To: Honorable Mayor and Members of City Council
From: Molly Rattigan, Community Resources & Development Director
Prepared By: Angela Alvarez-Cendejas, Associate Planner
TITLE:
Title
4124 Byway East Design Review
LABEL
RECOMMENDED ACTION:
Recommendation
Consider recommendations of approval from the Planning Commission, with additional concerns regarding the amount of open space provided by the Project, the types of facilities provided within the common space areas, the potential for increased bicycle parking due to limited on-site parking provided, and the potential health and safety impacts resulting from the requested parking waiver, to: Adopt a resolution approving a Design Review Permit for the construction of a 178-unit multifamily building at 4122-4124 Byway East, and determining that the Project is exempt from the California Environmental Quality Act (CEQA).
Body
DISCUSSION:
EXECUTIVE SUMMARY
The Applicant, CEIM Development, LLC, proposes the development of a 178-unit multifamily building consisting of deed-restricted affordable one (1) and two (2) bedroom units, except for two (2) non-restricted managers’ units, on the approximately 2.61-acre site (“Project”) located at 4122-4124 Byway East and a parcel with no assigned address (“Site”). A more detailed project description is provided below, along with the Applicant’s Project Description included as Exhibit C of Attachment 1.
Pursuant to Napa Municipal Code (“NMC”) Section 17.62.050(C), the Project requires approval of a Design Review Permit for the development of 178 multifamily units. Multifamily developments proposing thirty-one (31) or more dwelling units are subject to review and approval by the City Council.
In addition, the City Council shall consider, pursuant to NMC Section 17.52.130.C.3, findings that the density bonus, and any requested concessions or waivers, are authorized under State Density Bonus Law.
SITE CONTEXT AND HISTORY
The approximately 2.61-acre Project Site is located along Byway East, between El Centro Avenue and Reed Circle. The Site is adjacent to residential uses to the north and east, and residential and commercial uses to the south. Directly west of the Site are Byway East and State Route 29 (SR 29).
The Site is served by public transit operated by the Napa Valley Transit Authority, with nine (9) transit stops located within 0.5 miles of the Site, including four (4) stops for the Up-Valley Connector bus line and five (5) stops for the Vintage bus line. The closest bus stop, Byway Street East at Reed Circle, is less than 0.1 miles north of the Project Site.
While there are no dedicated bicycle facilities along Byway East, existing Class II bicycle lanes are provided along Solano Avenue, on the other side of SR 29, and an entrance to the Napa Valley Vine Trail is located within 0.1-mile walking distance from the Site. The adjacent segment of the Napa Valley Vine Trail provides protected regional bicycle access as far north as Yountville Park in Yountville, and as far South as Kennedy Park in Napa. With planned expansions, the Napa Valley Vine Trail could provide access as far north as Calistoga and as far south as the Vallejo Ferry Terminal.
Existing structures on the Site include one (1) single-story, single-family residence, a commercial office building and workshop, and accessory metal carport structures that serve as storage and working areas for the existing business operations. There are three (3) trees on the Project Site, two (2) of which are considered protected native trees pursuant to NMC Section 12.45.020. There are also existing mature trees on adjacent properties. Since the Project Site exceeds one (1) acre in size and is zoned for residential uses, on-site tree removal and trimming activities would be subject to the City’s Tree Preservation Ordinance (NMC Chapter 12.45). The Site frontage is currently unimproved and does not include curbs, sidewalks, and gutters. However, public infrastructure improvements are included as part of the Project and are discussed in further detail in this report.
According to records from the Napa County Assessor, the existing residence and office building were constructed in approximately 1955, and an addition to the commercial office building was constructed in approximately 1978. The Site first began operating as a recreational vehicle sales, repair, and storage center under the name Napa Valley Camper-Trailer Supply in the mid-1970s, as documented in the Napa Valley Register and historic aerial imagery.
The Site was annexed into the City of Napa’s city limits in 1998 as part of the El Centro Avenue and La Paz Annexation Project. At the time of annexation, Planning Staff noted that the existing business was a legally established business in Napa County with no outstanding code enforcement issues and therefore would be considered a legal non-conforming use upon annexation. The legal non-conforming use has continued at the Site following the property’s annexation into the City of Napa and would cease operation prior to the commencement of construction of the Project.
PROJECT DESCRIPTION
The following provides a detailed description of the key Project components. The Applicant’s Project Description is also provided for reference as Exhibit C of Attachment 1, and a copy of the Project Plans is provided as Exhibit D of Attachment 1.
