To: Honorable Mayor and Members of City Council
From: Vincent Smith, Community Development Director
Prepared By: Michael Allen, Senior Planner
TITLE:
Title
Redwood Road Subdivision
LABEL
RECOMMENDED ACTION:
Recommendation
Adopt a resolution approving a Design Review Permit and Tentative Subdivision Map for the Redwood Road Subdivision, a subdivision of a 1.56-acre property into 6 single-family lots at 2550, 2552 & 2554 Redwood Road and determining that the actions authorized by this resolution are exempt from CEQA.
Body
DISCUSSION:
Executive Summary
On November 14, 2022, the Applicant, Montair Associates, submitted an application requesting approval of a Tentative Subdivision Map and Design Review Permit to subdivide a 1.56-acre parcel into 6 single family lots and to construct a single-family home on each lot at property located at 2550, 2552 and 2554 Redwood Road. Pursuant to Napa Municipal Code (NMC) Section 17.62.050, the project requires a design review permit for the design of the Tentative Subdivision Map and for the house designs. Pursuant to Napa Municipal Code (NMC) Section 17.62.050, the project requires a design review permit for the design of the Tentative Subdivision Map and for the house designs.
The Tentative Subdivision Map is provided as Attachment 2, and the proposed elevations are provided as Attachment 3 through Attachment 6.
The project includes the following entitlements:
1. Design Review Permit for house plans and the Tentative Subdivision Map; and
2. Tentative Subdivision Map to subdivide the 1.56-acre property into six single-family residential lots.
Site Context and History
The 1.56-acre Project site is located along Redwood Road between Dry Creek Road and Argyle Street at the terminus of Ruston Lane. The site is also located within the “Linda Vista Neighborhood”, one of the twelve neighborhoods recognized in the General Plan. This area was composed of a variety of semi-rural residential uses, scattered subdivisions and along Solano Avenue, mobile home parks. Today, the area is primarily comprised of post-1970’s single family detached housing. The property currently contains three non-conforming homes which would be demolished to accommodate the 6 proposed single family homes.
The property appears to be the last of an old Walnut Orchard which still contains 16 English Walnut trees. There are several other trees remaining on the parcel, all but one would be removed to accommodate the development. One of the two Coast Live Oaks which are subject to the City’s Tree Preservation Ordinance would be preserved. Consistent with the preservation ordinance, the Project would be conditioned to replace or pay a fee for the Coast Live Oak to be removed. Surrounding land uses include single-family homes to the north, south, east, and west. The Project would provide access via an extension of Ruston Lane, a public street, along Redwood Road. The Project would be conditioned to construct a portion of Ruston Lane which currently dead ends at the site.
Project Description
The Applicant proposes to create 6 single-family residential lots and construct 6 single-family homes, as further described below. The Project would also provide two travel lanes and parking, curb, gutter and sidewalk only on the Project side. The remainder of the street would be completed at the time the parcel to the east is developed. Other site improvements include the extension of Ruston Lane, grading, retaining walls, fencing, landscaping, and underground utilities to support six new single family residential units.
A. Tentative Subdivision Map
As shown in Attachment 2, the Project proposes to create 6 single-family lots ranging in size from approximately 7,253 square feet to 10,927 square feet, with an average lot size of 8,265 square feet. Each lot would be a minimum of 60 feet in width and approximately 120 feet in depth.
B. Proposed House Plans
The Project proposes a single-story and two-story option, each with two elevations, as further described in the Planning Commission staff report which contains renderings/elevations of each model. Please refer to the Commission staff report Attachment 8 for design review discussion of the home plans.
C. Setbacks
Each home would include a minimum front setback of at least 20 feet, side setbacks of 5 feet and 10 feet, and a rear yard setback of at least 39 feet. Although there are no plans for accessory dwelling units (ADUs) as part of the Project, the size of the rear yards would be sufficient to accommodate an ADU.
D. Proposed Landscape
The Project proposes landscaping along the front yards of each home, as shown in Attachment 7. Each lot would include at least one (1) tree in the front yard, and some would include a tree at the sidewalk planter strip. As shown in Attachment 7, the Project would include a mix of low water trees and shrubs, including crape myrtles, Chinese Pistache, coyote bush, deer grass, and blue rush. Each lot would also include a 6-foot-high solid wood “good neighbor” fence in the side and rear yard.
