 2023. The architecture uses a variety of forms and materials including wood trim, cement fiberboard siding, board and batten siding, and stucco. All facades are unified in style, and each contains visual interest. Roof forms are consistent on all parts of the building. The building has a coherent architectural composition with massing broken up with gables, porches, and stepping wall planes.
ANALYSIS
The following sections provide the staff’s analysis of the Project and its required entitlements.
A. General Plan
The Project site is designated High Density Residential under the Napa 2040 General Plan. According to the General Plan, this designation is intended primarily for multifamily development. The Project proposes the creation of 11 units on ten condominium lots, consistent with the Site’s General Plan Designation.
Density
Further, the High Density Residential designation requires a density range of between 18 to 40 dwelling units per acre (DU/Ac). At approximately 0.66-acres, the Project site could yield between 11 and 26 residential units. As noted, the proposed Project is seeking approval for 11 residential units.
General Plan Goals and Policies
The Project would meet several of the Napa 2040 General Plan Goals and Policies, including the following:
Land Use and Community Design Element
• Goal LUCD-1: Maintain a compact urban form to promote a distinct community identity and protect open space and natural agricultural resources surrounding the community.
Staff Analysis: The Project would provide for infill development. No impacts on open space or agricultural resources would be present. Future development of the proposed parcels would be consistent with surrounding properties.
• Policy LUCD 1-2: promote efficient land use pattern to accommodate projected housing and job growth within the SOI, including by ensuring that development is within the stipulated density (minimum and maximum) range.
Staff Analysis: The Project would be within the density range permitted by the General Plan and provide for efficient use of the Site.
• Goal LUCD-10: Enhance the City’s character and image as a desirable residential, active, and sustainable community, and celebrate the diversity of residents.
Staff Analysis: The Project would provide for development of the parcel in a manner consistent with the established residential neighborhood it is located in.
B. Zoning
The Project site is zoned RM, Multifamily Residential, which primarily provides for a mix of predominantly attached residential development. The RM zone district is consistent with the High Density Residential land use designation.
As summarized in Table 1, the proposed development complies with the RM property development standards:
TABLE 1 - RM PROPERTY DEVELOPMENT SUMMARY TABLE
|
Development Standard |
RM Standard |
Project |
|
Minimum Lot Size |
5,000 square feet |
29,039 square feet |
|
Lot Coverage (excluding street) |
50% maximum; 14,520 square feet |
36%; 10,559 square feet |
|
Front Setback |
20 feet minimum |
20 feet |
|
Side Setback (south side) |
15 feet minimum |
15 feet |
|
Side Yards (north side) |
5 feet; 1st story 10 feet; 2nd story 15 feet; 3rd story (n/a) |
15 feet (exceeding minimum required) |
|
Rear Yard |
15 feet; 1st & 2nd story 20 feet; 3rd story (n/a) |
25 feet (exceeding minimum required) |
|
Building Height |
35 feet maximum |
24 feet |
|
Usable Outdoor area per unit |
200 square feet per unit minimum |
200 square feet per unit |
To determine compliance with the RM development standards for this multi-family project, the setbacks are applied to the entire site as though all units comprise one large unit, with the front yard being the lot frontage on Wilkins Avenue, side yard on the adjacent property to the north, side setback being the frontage on Shetler Avenue, and the rear yard to the west. The project meets or exceeds all development standards for the RM district.
C. Condominium Project Requirements
Section 17.52.090 of the Zoning Ordinance sets forth the following requirements for residential condominium projects:
1. A homeowner's association or other similar property owner's organization shall be established to maintain all open space and other improvements which are in common ownership.
A condition is included requiring the establishment of a homeowner’s association.
2. All commonly owned open space areas shall be landscaped in accord with a landscaping plan approved by the architectural review commission. The landscaping shall generally be planned and developed in accord with the city's standards for landscaping, adopted by resolution.
A preliminary landscape plan was submitted with the application, and staff believes the preliminary plan provides an acceptable array of drought tolerant plantings. Conditions of approval require the submittal and approval of a final detailed landscaping and irrigation plan prior to issuance of a building permit.
3. On-site parking shall be provided in accord with the parking and loading requirements contained in Chapter 17.54.
Parking for the townhome units has been provided consistent with the provisions of Chapter 17.54 with the exception of on-site guest parking. Pursuant to Section 17.54.040.B, the Applicant is requesting a Use Permit to allow for modified parking requirements. Should the Use Permit be granted, the project would be consistent with requirements of Chapter 17.54. See the following Use Permit discussion. Unit 10A is being offered as a deed-restricted Low-Income affordable unit (up to 80% AMI). Modified parking standards are requested for Unit 10A to allow the required parking space to be located on Wilkins Avenue in front of the townhome development. Findings are included below and in the resolution to support the approval of the Use Permit.
4. Each unit shall have its own gas and electric meter, or submeter. Access to meters and heaters shall not require entry through another unit. A water shutoff valve shall be provided for each unit or for each plumbing fixture.