A. Multifamily Building
The Applicant proposes the construction of one (1) multifamily building containing 178 dwelling units. The proposed building would range from four (4) to five (5) stories in height, with a maximum height of approximately 68 feet. The 68-foot maximum height would represent the tallest point of the stair tower serving all floors of the proposed building, while the maximum roof parapet height would be approximately 59’-3”. The proposed building would be massed to concentrate the five (5) story portion of the building toward the front of the Site, nearest to the adjacent commercial property. As the proposed building extends eastward, it would step down to four (4) stories, providing a transition in building height and massing between the five (5) story portion of the building and the adjacent neighborhood.
The building would be located approximately 11 feet from the front property line and would extend into the central portion of the Site. The building would feature a contemporary architectural style with a flat roofline. Façade projections ranging from approximately 1 to 7 feet in depth would provide visual relief and reduce the appearance of long, uninterrupted wall planes.
Additional architectural articulation would be provided through alternating paint colors, varied exterior materials, and color accent features adjacent to select windows. Exterior finishes would primarily consist of tan and green plaster, accented by board-and-batten siding and wood-finish metal siding. Color and material specifications are included on Sheet A3.0, Exterior Elevations, and Sheet A7.0, Material Board, found in Exhibit D of Attachment 1, Project Plans.
B. Floor Plans
One hundred ten (110) one (1)-bedroom / one (1)-bathroom units would be proposed in floor plans ranging from approximately five hundred fifty-nine (559) to six hundred twenty-seven (627) square feet, and sixty eight (68) two (2)-bedroom / one (1)-bathroom units would be proposed in floor plans ranging from approximately seven hundred and twenty-one (721) to seven hundred and seventy-eight (778) square feet. Sample floor plans are shown on Sheet A6.0, Unit Plans, found in Exhibit D of Attachment 1, Project Plans.
Units would be arranged so that there would be 23 units on the first floor, 42 units on the second floor, 44 units on each of the third and fourth floors, and 25 units on the fifth floor. Stairways would be provided near the front, middle, and rear of the proposed building, providing access from the ground level to the upper floors. Elevators would also be provided near the front and rear of the building to provide an alternate means of access to the upper floors. Floors 2 through 5 would each include one (1) communal laundry room. Floors 1 through five would include one (1) room containing trash chutes, providing a means of consolidated waste collection for compost, recycling, and landfill materials.
Approximately 30 vehicle parking spaces, including one (1) Americans with Disabilities Act (“ADA”)-compliant space, would be provided at the ground level as “tuck-under” parking integrated into the building design. Amenities including long-term bicycle parking, a community club and computer room, fitness room, and mail room would be accessible from the ground level. The leasing office and lobby would also be located at the ground level, with a public-facing entrance along the Project frontage providing access for prospective tenants and visitors.
The building footprint would be arranged in a manner that would create a series of courtyards and recreation areas semi-enclosed by the building wings. The building form would provide a visual buffer between the Project frontage, on-site common areas, and surface parking towards the center and rear of the Site.
C. Site Improvements
Since the proposed building would be concentrated within the west and central portions of the Site, parking, emergency vehicle access, and waste collection vehicle access would be located along the north, east, and southern portions of the property.
Vehicles would access the Site from two (2) proposed driveways located along the Project frontage on Byway East, both of which would accommodate two-way vehicular traffic and allow for right and left turn maneuvers onto Byway East. 182 on-site vehicle parking spaces would be provided, with approximately 30 of the total vehicle parking spaces located at the ground level as “tuck-under” spaces integrated into the building design.
Light-emitting diode (“LED”) pole lighting would be installed within proposed landscaping areas adjacent to on-site parking to illuminate surface parking areas. All proposed lighting would be conditioned to be shielded and directed downward to prevent glare onto adjacent properties. LED bollard lighting would also be installed within the outdoor common areas to illuminate pedestrian pathways and gathering areas. The pole and bollard lighting would be operated on a timer, with illumination provided from dusk to dawn.
A solid waste enclosure would be located along the north side of the property and would be used as a staging area for regular waste collection activities. Trash bins and carts would only be placed within the solid waste enclosure on service days. On non-service days, the waste bins and carts would be stored in the ground-level waste room, directly across the drive aisle from the solid waste enclosure.
Shared outdoor common areas would be located between the building wings, and pedestrian pathways would provide access from the public sidewalk to the common areas and building entrances. The common areas would be enclosed by perimeter fencing, and access would be limited to residents and their guests. Together, these areas would total approximately 9,261 square feet and would include a built-in barbecue adjacent to the community club and computer room, picnic tables, game tables, lounge seating areas, and an open synthetic turf area.