E. Parking and Circulation
Access to the Project site would be provided via the partial completion of Ruston Lane, a public street, along Redwood Road. The Project would be conditioned to construct a portion of Ruston Lane which currently dead ends at the site.
The Project proposes to include a two-car garage and sufficient space for 2 vehicles in each driveway, providing 4 off-street spaces per home. In addition, each lot would have sufficient frontage for one additional vehicle on-street.
ANALYSIS:
A. General Plan
The property is located within the Low Density Residential General Plan Designation of the Napa 2040 General Plan (General Plan), which provides for densities ranging between 3 to 8 units per gross acre. On a 1.56-acre site, this would allow for 4 to 12 units. As such, the Project, which proposes six lots, is within the density range allowed by the General Plan. While this is at the lower end of the density range, the Applicant originally considered a seven-lot subdivision at this site; however, the Applicant contended that the stormwater facilities which are contained primarily on Lot 1 required a larger sized lot which made it difficult to reduce lots to accommodate seven lots instead of six.
As proposed, the Project would be consistent with the following General Plan policies identified below:
Land Use and Community Design Element
• Policy LUCD 1-1: Focus urban development to be within the voter-approved Rural Urban Limit (RUL) to provide for the protection of the surrounding open space and agriculture uses.
• Policy LUCD 1-2: Promote efficient land use patterns to accommodate projected housing and job growth within the SOI, including by ensuring that development is within the stipulated (minimum and maximum) range.
• Policy LUCD 3-5: Support community and public realm design that reflects the community’s diversity and meets the needs of persons of all ages and abilities.
• Policy LUCD 10-2: Provide balanced neighborhoods accommodating a variety of housing types and density ranges to meet the diverse demographic, economic and social needs of residents.
In summary, the Project meets the above policies in that it would be within the density range of the General Plan land use designation and is on an infill site that would provide housing for the City of Napa. Although the Project would not be at the higher end of the density range, Policies LUCD 1-2 and LUCD 10-2 allow for a variety of housing types and densities within the minimum and maximum density ranges.
B. Zoning
The property is located within the Single-Family Residential (RS-7) Zoning District which requires a minimum lot size of 7,000 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-7 Zoning District.
Table 1 below shows the Project’s proposed development standards compared to the RS-7 development standards. As proposed, all lots would meet or exceed RS-7 development standards. Section 17.62.050 of the Zoning Ordinance requires City Council approval of a Design Review Permit for Tentative Subdivision Maps. Design review analysis is further discussed in Subsection VI.D. of this report.
TABLE 1
RS-7 Development Standards
|
Criteria |
Standard |
Lot 1 |
Lot 2 |
Lot 3 |
Lot 4 |
Lot 5 |
Lot 6 |
|
Lot Area (sq. ft.) |
min. 7,000 |
10,927 |
7,253 |
7,253 |
7,253 |
7,253 |
9,653 |
|
Height (feet) |
max. 30 |
25 |
26.5 |
26.5 |
25 |
26.5 |
25 |
|
Front Setback (feet) |
min. 20 |
20 |
21 |
21 |
20 |
21 |
20 |
|
Side Yard |
min. 5/10 |
10/35 |
5/10 |
5/10 |
5/10 |
5/10 |
13/15* |
|
Side Setback *(corner lot -feet) |
min. 15 |
N/A |
N/A |
N/A |
N/A |
N/A |
15 |
|
Rear Yard (feet) |
min. 20 |
39 |
44 |
44 |
39 |
44 |
39 |
|
Lot Coverage (percentage) |
max. 45 |
27 |
33 |
33 |
39 |
33 |
30 |
A. Tentative Subdivision Map
The Applicant is requesting approval of a tentative subdivision map pursuant to NMC Chapter 16.20 for the creation of 6 lots. The findings for the tentative subdivision map are described as part of the resolution included as Attachment 1 of this staff report.
B. Design Review Permit
This project is located within an “Evolving Infill Area” as specified in the City of Napa Residential Design Guidelines (November 2004). The Evolving Infill Area development guidelines look to achieve a mix of older houses, established landscapes, and scattered contemporary housing. In these areas, development should fit into the community by incorporating historic and natural features with an emphasis on pedestrian-friendly design. The following provides an evaluation of the applicable infill policies associated with this Project.
