TO: Board of Supervisors
FROM: David Morrison, Director of Planning, Building, and Environmental Services
REPORT BY: David Morrison, Director of Planning, Building, and Environmental Services
SUBJECT: Update to the 2008 Napa County General Plan, including the Baseline Data Report, Climate Action Plan, and Airport Land Use Compatibility Plan
RECOMMENDATION
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Director of Planning, Building, and Environmental Services requests discussion and direction regarding preparation of the following documents to initiate the complex process of a General Plan update:
1. Comprehensive update of the Baseline Data Report (BDR);
2. Completion of the Draft 2019 Climate Action Plan (CAP); and
3. Comprehensive update of the Airport Land Use Compatibility Plan (ALUCP).
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EXECUTIVE SUMMARY
The 2008 General Plan described the following vision for Napa County: “Today and in the future, unincorporated Napa County will be home to world-famous wines and a residential population smaller than most Bay Area cities and towns. The County’s scenic beauty, valuable agricultural resources, and quality of life are reinforced by longstanding commitments to agricultural preservation, resource conservation, and urban-centered growth. While other Bay Area counties have experienced unprecedented development and urban infrastructure expansion over the last four decades, Napa County’s citizens have conscientiously preserved the agricultural lands and rural character that we treasure.”
Napa County in 2022 reflects the vision defined above and the success of the 2008 General Plan. In fact, the emphasis on preservation and conservation has resulted in a rate of growth since 2005 (which serves as the baseline for the General Plan) that has been far less than what was expected. The General Plan assumed the creation of 2,935 new housing units and 8,259 new jobs in the unincorporated County between year 2005 and 2030. It also assumed the development of up to 12,000 acres of new vineyard during this time, as well as the approval of 225 new wineries, the majority of which would be less than 50,000 gallons annual production.
Instead, of creating 2,935 new houses, the total number of residential units from 2005 to 2021 has decreased by 773 homes. The number of people employed in Napa County has increased by only 2,200 since 2005. There have been 141 new wineries approved since 2005, well below the number anticipated, with the majority of new wineries having 30,000 gallons of annual production or less. A total of 5,402 acres of new vineyard have been approved over the past 17 years, much smaller than what was predicted.
The vision of the 2008 General Plan remains true. As reflected in the 2019 Strategic Plan, there is community consensus for Napa County to remain “…an agricultural treasure known for its legendary wines, our small-town character, and sustainable natural resources.” But the General Plan forecast rates of development that have not been achievable in light of unforeseen events such as the Great Recession of 2009, the earthquake of 2014, devastating wildfires in 2017 and 2020, the COVID-19 pandemic, and the current prolonged drought. Nor does the General Plan reflect the increasing importance of policies to effectively and immediately reduce greenhouse gas emissions, address environmental justice, and reflect the adopted Groundwater Sustainability Plan.
Staff believes that we should remain true to our shared vision, but that we need a course correction to reach that destination, in light of the significant social and environmental changes that have occurred since 2005. True, updating the General Plan is an ambitious undertaking. The comprehensive update will require several years, substantial cost, extensive public engagement, and a commitment of County staff resources to complete. Still, the challenge is well worth the effort to secure the policies needed for the next generation to protect and preserve our community into the future.
Staff also requests direction to return on August 23, 2022, with detailed proposals regarding schedule and budget, recommendations for creating an Advisory Committee for the, and provide an opportunity for the Board of Supervisors to discuss overall policy direction and vision for the comprehensive General Plan update.
PROCEDURAL REQUIREMENTS
1. Staff report;
2. Public comments;
3. Close public comments;
4. Motion, second, discussion and vote on item
FISCAL & STRATEGIC PLAN IMPACT
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Is there a Fiscal Impact? |
Yes |
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Is it currently budgeted? |
No |
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Where is it budgeted? |
N/A |
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Is it Mandatory or Discretionary? |
Discretionary |
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Discretionary Justification: |
An update to the General Plan is recommended to reflect significant changes since 2005, including wildfire, housing, and the economy; and to incorporate new issues regarding climate change, environmental justice, and groundwater sustainability. |
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Is the general fund affected? |
Yes |
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Future fiscal impact: |
Expenditures for the General Plan update would begin in the 2022-2023 Fiscal Year, and would likely continue for 4-5 years thereafter. |
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Consequences if not approved: |
The update of the General Plan would be delayed, but would likely need to begin no later than 2027. |
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County Strategic Plan pillar addressed: |
Effective and Open Government |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The proposed action is not a project as defined by Title 14 of the California Code of Regulations (CCR) Section 15378 (State California Environmental Quality Act (CEQA) Guidelines) and therefore CEQA is not applicable. As a project under CEQA, environmental review of the General Plan, ALUCP, and CAP will be conducted prior to adoption. In addition, the proposed action to seek direction is statutorily exempt under 14 California CCR Section 15262 as feasibility or planning studies for possible future actions which the Board of Supervisors has not approved, adopted, or funded.