Landscaping would be installed throughout the Site, with plantings including trees, shrubs, grasses, and groundcover. Proposed landscaping would be designed to include drought-tolerant species and would be subject to compliance with the City of Napa’s Water Efficient Landscape Ordinance (WELO). Two (2) Protected Native Trees and one (1) non-protected tree would be removed from the Project Site and would be subject to compliance with NMC 12.45, Trees on Private Property. The locations of the existing trees would interfere with the proposed circulation and surface parking improvements, thereby requiring their removal for construction of the Project. Furthermore, the Applicant requested a waiver from the parking lot landscaping requirement which would require a landscaping strip measuring approximately 45 square feet (3 feet by 15 feet) for every 10 parking spaces, as strict adherence to this requirement would preclude the Project from being built to the permitted density. The Applicant would instead provide, on average, one landscaped area measuring approximately 45 square feet for every 12 parking spaces.
The Applicant’s Stormwater Control Plan is included as Sheet DR5.0 found in Exhibit D of Attachment 1, Project Plans. Approximately 3,892 square feet of bioretention areas would be provided on the Project Site. These bioretention areas would be planted with drought-tolerant plant species and would serve a dual purpose as landscaping and stormwater infrastructure by capturing and treating on-site drainage before discharge into the City’s stormwater system.
D. Off-Site (Public) Improvements
The Project includes a public sidewalk and on-street parking consistent with the Alternate Residential Sidewalk (City Standard S-4) design criteria and would be installed along the Project Site’s frontage on Byway East. The sidewalk would connect to the existing sidewalk network north and south of the Project Site, providing pedestrian connections to existing transportation infrastructure such as NVTA transit stops and the Napa Valley Vine Trail.
Additionally, the Project would include the installation of an approximately 480-foot-long segment of 18-inch-diameter storm drain within Byway East, which would extend from the Project Site to the box culvert wall adjacent to Salvador Creek. This proposed storm drain would convey Project-generated stormwater runoff to the City’s stormwater infrastructure network.
E. Density Bonus
The Applicant requested a Density Bonus under the provisions of California Government Code Section 65915 and NMC Section 17.52.130. A Density Bonus request allows for an increase in the maximum allowable density under the applicable Zoning Ordinance and General Plan, in exchange for providing a portion of, or all total units as deed-restricted units affordable to lower-income households.
The property is located within the High-Density Residential General Plan Designation, which allows for multi-family residential development at a density of eighteen 18 to 40 units per acre. The 2.61-acre Project Site would allow for the development of between 47 and 105 dwelling units. The Applicant has requested a density bonus to increase the maximum residential density established by the General Plan pursuant to the State Density Bonus Law (California Government Code Section 65915) and locally implemented by NMC Section 17.52.130. The maximum density bonus of 80% for the 2.61-acre Site would allow for up to 189 units. The Applicant requested a 69% density bonus for a total of 178 units, which falls below the maximum allowable increase.
In addition to an increase in the maximum allowable density, qualifying projects may be eligible for a specified number of concessions (also commonly referred to as incentives), depending on the percentage and affordability level of the restricted units being provided. Concessions allow a Project Applicant to request a modification of site development standards, the approval of mixed-use zoning, or an exception from other regulatory requirements which would result in identifiable and actual cost reductions for the development. Here, because the Project would reserve one hundred percent of the dwelling units (except for two (2) non-restricted manager’s units) for lower-income households, it would be eligible for up to five (5) concessions, which are described below.
In addition, the Applicant would also be eligible for waivers of development standards which would physically preclude the construction of the Project at the proposed density. Unlike concessions, there is no limit to the number of waivers that an Applicant may request, and the basis of the request is related to the ability to physically develop the Project at the proposed density, rather than demonstrating an identifiable and actual cost reduction.
The requests for concessions and waivers are allowed under California Government Code Section 65915(d) and (e), respectively, which allows Applicants to request Development Concessions that will result in identifiable and actual cost reductions to provide for affordable housing costs, and waivers of development standards which would have the effect of physically precluding the construction of a development being awarded a Density Bonus. As described below, the Applicant has requested two (2) concessions and six (6) waivers of otherwise-applicable development standards.
i. Concessions
1. Standard Parking Space Width - Within NMC 17.54, Parking, the standard vehicle perpendicular parking space width is 9 feet. The Applicant has requested a development concession to allow the reduction of the stall width by one half of a foot, from 9 feet to 8.5 feet. If applicable, spaces adjacent to landscape area(s) would still require 0.5 feet in additional width, and spaces adjacent to wall(s) or fence(s) would require 1 foot in additional width; and
2. Mechanical and Utility Equipment Screening - Within NMC 17.08.040 and NMC 17.52.350, all outdoor mechanical and rooftop mounted mechanical equipment must be screened. The Applicant has requested a development concession to remove the requirement for equipment screening and intends to provide mechanical and utility equipment screening as feasible.
