To: Honorable Mayor and Members of City Council
From: Vincent Smith, Community Development Director
Prepared By: Ricky Caperton, AICP, Planning Manager
TITLE:
Title
Brookfield-Napa Pipe Tentative Subdivision Map
LABEL
RECOMMENDED ACTION:
Recommendation
Adopt a resolution approving a Tentative Subdivision Map for the Napa Pipe-Brookfield Subdivision, a part of the Napa Pipe Development Plan, to subdivide Blocks 16, 19 and 22 of the Napa Pipe Development Plan into 79 single-family lots and determining that the actions authorized by this resolution were adequately analyzed by a previous CEQA action.
Body
DISCUSSION:
Executive Summary
The Applicant, Brookfield Bay Area Holdings, LLC, requests approval of a tentative subdivision map to create a total of 79-single family lots on three lots created by the Napa Pipe Eastern Residential Large Lots Final Map and identified as Blocks 16, 19, and 22on the Napa Pipe Development Plan. The development is the first residential development to be considered in the Napa Pipe Development Area.
On February 2, 2023, the City of Napa Planning Commission unanimously (5-0) recommended approval of the tentative subdivision map, finding that the potential environmental effects of the Project were adequately addressed under a previous CEQA action, and that the proposed Tentative Map was consistent with the Napa Pipe Development Plan.
Pursuant to the Napa Pipe Development Agreement, and as further described below, the design of the homes was approved administratively under PL22-0100 on November 18, 2022.
Site Context and History
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 2020. 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 Memorandum 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.
This 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.
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 January 2020, the City of Napa approved changes to the original project (Resolution R202-013), including amendments to the approved Master Tentative Map, Development Plan, Design Guidelines, and associated Development Agreement. In short, the amendments shifted more of the residential development from the west to the east side of the railroad and added parkland. However, even with the modifications, the key components of the approved project and 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-income residential units
• 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 moderate-income residential units
• 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
Project Description
As stated above, the Applicant proposes to create 79-single family lots as a portion of Phase 1 of the Napa Pipe Development Plan, as shown in Attachment 2, Tentative Map.
Phase 1 is an approximately 91-acre tract of land 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 spaces and a Membership Warehouse Store (Costco).
Block Sizes and Density
Brookfield Homes is proposing to develop three blocks with alley loaded single-family detached units. Two of the blocks (Blocks 16 & 19) would feature units fronting onto a garden court and one block (Block 22) would feature a linear park designated by the Napa Pipe Development Plan, as shown in Attachment 2, Tentative Map.
Each block is approximately 2.25 acres in size and would accommodate between 23 and 28 units per block for a density of approximately 10 to 12 units per acre. The Napa Pipe Development Plan assumed expected “unit counts” per block, but also allows for modifications to the unit counts as long as the total units for the Napa Pipe Area is not exceeded. For each of the blocks proposed, the unit count has slightly increased, as shown below.
The 79-units would be divided onto three blocks as follows:
• Block 16: 28 units (Assumed 24 units)
• Block 19: 28 units (Assumed 24 units)
• Block 22: 23 units (Assumed 21 units)
Lot Sizes
The proposed lots range in size from 2,780 square feet to 3,235 square feet, with an average lot size of 2,956 square feet.
Lot Coverage
Each of the lots range in lot coverage from 52% to 62%, with an average lot coverage of 58%.
Home Sizes and Style
Consistent with the approved Napa Pipe Development Agreement, the homes were approved administratively under PL22-0100 on November 18, 2022 and range from approximately 2,342 square feet to 2,910 square feet in size. Three different plan styles are offered with either 2 or 3-story configurations. Each unit would include either 3 or 4 bedrooms and 3 or 4 bathrooms depending on the plan selected.
Parking
In total, 237 parking spaces are provided from a combination of on- and off-site spaces. Each unit includes a 2-car garage for a total of 158 covered parking spaces. In addition, Block 22 includes 7 uncovered on-site parking spaces. The remainder of spaces (72) are provided off-site (parallel parking) surrounding each block.
ANALYSIS:
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 previously adopted Development Plan implements the General Plan vision and specifies assumed densities for each residential block.
The Napa Pipe-Brookfield Subdivision is proposed for blocks 16, 19 and 22 of the Napa Pipe Development Plan, with 79 units and would be consistent with the 1998 General Plan.
While the City of Napa recently adopted a new 2040 General Plan, the Development Agreement for Napa Pipe was reviewed and approved under the City’s 1998 General Plan. The following analysis is a review of policies from the 1998 General Plan.
The Napa Pipe-Brookfield project would be consistent with several policies and principles of the 1998 General Plan, 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 housing 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 the 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 neighborhood 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 shall 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 79 new single-family homes will promote the development of compact neighborhoods which reduces the demand to develop surrounding agricultural and open space lands.
