TO: Board of Supervisors
FROM: Brian D. Bordona, Director of Planning Building & Environmental Services
REPORT BY: Brian D. Bordona, Director of Planning Building & Environmental Services
SUBJECT: General Plan and Baseline Data Report Project Updates
RECOMMENDATION
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Receive a presentation on the County’s Baseline Data Report Update; and provide direction regarding the proposed scope and approach for the General Plan Update and related Environmental Impact Report. (No Fiscal Impact)
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BACKGROUND
The 2008-2030 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.”
In large part, Napa County in 2025 reflects that vision and in many ways the success of the 2008 General Plan, which prioritized agricultural preservation and conservation of natural resources. The growth rate since the 2005 baseline data report has been significantly less than projected, demonstrating effective General Plan implementation of subsequent policies and action items. The 2008 General Plan growth projections assumed a higher development pace between 2005 and 2030, including:
• 2,935 new housing units;
• 8,259 new jobs;
• Development of up to 12,000 acres of new vineyard; and
• Approval of 225 new wineries, the majority of which would be less than 50,000 gallons annual production.
Contrary to these projections, actual growth levels have been much lower:
• Only 223 new housing units (0.4%) were added in the unincorporated area between 2010 and 2021;
• Employment grew by approximately 7,100 people since 2010;
• Development of approximately 5,402 acres of new vineyard; and
• Approval of approximately 137 use permits for new wineries (mostly 30,000 gallons/year or less) since 2005.
Although the 2008 General Plan has served the community well, it does not reflect the significant changes and challenges faced by the County since its adoption; including the Great Recession of 2009, the 2014 earthquake and new fault line discoveries, devastating wildfires in 2017 and 2020, and the COVID-19 pandemic in 2020. Furthermore, the plan does not reflect the increasing urgency of addressing climate change and adaptation, nor does it incorporate critical issues such as environmental justice, the adopted Groundwater Sustainability Plan, the Community Wildfire Protection Plan, affordable housing, and substantial state-level regulatory changes. Finally, it does not capture the significant advancements in sustainable farming, water conservation, and winemaking practices, or the evolving nature of winery operations, particularly regarding marketing, visitation, and hospitality.
That said, the County is well-positioned with the recently adopted 2025-2030 Strategic Initiatives, which provide a solid foundation for the General Plan Update (GPU). These initiatives offer clear and strong guidance supporting agricultural preservation, environmental sustainability and resilience, and the development of healthy, connected communities.
• Preserve Napa County’s Agricultural Legacy - We will continue to safeguard the Agricultural Preserve and shape land use policies that sustain Napa County’s agricultural economy - balancing economic vitality, rural character, and environmental protection.
• Champion Environmental Sustainability and Resilience - We will take decisive action, integrate climate resilience into decision making, and protect natural resources to build a sustainable, healthy future for our community.
• Build Healthy, Connected Communities - We will foster inclusive, connected, and responsive communities by advancing livability, mobility, and accessibility - creating welcoming, opportunity-rich places that adapt to the evolving needs of all people, especially those most vulnerable.
The General Plan Update is an ambitious undertaking, requiring several years, substantial cost, extensive public engagement, and a significant commitment of County staff resources. It also represents an exciting and tremendous opportunity to secure the goals and policies needed for the next generation to realize our shared vision and protect and preserve community values in the future.
This report and presentation are intended to provide an overview of the GPU’s purpose and value, outline the proposed approach, process, and timeline for the project, and offer a status update on the BDR. Following any direction from the Board related to the proposed GPU scope and approach, Staff plans to return to the Board in early 2026 to request approval for the expanded scope and associated ESA contract amendment for the project.
The General Plan Update and Supporting Baseline Data Report
Overview
The General Plan is more than the legal foundation for land use decisions; it is a vision about how a community will grow, reflecting community priorities and values while shaping the future. All counties and cities in California are 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. Jurisdictions located within the San Joaquin Valley Air Basin are required to include an Air Quality element. Jurisdictions that include disadvantaged communities are required to include an Environmental Justice element.
Other elements may be included at the jurisdiction’s discretion. A 2019 survey by the Governor’s Office of Land Use and Climate Innovation (formerly Office of Planning and Research) identified over 50 types of optional elements adopted by cities and counties, with the most frequent subjects including:
• Community (health, education, public services, social services, childcare);
• Environment (resource conservation, biological resources, water, forestry, coastal);
• Parks (bicycles, trails);
• Climate Change (adaptation, greenhouse gas emissions, sustainability);
• Emergency (fire, flood control, seismic);
• Public Facilities (airport, military bases, parking);
• Economy (fiscal, commerce, redevelopment);
• Aesthetics (design, historic preservation, scenic highways); and
• Other (agriculture, cultural resources, governance, waste, growth management, energy).
Each jurisdiction must adopt the baseline required elements but may tailor the document to reflect the community’s particular strengths, concerns, priorities, and goals. The General Plan is often referred to as being equivalent to a jurisdiction’s Constitution. Choosing what topics to include and/or elevate is an important policy balance. Policies and actions included in the General Plan carry significant weight in decision-making and legal support, but they are also more complicated and require more time to amend to respond to rapidly changing circumstances.
The 2008 Napa County General Plan contains the following eight elements: 1) Agricultural Preservation and Land Use, 2) Circulation, 3) Community Character (including Noise), 4) Conservation, 5) Economic Development, 6) Housing, 7) Recreation and Open Space, and 8) Safety.
State law does not mandate how often a General Plan must be comprehensively updated. However, individual elements have specific required review cycles. 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 and if disadvantaged communities are present within the jurisdiction. While the General Plan has not been fully updated since 2008 specific elements have been updated: the Housing Element in 2014 and 2023, the Circulation Element in 2019, and the Safety Element in 2023.