ii. Waivers
1. Building Height - Within the Multifamily Residential (RM) Zoning District, there is a maximum building height of 3 stories (35 feet) as required by NMC 17.08.030. The Applicant has requested a waiver to allow for an increase in building height to up to 5 stories (68 feet); and
2. Front Yard Setback - Within the Multifamily Residential (RM) Zoning District, there is a minimum required front yard setback of 20 feet, as required by NMC 17.08.030. The Applicant has requested a waiver to allow for building construction up to a reduced front yard setback of 11 feet; and
3. Side Yard (Interior) Setback - Within the Multifamily Residential (RM) Zoning District, a development containing three (3) stories would be subject to a minimum 15-foot interior side yard setback, as required by NMC 17.08.030. There are two (2) side yard areas on the subject property-the north-facing side yard setback would be compliant, measuring approximately 37 feet, while the south-facing side yard would be set back approximately 3 feet. The Applicant has requested a waiver to allow for a reduced interior side yard setback of approximately 3 feet from the south-facing property line; and
4. Usable Outdoor Area - Within the Multifamily Residential (RM) Zoning District, new developments are required to provide approximately 200 square feet of usable outdoor area per residential unit, as required by NMC 17.08.030. The required open space may include private outdoor spaces such as balconies and common outdoor areas. The Applicant has requested a waiver from the minimum open space requirement and would provide approximately 52 square feet of outdoor usable space per dwelling unit; and
5. Parking Lot Landscaping - Under the City’s adopted Landscape Standards outlined in Resolution No. 86-76, surface parking areas are required to provide one landscaped area measuring approximately 45 square feet (3 feet wide by 15 feet long) for every ten (10) parking stalls. The Applicant has requested a waiver from the parking lot landscaping requirement, since compliance would require more landscape areas, resulting in a reduction in building area. The Applicant would provide, on average, one landscaped area measuring approximately 45 square feet for every twelve (12) stalls; and
6. Minimum Parking Requirements - The required parking for the Project, in accordance with NMC Chapter 17.54.040, would be 1.25 spaces per one (1)-bedroom unit, 1.5 spaces per two (2)-bedroom unit, and one (1) guest parking space for every four (4) dwelling units. Overall, the Project would be required to provide 285 vehicle parking spaces. The Applicant has requested a waiver from the minimum parking requirements and would provide a total of 182 on-site parking spaces, equal to at least one (1) vehicle parking space per dwelling unit.
In accordance with NMC 17.52.130, the Applicant was required to provide justification for the requested concessions and waivers, demonstrating that strict adherence to the identified development standards would preclude the construction of the Project at the permitted density, and that concessions would provide identifiable and actual cost reductions to provide for affordable housing costs. The Applicant provided justification for these requests on pages 6 and 7 of Exhibit C of Attachment 1, Project Description. Staff determined, based on the justification provided by the Applicant, that granting the requested concessions would result in identifiable and actual cost reductions, consistent with Government Code section 65915(k), to provide for affordable housing costs. Staff further found that imposition of the development standards for which the Applicant requested the waivers would physically preclude development of the Project at the density permitted under Government Code section 65915.
ANALYSIS
The following sections provide the staff’s analysis of the Project, its relationship to the General Plan, and conformance with the Zoning Ordinance.
The subject Project was applied for under SB 330 (Housing Crisis Act of 2019) which modified portions of the Permit Streamlining Act (California Government Code SS 65920 et seq.) and The Housing Accountability Act (California Government Code Section 65589.5). These statutes require, among other things, that Projects can only be reviewed against “objective, quantifiable, written development standards, conditions and policies” (Section 65589.5(f)(1)). An “objective design standard” is defined as a standard “that involves no personal or subjective judgement by a public official and is 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 before submittal of an application” (California Government Code Section 6300(a)(7)).
The Applicant also requested a Preliminary Application pursuant to SB-330, thereby “locking-in” the development standards and fees applicable to the Project as those in effect on the day that the Preliminary Application was deemed Complete. The preliminary Application for the Project was deemed complete on April 1, 2026. As such, the development standards that apply to the Project must be objective and in effect as of April 1, 2026.
A. General Plan
The Project site is designated as High-Density Residential (HDR) under the Napa 2040 General Plan. According to the General Plan, this designation provides for the development of a full range of housing types including multifamily residential units. The Project, which proposes the development of a multifamily building containing 178 dwelling units, would be consistent with the intent of the HDR designation.
Density - Base and Density Bonus
The High-Density Residential Designation requires a density range of between 18 and 40 dwelling units per acre (DU/Ac). At approximately 2.61-acres, the Project Site could yield between 47 and 105 residential units.