Zoning
The property is within the NP-MUR-W- AC (Napa Pipe Mixed Use Residential-Waterfront Airport Compatibility) zoning designation of the Napa Pipe plan. This 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 subject tentative map are found both in the Single Family- Napa Pipe Design Guidelines (Attachment 3, Design Guidelines) and the Napa Pipe Development Plan (Attachment 4, Development Plan).
While zoning typically refers to development standards such as setbacks, height, and lot coverage, because of the previously approved Development Plan and Development Agreement, the scope of review as it relates to the proposed project is related to the lot sizes, configuration, and consistency with the Development Plan and applicable Design Guidelines.
As such, the project is reviewed for conformance with the Micro-Lot Standards of the Napa Pipe Design Guidelines which requires lot sizes between 1,400 square feet and 3,900 square feet, and lot coverage not to exceed 63%.
The project proposes lot sizes range from 2,780 square feet to 3,235 square feet, and lot coverage ranges between 52 and 62%. Therefore, the tentative map as proposed would be consistent with the previously approved Development Plan and Design Guidelines.
Architectural Design Review
NMC Section 16.04.090.B requires design review of subdivisions in accordance with NMC Chapter 17.62. Under NMC Section 17.62.050, for subdivision of five (5) or more lots, the proposed architectural improvements are subject to design review by the City Council. However, through the Development Agreement, the City Council delegated the authority for architectural design review for Napa Pipe residential subdivisions to the Community Development Director. Consistent with the review procedures of the Development Agreement, Staff reviewed and approved the home designs for the three blocks under PL22-0100 on November 18, 2022. The home designs were found consistent with the adopted Napa Pipe Design Guidelines. For informational purposes only, Table 1 below shows a comparison of applicable Napa Pipe Design Guidelines and standards that were approved under PL22-0100.
Brookfield Tentative Map
The Napa Pipe Brookfield Tentative Map for Blocks 16, 19 and 22 of the Napa Pipe Redevelopment Plan is reviewed for conformance with NMC Chapter 16.20, Tentative Maps, and the Napa Pipe Development Plan. Staff has reviewed the subject map against the Napa Pipe Development Agreement, the Napa Pipe Design Guidelines, Napa Pipe Development Plan, and the municipal code relating to subdivisions.
NMC Section 16.04.090.B 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 Council. As noted above, however, through the Development Agreement, the City Council delegated the authority for architectural design review for Napa Pipe residential subdivisions to the Community Development Director, who previously approved the architectural design review for the proposed homes on November 18, 2022. Therefore, the only remaining component of NMC 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” serving all new homes. This configuration is consistent with the approved Development Plan and Design Guidelines which provide very specific development layouts per block.
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.
Development Agreement Consistency
The Development Agreement 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 plan 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 map; however, the project would implement the following components:
• Open Space: Open Space element P12, East Collector Park would be built with this Tentative Map, consistent with the Open Space Phasing Plan approved through the Development Agreement.
• Transportation: Through the conditions of approval, the developer would pay their 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 Staff.
Planning Commission Meeting
On February 2, 2023, the Planning Commission held a public hearing to consider this application. Discussion centered mostly on clarifying questions related to the schedule of development, and general inquiries regarding the Napa Pipe Development as a whole.
The Applicant’s team had an opportunity to provide responses to general inquiries from the Planning Commission. Following general inquiries and clarifications related to items such as affordable units, and home designs, the Planning Commission requested that Staff bring forth an administrative report to present the previously approved home designs.
At the conclusion of the hearing, the Planning Commission recommended approval of the project by a vote of 5-0.
The Planning Commission staff report is provided as Attachment 5.
Public Comments
As of this writing, no public comments have been received.
FINANCIAL IMPACTS:
No direct financial impacts to the General Fund have been identified with this application.
CEQA:
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.
Supplemental environmental reviews and addenda were prepared (including a City adopted addendums 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 agency 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 whether 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, pursuant to CEQA Guidelines, the City of Napa prepared an initial study 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 the 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. Through Resolution 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 would be 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.
Therefore, City staff recommend that the City Council determine that the potential environmental effects of the recommended action were adequately addressed by a previous CEQA action.
DOCUMENTS ATTACHED:
ATCH 1 - Resolution with EX A
EX A - Letter dated August 29, 2019 from NapaSan
ATCH 2 - Tentative Map
ATCH 3 - Design Guidelines (excerpts)
ATCH 4 - Development Plan (excerpts)
ATCH 5 - PC Staff Report (02-02-2023) (Note: attachments removed to avoid duplication)
NOTIFICATION:
Notice of the scheduled public hearing was provided on February 24, 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 February 24, 2023 and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication. The Applicant was also provided a copy of this report and the associated attachments in advance of the public hearing on the project.