Design Guideline 2.21 Creating a Sense of Place. New projects in evolving neighborhoods should create a sense of place by using a strong organizational concept with a hierarchy of streets, parks and public facilities.
This project is not of a scale to require its own parks or street hierarchy. It fits into the existing neighborhood’s organizational concept, development pattern and hierarchy of streets by completing the extension of Ruston Lane to Redwood Road and is built to an acceptable low density residential standard. The lots are an orderly continuation of the existing lots on Ruston Lane.
Design Guideline 2.22 Connections to the City. New development in evolving infill areas should be planned as part of an interconnected neighborhood of existing and future streets. They should be planned and designed as an extension of adjacent neighborhoods’ auto, bicycle, pedestrian, and open space systems.
This site is an infill property that is located between the terminus of Ruston Lane and Redwood Road. The extension of Ruston Lane was obviously anticipated since the street was terminated with a dead end and not a cul-de-sac. This new development would complete the street connection thereby connecting neighborhoods. The street extension and sidewalk provide a pedestrian, bicycle and vehicular connection between the homes on Redwood Road and Ruston Lane.
Design Guideline 2.23 Creating Residential Streets. New infill development in evolving areas should be organized around pedestrian oriented residential streets rather than driveways and parking lots.
The development is oriented around the extended Ruston Lane with driveways servicing each home consistent with driveway standards approved by City of Napa’s Public Works Department. The street design incorporates a sidewalk with the road extension promoting pedestrian access to the new units. The project site doesn’t contain the entire width that would be needed to complete curb, gutter and sidewalks on both sides of the street extension, so the project will only provide a curb and gutter on the east side. A sidewalk on the east side would be required of any future development of the in-fill parcel to the east.
Design Guideline 2.24 Streetscape. Streetscape planting should be a unifying and defining feature of new residential neighborhood streets.
The new street and driveway will be lined with White Crape Myrtle, Chinese Pistache and Western Redbud trees (see landscape plan, Attachment 7). These will provide a unifying and defining feature for the new street extension. All front yards and bio retention areas will be fully landscaped with a variety of plants.
Based on Staff’s review of the project, the general design of the Tentative Subdivision Map is reasonable given the shape of the property and the configuration of surrounding parcels. The project is consistent with the Residential Design Guidelines for “Evolving Infill Areas.” Lot sizes and orientation are consistent with the variety of lot sizes existing within the neighborhood and as desired by the Guidelines. All lots provide an east west orientation thereby providing passive heating and cooling characteristics. Staff has determined that the creation of six single-family lots and detached single-family dwelling units will not have an adverse effect on public health, safety or welfare due to the fact the density is consistent with the General Plan density designation.
C. Design Review of Homes
The City of Napa Residential Design Guidelines (November 2004) address three design principles for single-family developments. The following are the three principles, followed by Staff’s analysis of the Applicant’s efforts to meet each principle.
Principle 1. Site Planning: New single-family housing and subdivisions should result in residential design and site planning that supports overall neighborhood design objectives and context.
The dwelling units are located so as to be compliant with required setbacks for the lots. The driveway will be paved and provide adequate access for vehicles from Ruston Lane. The housing is oriented towards the public street consistent with surrounding development. The orientation and design of the lots reduces the visibility of the garages which are set back a minimum of five feet from the front facade. The entrances, windows, and landscaping will dominate the front facades of the residences. The grading will limit the visual distinction between grading of existing neighborhood streets and surrounding neighborhoods. The subdivision is designed in a manner that is consistent with the surrounding single-family residential neighborhood.
Principle 2. Massing and Architectural Design: New single-family housing should be high quality architecture and provide a variety of styles and design within each block, respecting the neighborhood setting.
The architecture is intended to reflect a traditional residential aesthetic while appearing contextually consistent with the single-family homes in the surrounding neighborhood. The architecture adds a pleasing variety of homes to the neighborhood. Roof forms are consistent on all parts of the house and garage. The homes all provide a coherent architectural composition where the roof, walls and materials gracefully transition from front, sides, and rear elevations. The second stories of the two-story homes are subordinate in scale and do not project or overhang the first-floor footprint. The second stories are stepped back from the first floor. The varying roof heights, step backs, and changes in wall planes are used to break up the mass of the buildings.