The Applicant applied for a Density Bonus Request pursuant to California Government Code 65915 and NMC Section 17.52.130. A Density Bonus request is a request for an increase in the maximum allowable density under the applicable Zoning Ordinance and General Plan, in exchange for the provision of deed-restricted rental units for lower-income households.
Under Government Code Section 65915(f)(3)(D)(i), the Project, which would reserve 100% of the units for lower-income households (exclusive of two (2) manager’s units), would be eligible for up to an 80 percent density bonus increase from the base allowances under the Napa 2040 General Plan. This 80 percent increase would result in a permitted density of up to 189 units, equal to 72.4 DU/Ac. The Project would include a request for 178 total units, equal to a density of approximately 68.2 DU/Ac and a density increase of 69 percent. In summary, the proposed density of 68.2 DU/Ac and density increase of 69 percent would be consistent with State Density Bonus Law and the Napa 2040 General Plan.
General Plan Goals and/or Policies
The Project would be consistent with several of the Napa 2040 General Plan Goals and/or policies, including the following:
Land Use Element
• Policy LUCD 3-1: Promote development that fosters a sense of community by providing safe, pedestrian-friendly, tree-lined streets; walkways to everyday destinations such as schools, bikeways, trails, parks, and stores; buildings that exhibit visual diversity, pedestrian-scale, and street orientation; central gathering places; and recreational amenities for a variety of groups.
Staff Analysis: The Project promotes development which would foster a sense of community by providing public improvements, including a sidewalk, curb, and gutter along the Project frontage, which would enhance pedestrian connectivity between the existing facilities in the surrounding area and provide access to nearby transit options. Although the proposed sidewalk would be curb-adjacent and would not provide a planting strip in the public right-of-way, four (4) street-facing trees, including one (1) Canada Red Chokecherry tree, and three (3) Crape Myrtle Trees, would be planted near the front property line. The proposed multifamily building would be oriented towards the street, with on-site parking primarily located to the sides and rear of the building, creating a more pedestrian-friendly streetscape by emphasizing the building frontage rather than surface parking areas. The Project would also include connections from the public sidewalk to on-site pedestrian pathways leading to the residential building and outdoor common areas. Residents would have access to a variety of indoor and outdoor amenities, such as an exercise room, community club and computer room, and outdoor gathering and recreation spaces. Overall, the Project would further the General Plan policy of promoting development which fosters a sense of community through pedestrian-oriented Site design, street-oriented building placement, and the provision of recreational and gathering spaces.
• Policy LUCD 6-3: Foster production of a range of housing types to meet the needs of the City’s increasingly diverse and changing population and enable a greater share of the workforce to live in the community.
Staff Analysis: The Project would foster the production of 178 multifamily dwelling units, introducing a high-density multifamily development into a neighborhood primarily consisting of single-family and mobile home dwelling units. The Project Site’s proximity to State Route 29 (SR 29) corridor, with access to regional bus service and the Napa Valley Vine Trail, would provide convenient access to areas of employment throughout the City of Napa and the greater Napa County area. The creation of income-restricted, multifamily housing at the Project Site would increase available multifamily dwelling units in the City’s housing stock, thereby furthering the General Plan’s policy of fostering the production of a range of housing types, and enabling a greater share of the local workforce to live in the community.
• 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.
Staff Analysis: The Project would help to provide a balanced neighborhood by introducing a high-density multifamily development with one (1)- and two (2)-bedroom units reserved for lower-income households. The Project would expand the range of housing types and affordability levels available in the immediate area, which is primarily developed with single-family and mobile home dwelling units. Therefore, the Project would further the General Plan’s policy of accommodating a variety of housing types and densities to meet the diverse demographic, economic, and social needs of residents.
• Policy LUCD 10-4: Encourage the development of housing for elderly, disabled, and low-income households in all parts of the community.
Staff Analysis: The Project would provide deed-restricted housing for lower-income households, except for two (2) non-restricted manager’s units. The 176 units reserved for lower-income households would be subject to a 55-year affordability covenant, ensuring that they would remain available for rental to lower-income households over a long-term period. Therefore, the Project would further the General Plan’s policy of encouraging the development of housing for lower-income households in all parts of the community.
Transportation Element
• Policy TE 1-2: Foster a more connected system of streets, pedestrian facilities, and bicycle facilities as new development and redevelopment is undertaken, or as opportunities are presented.
Staff Analysis: The Project would foster a more connected system of pedestrian and bicycle facilities by constructing a new public sidewalk along the Project frontage, thereby closing an existing gap in the pedestrian network and improving connectivity to surrounding properties and nearby transit options. While the Project would not construct off-site bicycle facilities, it would provide approximately 89 long-term and 12 short-term bicycle parking spaces on-site, supporting bicycle use by residents and visitors alike. Additionally, the Project Site is located approximately 0.1 miles to an entrance of the Napa Valley Vine Trail, providing convenient access to a regional bike path. Therefore, the Project would further the General Plan’s policy of fostering a more connected system of streets, pedestrian facilities, and bicycle facilities as new development occurs.