BACKGROUND AND DISCUSSION
Every county and city in California is required by state law to prepare and maintain a General Plan.
State law requires that each General Plan include a minimum of seven elements: Land Use, Circulation, Housing, Conservation, Open Space, Noise, and Safety. In addition, jurisdictions that include disadvantaged communities are required to include an eighth element: Environmental Justice.
There is no requirement regarding how often a General Plan must be updated. Individual elements, however, have regularly mandated reviews. The Housing Element must be updated every eight years. Safety Elements must be updated following the adoption of a Hazard Mitigation Plan, which occurs every five years. Environmental Justice Elements must be adopted if two or more General Plan elements are updated at the same time.
The Environmental Impact Report (EIR) for the 2008 General Plan evaluated impacts through the planning horizon of 2030. This EIR assesses impacts of the General Plan over a long planning horizon, and consistent with CEQA, the EIR does not assess impacts based on theoretical “build out” of development potential, since build-out (i.e. the maximum permitted number of development on every parcel) may occur well past the 25 year planning horizon, if at all. Instead, the EIR analysis assesses potential policy changes under each alternative and relies on a set of reasonable projections of residential and employment growth that might be expected to occur.
However, any new development that would occur after 2030 may require additional analysis under the California Environmental Quality Act (CEQA).
History
The current General Plan was unanimously adopted by the Board of Supervisors on June 3, 2008, after a 4-year effort, and recommendations from both the Planning Commission and a 21-member Advisory Committee. The consultant who prepared the General Plan and Environmental Impact Report was Pacific Municipal Consultants, at a cost of $1.53 million.
Since 2008, there have been the following amendments to the General Plan:
• Proposed Land Use Map Amendment to resolve “urban bubbles” (2009)
• Napa Pipe Specific Plan (2013)
• Allied Clean Fuels Terminal (2014)
• Housing Element update (2014)
• County Jail (2014)
• Angwin Area (2016)
• Circulation Element update (2019)
• Vinum Greenwood Café (2020)
Currently, staff are working on three pending General Plan Amendments: Safety Element update, Housing Element update, and Capell School amendment.
PLANNING PROCESS
Updating the General Plan is a lengthy and complex project, as it sets out the land use blueprint for all of the unincorporated area over the next 20-25 years. Staff recommends the preparation of several critical documents early in this process to fully inform the public and decision makers about key issues before starting the review of the General Plan.
Baseline Data Report (BDR)
The BDR consists of a comprehensive set of data and maps reflecting existing environmental conditions in the County, as they existed in 2005. Although the document was envisioned as an evolving work product that could be updated as necessary over time to reflect new information, changes in plans adopted by other agencies, and other new information, the BDR has not been updated since 2005. Since that time, there have been substantive changes in the designation of earthquake faults, flooding and sea level rise, fire hazard areas, groundwater conditions, changes in the built environment, and changes in local and State policy. An update of the BDR would provide current information and analysis on the state of environment in Napa County, to provide a foundation for the work of the General Plan and accompany Environmental Impact Report.
Climate Action Plan (CAP)
A CAP is a comprehensive roadmap that outlines the specific activities that an agency will undertake to reduce greenhouse gas emissions (GHG). Climate action plans build upon the information gathered by GHG inventories and generally focus on those activities that can achieve the relatively greatest emission reductions in the most cost effective manner, to achieve long-term reduction goals.
A CAP is not a required element within the General Plan. Only about one-third of all California cities and counties to date have adopted a CAP. Although not required as a part of the General Plan, cities and counties are required to meet the State goals of reducing GHG emissions to 40% below 1990 levels by 2030 and to reduce GHG emissions to zero by 2045. GHG emissions are also required to be evaluated under the California Environmental Quality Act (CEQA).