The conditions of approval require that each unit have its own gas and electric meter or submeter. The meters will not require entry through another unit. Water shutoff valves will be required for each unit.
5. There shall be provided a minimum covered storage area of sixty cubic feet (minimum height of six feet eight inches and a depth or width of not less than two feet) for each dwelling unit with two or fewer bedrooms for storage of bicycles, patio furniture, garden tools, etc. An additional twenty cubic feet of storage with the same minimum dimensions shall be provided for each bedroom in excess of two.
All units meet the storage requirement with a large and small storage area within the ground floor. Conditions of approval require the applicant to clearly demonstrate compliance with the storage standards in the building plan submittal.
6. Each unit shall have a laundry area for a washer and dryer.
As shown on the floor plans, each unit has a space for a washer and dryer on the second floor.
7. All boats and travel trailers shall be stored only within areas specifically designated for such storage on the approved plans. The boat and trailer storage area shall be screened and landscaped in accord with the provisions of Chapter 17.52.
It is not the intent of the applicant to provide for boat or RV storage. Similarly, the CC&R’s will be required to include restrictions on use of garages, driveways and common area for storage.
8. Project identification signs shall comply with the provisions of Title 15.
Project identification signage has not been proposed at this point. Any such signage, if proposed, would be subject to further discretionary review and approval.
9. The project shall contain a directory sign indicating the location and house number of units which do not front on public streets.
All units proposed directly front on Wilkins Avenue.
10. There shall be no single building containing more than one residential unit with a length greater than one hundred fifty feet unless the architectural review commission (now Planning Commission) finds that the design of the building mitigates any adverse effect of such length.
As fully described in Section E, Townhome Design Review, the residences are two-story townhomes, massed together in groups of two. While the overall length of the building exceeds 150 feet, the design allows for a roofline and massing that more closely resembles the single-family homes nearby. The result is five distinct masses with discreet covered porches. Each porch contains two-unit entrances with sufficient space to use for seating and other outdoor activities. Each alternating group of structures is offset from the others adjacent to further break up massing. Bays and roof elements have been added to create more visual interest and effectively mitigate the effects of the overall building mass as required by the condominium project requirements.
11. All utilities shall be installed underground.
Conditions of approval require that all new utilities are to be placed underground.
D. Use Permit for Modified Parking Standards
The Zoning Ordinance sets forth the following parking requirements for residential condominium development:
TABLE 2 - SUMMARY OF PARKING REQUIREMENTS
|
Per Unit Parking Requirements for Residential Condominiums |
|
1.5 spaces for studio or 1 bedroom units; plus 0.5 space for each bedroom in excess of 1. At least 1 space shall be in a garage. Guest parking is required at 1 space per 4 units. |
|
# of bedrooms |
# of each |
Required Parking Spaces |
|
3 bedroom |
9 |
27 |
|
2 bedroom |
1 |
2 |
|
Studio* |
1 |
1.5 (2)* |
|
Plus 1 guest space per 4 units; 11 / 4 |
2.75 (3) |
|
Total required: |
34 |
|
Total provided: |
30 |
* Unit 10A is being offered as a deed-restricted Low-Income affordable unit (up to 80% AMI)
The Zoning Ordinance requires one parking space per unit in a garage for condominium projects. Each unit, except Unit 10A, has a one car garage and parking space in front of the garage on a driveway. In addition, the site layout does not account for the 3 guest parking spaces that are required. Per NMC Section 17.54.040.B. the parking standards may be modified with a Use Permit in order to provide adequate and well designed parking which is fair, equitable, logical, and consistent with the intent of Chapter 17.54.
The applicant requests approval of a Use Permit to modify the required parking for Unit 10A and on-site guest parking, allowing those spaces to be located on Wilkins Avenue in front of the townhome development. Given that only one additional required space for Unit 10A and three guest parking spaces are required, which can be accommodated along the project frontage, the proposal appears reasonable. The project is also located within one-quarter mile of a transit stop located at Kansas Avenue and Wilkins Avenue.
E. Townhome Design Review
One of the basic purposes of the Residential Design Guidelines is to provide direction for multi-family housing that fits with and strengthens existing neighborhoods. The Guidelines address the design principles for multi-family homes under the categories of (1) Site Planning, (2) Scale and Transition, (3) Common Areas, (4) Architectural Design, and (5) Materials and Color. The following discussion addresses compatibility of the project under these categories as applicable to the project.
Site Planning: The Guidelines call for orientation of homes toward streets, with direct access from streets and common space. Entry drives to multifamily housing developments should be designed to create a positive identity for the project. Landscape and site design should frame and distinguish entry drives.
The project proposes an access drive into the project from Wilkins Avenue connecting to Shetler Avenue with all garages oriented toward the interior of the project. The landscape design visible from the public street includes residential landscaping that emulates typical front yards with a “row house” effect. Site entry includes various trees and shrubs and planter areas.