• Policy TE 3-5: Improve connections to existing pedestrian and bicycle facilities from existing neighborhoods.
Staff Analysis: The Project would improve connectivity to existing pedestrian and bicycle facilities by constructing a new public sidewalk along the Project frontage. The completed sidewalk would provide a safe and direct connection to adjacent properties, the existing signalized crosswalk across Highway 29, nearby transit stops, and the Napa Valley Vine Trail, thereby improving access to the surrounding pedestrian and bicycle network for the Project’s future residents and the surrounding neighborhood. Overall, the Project’s proposed public improvements would further the General Plan’s policy of improving connections to existing pedestrian and bicycle facilities from existing neighborhoods.
Public Health and Equity Element
• Policy PHE 6-5: Monitor market conditions and assess opportunities to provide additional incentives for developments that include significant community benefits, such as affordable housing, three-bedroom units, childcare, grocery stores, publicly accessible urban open space, on-site performance space, public art, and green building features. Incentives may include expedited permitting, fee deferrals, deferred financing for affordable housing, density bonuses, and other items.
Staff Analysis: The Project would provide a significant community benefit by providing 176 deed-restricted units for rental to lower-income households. Additionally, the proposed Project would incorporate green building features, including landscaping compliant with the City’s Water Efficient Landscape Ordinance (WELO), energy efficient Light-Emitting Diode (LED) lighting installed throughout the parking areas and along pedestrian pathways, and roof-mounted solar panels. Recognizing these community benefits, the Applicant has requested a Density Bonus pursuant to California Government Code Section 65915 and NMC 17.52.130. As outlined in this report, the Project would qualify for an increase in allowable residential density, waivers from applicable development standards, and concessions under State Density Bonus Law, based on its provision of 100 percent affordable units, exclusive of the two non-restricted (2) manager’s units. Therefore, the Project would further the General Plan’s policy of encouraging incentives for developments that provide significant benefits for the community, including affordable housing units and green building features.
Housing Element
• Policy H1-1: The City will continue to support and implement adopted plans and actions to respond to the needs of all segments of the population, including zoning approaches as required by State law.
Staff Analysis: The Project would support and implement adopted plans and actions within the City of Napa Housing Element. The Project would provide 176 deed-restricted affordable multifamily dwelling units, responding to the needs of lower-income households and increasing the supply of affordable housing in the City of Napa. The Project would also utilize concessions and waivers from otherwise applicable development standards pursuant to State Density Bonus Law, consistent with the zoning approaches required by State law to facilitate affordable housing development. Overall, the Project would be consistent with Housing Element Policy H1-1 and Program H1-1.1, which states that the City will actively collaborate with developers to assist in the development of housing, and utilize density bonuses, among other resources, to achieve this.
• Policy H1-2: The City will prioritize providing housing assistance and housing development incentives that serve those groups with demonstrated special needs, such as lower income households, seniors, persons with disabilities, person with mental illness, large families with children, female-headed households, victims of domestic violence, transitional aged youth, and people who are exiting homelessness.
Staff Analysis: The City would prioritize providing development incentives for the Project, such as an increase in the maximum allowable density, and concessions and waivers from otherwise required development standards. The Project would provide 176 deed-restricted affordable dwelling units for lower-income households, a group specifically identified by Policy H1-2 as having demonstrated special needs. The affordability of the units would be secured through a deed restriction agreement, ensuring that the units would remain available to qualifying lower-income households. Overall, the Project would be consistent with Housing Element Policy H1-2.
• Policy H2-1: The City will assure that affordable housing provided through density bonuses, ADUs, and other programs or incentives remains affordable long-term, consistent with State law.
Staff Analysis: The Project would contain a request for a Density Bonus, including an increase in the maximum allowable density, and concessions and waivers from otherwise applicable development standards. The Project would be conditioned to require the Applicant to submit an affordable housing regulatory agreement and declaration of restrictive covenants (also referred to as “deed restriction”) for review and approval by the City Attorney, Community Resources and Development Director, and Housing Manager. The agreement would be recorded against the Project Site in the Official Records of Napa County and would include provisions to ensure compliance with NMC 17.52.130 and Government Code 65915.
B. Zoning
The Project site is zoned Multifamily Residential (RM), which contains development standards consistent with the High Density Residential General Plan Designation. The Project design’s compliance with these regulations is demonstrated in Figure 2, RM Development Standards Matrix.