The 2008 General Plan included goals, policies, and action items aimed at reducing GHG emissions, and Action Item CON CPSP‐2 directed that an emissions reduction plan be prepared. A Draft CAP was presented to the Board of Supervisors in 2012, but was not adopted. Preparation of a new CAP began in 2015 and the draft document was released for public review in 2017. Following a public hearing, the County determined that additional changes should be made to the draft CAP and that an Environmental Impact Report (EIR) should be prepared. A revised draft CAP was released for public review in 2019. The County’s draft CAP was placed on hold, when the Climate Action Committee (CAC) began meeting on regional GHG reduction strategies in 2019.
Staff believes that the General Plan update needs a clear framework to determine what land use actions will be necessary to meet the State’s adopted GHG reduction goals, including a quantitative and measurable strategy for achieving net zero emissions by 2045.
Airport Land Use Compatibility Plan (ALUCP)
The primary function of the ALUCP is to provide guidance to the Airport Land Use Commission (ALUC) in reviewing the land use plans and zoning regulations of local jurisdictions to ensure that future development is compatible with airport activities. The ALUC is an independent agency and their decisions are final. However, the ALUC has no authority over existing land uses and has no authority over the operation of any airport.
State law requires each ALUC to prepare an Airport Land Use Compatibility Plan (ALUCP) with a twenty-year planning horizon. Pursuant to the CalTrans Airport Land Use Planning Handbook, the ALUCP should be updated every 5-10 years to ensure consistency with General Plans, Specific Plans, etc. The current ALUCP was adopted in 1991 and was last amended in 1999.
The proposed General Plan update should include a review of the Napa Valley Business Park Specific Plan (NVBSP), as it provides land use policy for one of the largest employment centers in the incorporated area, and plays a key role in discussions of circulation and jobs/housing balance. The NVBSP lies entirely within the boundaries of the ALUCP.
Although the ALUC is a separate agency from the County of Napa, its activities and staffing are funded by the County. The ALUC has recommended that the ALUCP be updated. Staff recommends that an update of the ALUCP be prepared concurrently with the General Plan, for consideration and adoption by the ALUC.
Next Steps
Several decisions must be made in order for staff to proceed with the General Plan update. These include:
1. The formation of an Advisory Committee that would facilitate public input to the process;
2. The development of a timeline and general expected budget, so that a Request for Proposals (RFP) can be prepared to select and hire a consulting team to lead the process; and
3. The initiation of discussions regarding any significant changes to the content of the General Plan that the Board wishes to pursue.
The General Plan Update Steering Committee formed in 2005 consisted of 21 members. Each Supervisor selected four members from the public, with one additional member jointly selected by the five cities and town. Similar to other recent and ongoing public policy efforts such as the Groundwater Sustainability Plan Advisory Committee, the Drought and Water Shortage Task Force, and the Housing Element Advisory Committee, staff recommends that an Advisory Committee be formed to provide a means for the public to directly participate in the creation of the updated General Plan, as well as provide an ongoing public forum for general comment and input.
Staff’s preliminary estimate of costs for this effort is $7.3 million for outside consultant costs, as follows. These costs do not include estimates for staff time, which would largely be focused in the PBES and County Counsel Departments:
• $1.5 million for the BDR update;
• $400,000 to complete the Climate Action Plan and EIR;
• $400,000 for the ALUCP update; and
• $5 million for the General Plan update and EIR.
With regards to timeline, staff believes that the BDR update and completion of the CAP could both be accomplished within 18 months, by the end of calendar year 2023.
The BDR update could be completed within 18 months, by the end of 2023;
The Climate Action Plan and EIR could be completed within 12 months, by mid-2023;
The ALUCP update could be completed within 24 months, by mid-2024; and
The General Plan update and EIR could be completed within 54 months, by the end of 2026.
To provide both staff and the future Advisory Committee with the policy direction needed to prepare the General Plan update, staff recommends that the Board of Supervisors discuss overall policy direction and vision for the comprehensive General Plan update. This work can also be used to begin developing the various alternatives that will be evaluated in the Environmental Impact Report.
RECOMMENDATION
Staff also requests direction to return on August 23, 2022, with detailed proposals regarding schedule and budget, recommendations for creating an Advisory Committee for the, and provide an opportunity for the Board of Supervisors to discuss overall policy direction and vision for the comprehensive General Plan update.