Parking should be unobtrusive and not disrupt the quality of common spaces and pedestrian environments of multifamily development. Parking should be distributed throughout the site in discrete courts and garages.
The design of the development places all parking spaces in one car garages or in the driveway leading to the garage. The garages and parking are oriented toward the interior of the development. However, the project does not provide the three on-site guest parking required by the parking standards. The Applicant proposes to locate the guest spaces on Wilkins Avenue in front of the project site.
Services for multifamily development should not be visible from public areas. Trash bins, utility meters, transformers, and other service elements should be enclosed or otherwise concealed from view.
Utilities are located to the rear of the units, not readily visible from Wilkins Avenue or Shetler Avenue. Each unit will contract separately for solid waste/recycling/organic material collection. Conditions are included regarding placement of service carts.
Scale and Transition: Projects should be designed to integrate with adjacent development, including stepping down the mass of taller multi-family developments.
Surrounding properties include single family homes to the north, east, south, and proposed multifamily development to the west. In the larger vicinity there are established single-family neighborhoods, multi-family apartments, and Tulocay Cemetery. The proposed townhomes are appropriately scaled for the existing neighborhood and proposed multifamily development to the west.
Common Areas: New multi-family projects should provide common spaces that are physically defined and socially integrated into the site plan as gathering places.
The 11-unit development does not have sufficient area for the creation of formal common area gathering space. However, the eastern portion of the site contains covered front porches and residential landscaping that emulates typical front yards with a “row house” effect, which promotes front yard gathering.
Architectural Design: Based on the principles of the Residential Design Guidelines, the proposed development should respond to the following architectural design guidelines:
New multi-family projects should fit into the surrounding neighborhood by transitioning in scale, and reflect local architectural traditions, and respond to Napa’s climate.
The City concurs with the Architect’s statement regarding the architectural style of the project:
“The building orientation is facing Wilkins Avenue due to this being the longer site dimension and the quieter street. The massing of the structure is intended to serve as a bridge between the single-family homes to the south and the large apartment complex buildings to the north. The residences are two-story townhomes, massed together in groups of two. This allows for a roofline and massing that more closely resembles the single-family homes nearby. The result is five distinct masses with discreet covered porches. Each porch contains two-unit entrances with sufficient space to use for seating and other outdoor activities. They provide a clearly defined entrance for the units as well a strong residential character for the street facing façade. Each alternating group of structures is offset from the others adjacent to further break up massing. Bays and roof elements have been added to create more visual interest and mitigate the effects of
the overall building mass. The different sections will receive alternating paint schemes to further define separate sections.”
Facades should have 3-dimensional elements, such as chimneys, balconies, bay windows or dormers, to break up large wall and roof surfaces. Every facade should possess an overall design concept that is well composed and articulated and of consistent quality.
The elevations include three-dimensional elements that break up the wall surfaces. The architecture uses a variety of forms and materials including wood trim, cement fiberboard siding, and stucco. All facades are unified in style, and each contains visual interest. Roof forms are consistent on all parts of the building. The building has a coherent architectural composition with massing broken up with gables, porches, and stepping wall plans.
c. Painted surfaces should use colors that reinforce architectural concepts.
The proposed paint scheme incorporates earth-tone colors which logically match the materials they would be applied to. The base color is an off-white with light gray accents and architectural bronze windows. Each unit has a warm toned color painted at the entry door.
PLANNING COMMISSION RECOMMENDATION
The Planning Commission held a public hearing on this item at their September 4, 2025 meeting. One member of the public spoke and submitted correspondence prior to the hearing (see Attachment 5 - Correspondence). Following deliberation, the Commission unanimously forwarded a recommendation to the City Council to approve the Project.
FINANCIAL IMPACTS:
No direct financial impact to the City has been identified with this agenda item.
CEQA:
The Community Development Director has determined that the recommended action is exempt from the California Environmental Quality Act (CEQA) pursuant to Section 15332 (Categorical Exemptions: Class 32) of the CEQA Guidelines, which exempts in-fill development projects that are consistent with the General Plan and Zoning Ordinance; that occur within City limits and are on sites no more than 5 acres in size; that are on sites with no value as habitat for endangered, rare or threatened species; that would not result in any significant effects relating to traffic, noise, air quality, or water quality; and that can be adequately served by existing utilities, and that 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 exist that would pose a reasonable possibility of having a significant effect on the environment. Based on this analysis, no significant environmental effects would result from this project and the exemption is appropriate.
DOCUMENTS ATTACHED:
ATCH 1 - Resolution
EX A - Correspondence from NSD
ATCH 2 - Project Description
ATCH 3 - Design Review Plans
ATCH 4 - Tentative Map Plans
ATCH 5 - Correspondence
NOTIFICATION:
Legal notice of the public hearing was published in the Napa Valley Register on September 25, 2025.