As demonstrated in Figure 2, the Project would comply with the maximum lot coverage percentage for the Site and the rear yard setback requirement. However, the development’s proposed height, front setback, side yard setback, and the outdoor usable area per unit would not meet the requirements in the City’s Zoning Ordinance.
Figure 2
RM Development Standards Matrix
|
Standards |
Required |
Proposed |
|
Site Area |
5,000 sq. ft |
≈ 2.61 acres / 113, 798 sq. ft. |
|
Lot Coverage (%) |
50% (Maximum) |
30% |
|
Maximum Height** |
3 Stories or (35’) (Maximum) |
5 Stories (68’)** |
|
Front Setback** |
20’ (Min.) |
11’** |
|
Side Yard** |
15’ (Min.) |
37’/3’** |
|
Rear Yard |
20’ (Min.) |
131’-6” |
|
Usable Outdoor Area per Unit** |
200 sq ft./unit (Minimum) |
Approximately 52 sq ft/unit.** |
As discussed in this report, the Applicant requested a Density Bonus under the provisions of California Government Code 65915 and NMC 17.52.130. The Density Bonus request would allow the Project Applicant to request an unlimited number of waivers from existing development standards under the City’s Zoning Ordinance. As part of the waiver requests, the Applicant was required to provide their justification for the requested waivers, demonstrating that the application and enforcement of certain development standards would preclude the construction at their Project at the permitted density. The Applicant provided their justification for these requests on pages 6 and 7 of Exhibit C of Attachment 1, Project Description.
During staff’s review of the Project, the concession and waiver requests were accepted and reviewed, and staff has concluded that the Applicant provided sufficient justification that concessions to reduce the minimum stall width and remove the mechanical equipment screening requirements would result in identifiable and actual cost reductions for the Project. They also provided justification on how the strict adherence to requirements for the height, front setback, side yard setback, and useable outdoor area per unit, would reduce the density at which the Project could be built. While these aspects of the Proposed Project would not meet the applicable development standards of the RM zoning district, those modifications are expressly authorized under State Density Bonus law and would not render the Project inconsistent with the City of Napa Zoning Ordinance.
C. Parking
Napa Municipal Code Section 17.54.040, Parking Requirements, requires multifamily developments consisting of 50 or more dwelling units to provide 1.25 spaces for each one (1)-bedroom unit, 1.5 spaces for each two (2)-bedroom unit, and one (1) guest parking space per each four (4) units. Of these required spaces, at least one space must be in a garage or carport. Under NMC 17.54, the proposed development would be required to provide 285 on-site vehicle parking spaces. As discussed above, the Applicant requested a concession modifying the minimum parking requirements pursuant to State Density Bonus Law. The Project Plans demonstrate that 182 on-site vehicle parking spaces would be provided, including standard, compact, and Americans with Disabilities Act (“ADA”)-compliant spaces. This would be equal to a minimum of one (1) vehicle parking space per unit. Approximately 30 of the total spaces would be provided as ground level “tuck-under” vehicle parking spaces, thereby complying with the requirement that at least one space is located within a carport or garage. All 178 spaces would be electric vehicle (“EV”) capable, meaning that each vehicle parking space would be provided with the necessary infrastructure to support EV charging equipment.
The Applicant would commit to installing the California Building Code-required number of EV charging ports as part of the Project. Ensuring that all on-site parking stalls are EV capable could help to facilitate the future installation of additional EV charging ports. Lastly, the Project would include the construction of a curb-adjacent sidewalk, creating additional on-street parking along the Project Site’s Byway East frontage. While the Project requests a concession modifying the vehicle parking requirements, the modification is expressly authorized under State Density Bonus law and would not render the Project inconsistent with the City of Napa Zoning Ordinance.
REQUIRED FINDINGS
The Project requests approval of a Design Review Permit. The following section identifies the required findings to support the Project. Detailed Staff analysis for each finding can be found in Attachment 1, Draft Resolution.
Design Review Permit
Pursuant to NMC 17.62.050(C)(2), the Project would require approval of a Design Review Permit by the City Council. To approve the Project, the following findings pursuant to NMC Section 17.62.080(A-C) shall be made.
• The Project design is in accord with the General Plan and any applicable specific design plan policies.
• The Project Design is consistent with applicable design review guidelines adopted by the City Council.
• The Design Review Permit is in accord with provisions of this title and will not be detrimental or injurious to property or improvements in the vicinity of the development site, or to the public health, safety, or general welfare.
Density Bonus
Pursuant to NMC 17.52.130(C)(3), the City Council shall act as the final decision-making body for granting requests for increases in overall density, concessions, and waivers consistent with State Density Bonus Law. Neither the Government Code 65915 (the State Density Bonus Law) nor the NMC requires any specific findings to support a City Council approval of requests pursuant to GC 65915. Nonetheless, Staff recommends that Council make the following findings:
• The Development Concessions requested by the Applicant will result in identifiable and actual cost reductions to provide for affordable housing costs, consistent with the requirements of Government Code section 65915.
• The waivers requested by the Applicant are necessary to allow the Project to be built to the density allowed under Government Code section 65915.
Protected Native Trees
The Applicant requests the removal of two (2) Coast Redwood trees that are each classified as a Protected Native Tree pursuant to NMC Chapter 12.45. Pursuant to NMC Section 12.45.090(B)(2)(d), to approve the removal of Protected Native Trees, the following finding shall be made:
• The Project has minimized tree loss to the extent possible when balanced with General Plan land uses and policies and applicable design guidelines.
Interim Zoning Ordinance
Pursuant to Section 4.I of the Interim Zoning Ordinance (City Ordinance No. O2025-007), the City Council must also make the following findings relating to the conformance of the General Plan and the Existing Zoning Ordinance.
• The Project will further the goals, objectives, and policies of the General Plan and not obstruct their attainment.
• The Project substantially conforms to the Zoning Ordinance Requirements of the applicable Zoning District determined in accordance with Section 3.I of this Ordinance.
PLANNING COMMISSION REVIEW
The Planning Commission reviewed the Byway East Design Review Permit at their October 1, 2026, regular meeting. Six (6) members of the public spoke during the public comment period. The comments generally expressed support for affordable housing development in the City, but noted concerns regarding the Project, including the proposed building design, compatibility with the adjacent neighborhood, adequacy of on-site parking and potential overflow parking onto nearby streets, potential increased traffic congestion, and pedestrian safety. Additional concerns included the availability of sidewalks and pedestrian facilities in the immediate area, potential impacts on drainage for adjacent properties, and the extent of public noticing for the Project.
During deliberations, the Planning Commission acknowledged the concerns aside by public speakers and posed questions to staff and the Applicant team regarding the analysis presented in the Transportation Impact Study (TIS) as well as the proposed grading and drainage improvements. The Planning Commission then requested clarification regarding the applicability of the State Density Bonus Law and the Housing Accountability Act, as these laws relate to the City’s discretion in reviewing the Project and associated requests for concessions and waivers. The City’s legal counsel provided clarification on the applicable requirements and limits on the Commission’s discretion.
Following deliberations, the Planning Commission voted 4-1 on a motion to forward a recommendation of approval to the City Council, with Commissioner Myers opposing. The recommendation included requests for further consideration of the amount of open space provided, the types of facilities provided within the common space areas, the potential for increased bicycle parking due to limited on-site parking provided, and the potential health and safety impacts resulting from the requested parking waiver as defined in California Government Code 65915.
FINANCIAL IMPACTS:
No direct financial impacts to the City have been identified with this agenda item.
CEQA:
Staff recommends that the City Council determine that the Project is exempt from the requirements of CEQA pursuant to CEQA Guidelines Section 15332 (Categorical Exemptions; Class 32) of the CEQA Guidelines because the Project is characterized as in-fill development and meets the requirements for the categorical exemption set forth in Section 15332. The Project is consistent with the General Plan and the Zoning Ordinance, the Site is located within the City Limits on a property less than five (5) acres which is substantially surrounded by urban uses, the Site has no value as habitat for endangered, rare, or threatened species, approval of the Project would not result in any significant impacts relating to traffic, noise, air quality, and water quality, and the Site can adequately be 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 Site is in an urbanized area with no environmentally sensitive habitat or species of concern on the property, there have been no successive efforts to intensify land use in the area, no unusual circumstances exist that would pose a reasonable possibility of having a significant effect on the environment, the Project does not negatively affect historic resources, and none of the other exceptions identified in Section 15300.2 are present or apply to the Project. Based on this analysis, and the analysis included in Exhibit B of Attachment 1, further supported by the Appendices, no significant environmental effects would result from the Project, and the use of the categorical exemption is appropriate.
DOCUMENTS ATTACHED:
ATCH 1 - Draft Resolution
EX A - Conditions of Approval
EX B - Class 32 Memorandum
EX C - Project Description
EX D - Project Plans
EX E - External Agency Correspondence
ATCH 2 - Public Comment October 1 Planning Commission
ATCH 3 - Supplemental Memorandums October 1 Planning Commission
NOTIFICATION:
Notice that this application was received was provided by the City on July 10, 2026, and notice of the scheduled public hearing was provided on November 6, 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 November 5, 2026, 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 with a copy of this Report and the associated attachments in advance of the public hearing on the project.