Based on changes to the State General Plan Guidelines, Staff is recommending the following nine General Plan Elements: 1) Land Use and Community Character, 2) Natural Resource Conservation, 3) Agricultural Preservation and Working Lands, 4) Environmental Justice, 5) Mobility & Infrastructure, 6) Public Health, Hazards & Safety, 7) Community Facilities, 8) Economic Development and Fiscal Sustainability, and 9) Housing.
Purpose and Strategic Importance of the General Plan Update
The General Plan Update will:
• Guide growth and preserve community character through sustainable land use and resource protection.
• Support economic vitality, policy clarity, and compliance with state planning mandates.
• Strengthen community engagement and regional coordination for a resilient, well-planned future.
• Address emerging challenges including climate resilience, wildfire preparedness, infrastructure capacity, and environmental justice
Summary of Proposed General Plan Update Approach and Timeline
The GPU will span approximately three years, and will include continuous, robust community engagement plan designed to involve residents, community groups, partner agencies, and key stakeholders throughout the process.
Proposed Community Engagement Summary
• Interactive project website: a central online hub for community input, information, engagement, and updates.
• Community workshops (in-person and virtual) across four project phases:
o Vision, Goals and Outcomes
o Alternatives
o General Plan Framework
o Draft General Plan and EIR
• Thematic Advisory Groups (TAGs): Five groups will convene for six meetings each to provide expert input on the following proposed core topic areas:
o Agricultural Preservation and Land Use (includes Working Lands & Community Character)
o Resource Management, Climate & Water
o Mobility & Infrastructure
o Public Health, Hazards, and Safety
o Environmental Justice and Equity
• Technical Working Group (TWG) Meetings: Four meetings for in-depth technical input
• Online Surveys: multiple opportunities for broad public feedback on key decisions.
• Three Board of Supervisor (BOS) and Planning Commission (PC) Study Sessions
General Plan & EIR Update Proposed Approach, Process, and Timeline
• Project Initiation and Baseline Data Report | Current Phase
o Data collection and analysis; community engagement; technical focus groups, key leader interviews
o Target Completion - Late Spring 2026
• GPU Visioning and Key Issues Identification | Summer 2026
o Community workshops, Surveys, Board study sessions
o Identification of policy priorities and long-term goals
• Development of General Plan Alternatives | Late 2026 - 2027
o Evaluation of growth scenarios and policy choices
o Environmental, fiscal, and community criteria analysis
• Draft General Plan Preparation | 2027-2028
o Updates to all required and proposed elements
o Integration of climate and resilience strategies
• Environmental Impact Report (EIR) Preparation | 2027-2028
o CEQA compliant analysis
o Public review and responses to comments
• Final General Plan and EIR Adoption Hearings | Late 2028
o PC and BOS hearings
o Final adoption and implementation plan
Baseline Data Report (BDR) Status Update
On February 4, 2025, the Board approved Agreement No. 250315B with Environmental Science Associates (ESA) to update the Napa County Baseline Data Report (BDR), an essential first step in the GPU. The BDR provides a comprehensive assessment of existing land use, environmental, cultural, economic, and social conditions, as well as the County’s current regulatory framework. The update incorporates new scientific data, community insights, and best‐practice methodologies, ensuring it remains a reliable, contemporary foundation for long-range planning, environmental stewardship, and public engagement.
The BDR serves as the technical basis for the General Plan Update, the County’s long-range policy document that will guide land use, resource protection, housing, mobility, climate adaptation, infrastructure, and community development for the next 20+ years. As outlined above, the last GPU was completed in 2008. Since then, Napa County has experienced significant demographic, environmental, regulatory, and economic changes that require a modernized General Plan. The Baseline Data Report (BDR) is progressing on the following schedule:
• Administrative Draft completed and reviewed by internal and external technical experts
• Community Workshops:
o Two Rounds Completed: July 2025 & November 2025
o Next BDR Workshops: March 2026
• Public Draft BDR: In Progress
• Technical Focus Group Review: January 2026
• Public Draft Release: Early Spring 2026
• Final Draft & Board Adoption Target: Late Spring 2026
The updated BDR will directly inform the General Plan Update, policy development, and the CEQA analysis in the EIR. The GPU itself is scheduled to begin immediately following the BDR’s adoption.
Next Steps
To advance the General Plan Update and environmental review, Staff is working with ESA on a contract amendment to include:
• Expanded scope for GPU preparation
• Preparation of the Program EIR
• Public engagement and meeting facilitation
• Project management and coordination of TAGs and TWG meetings
• Board and Planning Commission presentations and study sessions
ESA and its subconsultants have demonstrated strong performance on the BDR and have extensive familiarity with:
• Napa County land-use patterns, environmental resources, and agricultural protections
• The County’s wildfire risk, hazard conditions, and evacuation constraints
• Napa’s unique local planning values, including the Agricultural Preserve and Agricultural Watershed
• Local and state agency requirements (CAL FIRE, OES, DWR, ABAG/MTC, Housing and Community Development)
• Community priorities and insights gained as part of the BDR outreach efforts
Requested Actions:
1. Receive a presentation and update on the County’s Baseline Data Report and proposed General Plan Update and Environmental Impact Report.
2. Provide direction on the proposed scope and approach for the General Plan Update. Based on this direction, Staff will return to the Board in January 2026 to request approval of the expanded scope and associated contract amendment for the project.
FISCAL IMPACT
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Is there a Fiscal Impact? |
No |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The proposed action is exempt from CEQA under Section 15262, which allows feasibility and planning studies for possible future actions that have not yet been approved or adopted.