Given recent desires by the Commission seeking more modern/updated architecture, Staff recommended the Applicant consider using more modern designs. They were advised to review recent Commission meeting discussions on architectural styles. However, the Applicant indicated they were satisfied with their designs and chose to move ahead with what they had originally proposed.
Principle 3. Materials and Color: The choice of materials and colors should provide an enduring quality and enhance architectural and massing concepts.
Exterior materials will be earth-toned and grey colored to include sandy brown and dark brown roofs in asphalt shingles, light colored cement plaster siding and horizontal cement siding, shingle siding, brown colored fiberglass front doors in various paint finishes, coachman style glazed garage doors in various gray- and stone-colored finishes that will match. The Project will include fully landscaped front yards including trees, grass and shrubbery in each yard, and sidewalks to front porches. Each residence has a prominent front entry identified by a roofed porch or overhang. As designed, the hierarchy of fenestration treatment, detailing, and exterior wall materials provide visual interest and reduce the overall perceived bulk and height. The proposed elevations include three-dimensional elements that break up the wall surfaces, such as roof lines, trim details, decorative window frames and door placement, and material and color changes.
Each elevation will have the same quality as the front elevation to provide four-sided architecture.
Planning Commission Meeting
On April 20, 2023, the Planning Commission held a public hearing to consider this application. The Commission generally was pleased with the design of the subdivision and its compatibility with the existing neighborhood, but asked about ADU inclusion and architecture. Most Commissioners were fine with the architecture, but some expressed the desire for less “run of the mill” designs. From there, the discussion centered largely on the thru street connection of Ruston Lane to Redwood Road.
During public comment, five (5) members of the public spoke in opposition to the thru street connection of Ruston Lane to Redwood Road. Concerns ranged from the loss of a quiet street, use of the street for neighborhood gatherings and negative traffic impacts and safety concerns.
Senior Planner, Michael Allen explained that the City has always intended Ruston Lane to be connected to Redwood Road. He said Ruston Lane would not have been left with a “dead end” if not, even the approximate forty years since the existing neighborhood was developed. Fire Marshall, Greg Fortune spoke to the importance of the street thru connection for fire response times to the neighborhood. He said that response times aren’t just important for fire calls but also for health emergencies. He explained that the connection may shave off 30 seconds to one minute for response times and that amount of time, as small as it can mean the difference between life and death.
One of the concerns raised was for traffic safety and the speed of vehicles on Redwood Road. Mr. Allen explained that the proposed new intersection of Ruston and Redwood was analyzed by City Staff and found it to meet all Street Standards as well as Caltrans standards for a safe intersection.
At the conclusion of the hearing, the Planning Commission recommended approval of the project by a vote of 4-1.
The Planning Commission meeting minutes excerpt is attached to the Commission staff report, Attachment 8.
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 potential environmental effects of the Recommended Action are exempt from the requirements of the California Environmental Quality Act (CEQA) in accordance with Section 15332 (Categorical Exemptions; Class 32) of the CEQA Guidelines, which exempts in-fill development projects that are consistent with the general plan designation and all applicable general plan policies, are consistent with applicable zoning designations, and the project occurs within the city limits on a site smaller than five acres, has no value as habitat for endangered, rare or threatened species, would not result in any significant effects relating to traffic, noise, air, or water quality, and can be adequately served by all required utilities and public services.
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, and the project does not negatively affect historic resources. Based on this analysis, no significant environmental effects would result from this project and the use of categorical exemptions is appropriate.
DOCUMENTS ATTACHED:
ATCH 1 - Resolution approving Tentative Subdivision Map and Design Review Permit with EX A
ATCH 2 - Tentative Map
ATCH 3 - House Plan 1, Elevation A
ATCH 4 - House Plan 1, Elevation B
ATCH 5 - House Plan 2, Elevation A
ATCH 6 - House Plan 2, Elevation B
ATCH 7 - Landscape Plan
ATCH 8 - Planning Commission Report w correspondence
NOTIFICATION:
Notice that this application was received was provided by the City on December 5, 2022, and notice of the scheduled public hearing was provided on May 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 May 26, 2023, and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication.