TO: Napa County Planning Commission
FROM: Brian D. Bordona; Director of Planning, Building and Environmental Services
REPORT BY: Trevor Hawkes; Supervising Planner
SUBJECT: Silverado Resort & Spa Project; P24-00141-MM
RECOMMENDATION
title
TODD SHALLAN / SILVERADO RESORT & SPA PROJECT / USE PERMIT MINOR MODIFICATION NO. P24-00141-MM
CEQA status: Consideration and possible adoption of Categorical Exemptions Classes 1 and 4: It has been determined that this type of project does not have a significant effect on the environmental and is exempt from the California Environmental Quality Act (CEQA). [See Class 1 (“Existing Facilities”) and Class 4 (“Minor Alterations to Land”) which may be found in the guidelines for the implementation of the California Environmental Quality Act at 14 CCR §15301, §15304(a), §15304(b), and §15304(f); as well as Napa County’s Local Procedures for Implementing the California Quality Act, Appendix B, Class 1: Existing Facilities, Subsection 3]. The project site is not included on a list of hazardous materials compiled pursuant to Government Code Section 65962.5.
Request: Approval of a Use Permit Minor Modification to construct an event pavilion and an event lounge. An Exception to the Road and Street Standards is also requested to permit a firetruck turnaround and emergency vehicle access road to be located greater than 50 feet from the event lounge.
Staff Recommendation: Find the project categorically exempt from CEQA and approve the Minor Modification to Use Permit as conditioned.
Staff Contact: Trevor Hawkes, Supervising Planner, 1195 Third St, Suite 210, Napa, CA 94559; (707) 253-4388; trevor.hawkes@countyofnapa.org
Applicant Contact: Todd Shallan, Vice President , 1600 Atlas Peak Rd, Napa, CA 94598; (707) 257-5430; todd.shallan@silveradoresort.com
Applicant Agent: Scott Greenwood-Meinert, 700 Main Street, Suite 301, Napa, CA, 94558; (415) 772-5741; sgreenwood-meinert@coblentzlaw.com
Other Representative Contact: Christina Nicholson, P.E., 1665 2nd Street, Napa, 94559; (707) 773-7829; cnicholson@sherwoodengineers.com
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EXECUTIVE SUMMARY
PROPOSED ACTIONS:
That the Planning Commission:
1. Find the project categorically exempt based on the recommended Findings 1-4 in Attachment A;
2. Approve the Napa County Road and Street Standards Exception Request based on the recommended Findings 5-6 in Attachment A, and subject to the recommended Conditions of Approval in Attachment B.
3. Approve Use Permit Minor Modification Application No. P24-00141-MM, based on recommended Findings 7-14 in Attachment A, and subject to the recommended Conditions of Approval in Attachment B.
Discussion: The applicant requests approval of a Use Permit Minor Modification to construct an event pavilion (9,308 square feet) and an event lounge (1,750 square feet) for a total additional square footage of 11,358 square feet of resort use to the existing resort mansion (21,080 square feet), convention center (26,100 square feet), and hotel space (221,000 square feet). The proposal also involves landscaping elements that include event and activity lawns (19,062 square feet), landscaped planting beds (23,456 square feet), and a native grass area (41,224 square feet). An existing burger shack will be replaced with an upgraded and relocated facility that is an exterior facing portion of the northeast corner of the pavilion structure. An Exception to the Napa County Road and Street Standards is also requested to permit a firetruck turnaround and Emergency Vehicle Access (EVA) road to be located greater than 50 feet from the proposed 1,750 square-foot event lounge due to the natural location of a watercourse that serves as a tributary to Milliken Creek. The proposal includes the removal of eight valley oak trees with a replanting ratio of 4:1, resulting in the planting of 32 new valley oak trees on the parcel, at a minimum size of fifteen-gallon plantings. The project is located on an approximately 278.73-acre parcel within the PD (Planned Development) zoning district with an Urban Residential (UR) General Plan designation, located at 1600 Atlas Peak Rd, Napa, CA 94558. APN: 060-010-001-000.
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: It has been determined that this type of project does not have a significant effect on the environment and is exempt from the California Environmental Quality Act [See Class 1 (“Existing Facilities”) and Class 4 (“Minor Alterations to Land”), which may be found in the guidelines for the implementation of the California Environmental Quality Act at 14 CCR §15301, §15304(a), §15304(b), and §15304(f).
BACKGROUND AND DISCUSSION
Owner: Todd Shallan, Vice President, 1600 Atlas Peak Rd, Napa, CA 94558; (707) 257-5430
Applicant: Todd Shallan, Vice President, 1600 Atlas Peak Rd, Napa, CA 94558; (707) 257-5430
Zoning: PD (Planned Development)
General Plan Designation: UR (Urban Residential)
Filed: May 21, 2024
Complete: June 2, 2025
Property Area: 278.73 Acres
Existing Development: 268,180 square feet of resort space; 68,600 square feet of accessory space
Proposed Structural Development: 11,358 square feet of resort event space
Existing Resort Hours of Operation: Open 24 hours, 365 days a year
Adjacent General Plan Designation/Zoning/Land Use:
North: Urban Residential / Planned Development / Single and multifamily residential units, rural residences and open space
East: Urban Residential / Planned Development / Single-family residential units
South: Urban Residential / Planned Development / Single-family residential units
West: Urban Residential, Rural Residential, Agriculture, Watershed and Open Space / Planned Development, Residential Country & Agricultural Watershed / Winery & vineyards, rural residences
BACKGROUND:
On May 21, 2024, the applicant submitted a request for a Minor Modification to Use Permit P24-00141-MM to construct an event pavilion (9,308 square feet) and an event lounge (1,750 square feet) for a total addition of 11,358 square feet of resort use space to the existing resort mansion, convention center, and hotel space, for a combined total of 268,180 square feet, which does not include accessory structures or the resort spa located on an adjacent parcel. The proposal also includes landscaping elements that include event and activity lawns (19,062 square feet), landscaped planting beds (23,456 square feet), and a native grass area (41,224 square feet). An Exception to the Napa County Road and Street Standards is also requested to permit a firetruck turnaround and the emergency vehicle access road to be located greater than 50 feet from the proposed event lounge due to the natural location of a watercourse that serves as a tributary to Milliken Creek.
Under Napa County Code (NCC) §18.124.130, Minor Modifications to Non-Winery Use Permits can be approved for changes in location and/or size of approved structures or portions thereof, provided that the approval of the requested minor modification would not affect the overall concept, density, intensity or environmental impact, and would not result in any structure or the aggregate of all approved structures being increased by 25 percent in size or one story in height based on size allowed under the approved use permit. The proposed increase of 11,358 square feet of resort space represents a 24.1 percent increase to the resort mansion and convention center alone, and when the 221,000 square feet of hotel space is included, it represents just a 4.24 percent increase.
NCC §18.124.130(B) states that the Zoning Administrator may approve minor noncontroversial modifications after giving notice of intent to approve, and NCC §18.124.130(B)(2)(b) states that notices shall be mailed or delivered to all owners of real property, including businesses, corporations or other public or private entities, as shown on the latest equalized assessment roll within 1,000 feet of the real property. According to NCC §18.124.130(B)(3), if any member of the public requests a public hearing during the comment period, then the zoning administrator will provide a public notice in accordance with NCC §18.136.040 and conduct a public hearing. On July 30, 2025, a Notice of Intent was sent to all owners of real property within 1,000 feet of the project parcel, and in response the Planning Division received four requests for a public hearing. Pursuant to NCC §18.10.020, the Zoning Administrator has determined that the project (1) is of a size, importance, or unique nature such that it is judged not to be a routine matter and (2) is such that the public interest would be furthered by having a particular application heard and decided by the Planning Commission.
Staff has reviewed the proposed project and recommends that the Planning Commission find the project categorically exempt from CEQA and approve the Exception to the Road and Street Standards request and the Minor Modification to Use Permit request as currently drafted in the staff report packet, subject to the recommended Conditions of Approval in Attachment B. Findings in support of the Categorical Exemption, Exception to the Road and Street Standards and the Minor Modification to Use Permit have been prepared in Attachment A, and a Memorandum on the CEQA Categorical Exemption has been prepared in Attachment C.
Parcel History: The Silverado Resort and Spa, also known as the Silverado Resort and Country Club, is one of the oldest Master-Planned Development Projects in Napa County. With the original golf course dating back to the 1950s, the resort itself was established first through a 1964 rezone to the PC (Planned Community) zoning district (Rezone 36-64), followed by the approval of a master site plan and use permit (Use Permit 37-64). Numerous additional ministerial and discretionary permits have been approved throughout the years, including additional community subdivisions, remodeling permits for the clubhouse and pro shop, outdoor advertising permits, expansions to the clubhouse and conference center, building permits for accessory structures, watercourse alteration permits, parking expansions, and tournament entitlements.
Active Code Compliance Violations: The Silverado Resort and Spa has been issued and has addressed several code compliance cases over the years. There are currently six code enforcement cases under review: 1) CE24-00235 concerning repairs to existing balconies; 2) CE24-00168 concerning the protective netting at the driving range; 3) CE23-00217 concerning unpermitted work on a bridge; 4) CE23-00107 concerning unpermitted ticket sales; 5) CE22-00300 concerning an unpermitted outdoor pizza kitchen; and 6) CE19-00039 concerning an unpermitted HVAC system installment at one of the private residences on the property. On November 25, 2024, the Code Enforcement Division determined that the active code cases on the parcel are unrelated to this project and they recommended approval of the project. The remaining active code enforcement cases are under review and are being resolved with the property owner through the required Building Permit process.
DISCUSSION POINTS:
Setting
The project site is located within an area of the Silverado Resort and Spa commonly referred to as “The Grove.” The Grove is an area of land surrounded by the South Golf Course with a tributary of Milliken Creek running through it from north to south. The area is developed in a manner similar to an urban park, with professional landscaping, a large courtyard patio, foot and golf cart bridges, golf course restrooms, and a burger and hotdog stand, as well as a fenced off area for equipment storage. The area experiences heavy pedestrian and golf cart traffic on a daily basis throughout the year as guests of the resort often congregate in the courtyard patio area to eat and socialize. The site is also the location of several events throughout the year that primarily consist of weddings, dinners, and musical performances. The proposed pavilion and lounge will provide additional facilities and accommodation for hosting these events.
Noise
The applicants have submitted a Grove Event Noise Study completed by Salter Acoustical Consultants dated September 30, 2024 (See Attachment G). The study is based on two noise measurement locations, one attached to the courtyard perimeter fence, and another attached to a tree near the property line and closest residence to the proposed project. Three outdoor events were measured, including a dinner with 25 guests that took place on August 28, 2024, a wedding with 200 guests that took place on August 31, 2024, and another wedding with 100 guests that took place on September 1, 2024.
The dinner included an amplified violin and background music and reached a decibel level (dBA) of 57 dBA at the measurement location near the property line. The August 31st wedding included a 14-piece amplified band and reached 78 dBA at the property line, while the September 1st wedding included a DJ and reached 73 dBA at the property line. These existing noise levels approach or exceed the exterior noise levels in General Plan Policy CC-38 for urban single-family and duplex residential units for both daytime (7 a.m. to 10 p.m. - 60 dBA) and nighttime (10 p.m. to 7 a.m. - 50 dBA) levels. The Noise Study demonstrated that to maintain noise levels at or below the County’s noise thresholds, amplified bands and DJs will need to be moved indoors to the new Pavilion Building, the new event space will be designed to have interior acoustic treatment to reduce overall noise levels, ceremonies with low-level speech reinforcement may continue to be held outdoors. There will be no change in event types, the maximum size of events, or duration compared to existing operations. With exterior doors and windows shut, and with standard exterior construction, a significant noise reduction of at least 35 dBA at the property line is expected. Furthermore, a 2002 condition of approval from a previous modification to use permit (Permit #02033 - Condition 7) states the following:
NOISE: There shall be no amplified sound system or amplified music utilized outside. Musical programs shall be limited to those permitted in conjunction with an event and approved by Temporary Event License (Napa County Code Chapter 5.36). All mechanical equipment such as ventilation systems, compressors for refrigeration and generators shall be located inside the facility or within acoustic enclosures. Construction activities shall comply with Section 8.16 of Napa County Code.
With this condition and the noise reducing features identified in the Grove Event Noise Study, the construction and use of the proposed structures will reduce excessive noise and ensure the parcel is meeting the noise standards described in the Napa County Code and the General Plan.
Tree Removal
As part of the project proposal, eight valley oak trees have been marked for removal to construct the proposed structures. This is a reduction from the removal of ten valley oak trees originally proposed. The diameter at breast height (DBH) of the eight trees to be removed range from 14 inches to 38 inches, with approximately 91 trees identified on the site plans that are within immediate proximity to the proposed structures and will be preserved. The project is located within the PD zoning district, and as such the Napa County Conservation Regulations, specifically those described in NCC §18.108.020(C) for vegetation removal mitigation requiring a 3:1 replanting ratio, do not apply to the project. Despite this, General Plan Policy CON-24, which requires the replacement of lost oak woodlands or the preservation of like habitat at a 2:1 ratio, does apply to the project. The project is proposing a 4:1 replacement ratio for the eight valley oak trees to be removed, with submitted plans for the replanting of 32 valley oak trees on the property (See Attachment H). The 32 trees will be planted across six designated areas on the parcel and will include a minimum size of 15-gallon oak plantings.
Road and Street Standards Exception
The Engineering Division received a request by Sherwood Design Engineers, dated January 23, 2025, for an exception to the design criteria as outlined in the latest edition of the Napa County Road and Street Standards (NCRSS) as part of the application for the Minor Modification to Use Permit. Emergency vehicle access to the project site is proposed via Westgate Drive, and the applicant is seeking an exception to allow the turnaround to be greater than 50 ft from the proposed lounge structure. All other portions of the proposed and existing driveway will be improved to minimum design standards for emergency vehicle access, per the NCRSS.
On February 27, 2025, the Engineering Division provided an evaluation and recommendations (See Attachment A), which concluded that the request included the necessary documentation to recommend approval of the RSS Exception. The project site is located entirely within the Local Responsibility Area (LRA) according to the Cal Fire’s Fire Hazard Severity Zones Map. The property is also not designated as being in a Very High Fire Hazard Severity Zone. In accordance with Section 5 and Section 3 of the RSS, the Request has demonstrated that the project as proposed will provide measures which provide safe access for emergency apparatus, safe civilian evacuation, and the avoidance of delays in emergency response based on the demands of the property.
These determinations are based on existing site conditions and previous approvals. The Engineering Division supports the approval of the exception request as proposed with conditions that are in addition to all conditions previously placed on the project as part of the discretionary application. All roadway improvements shall be completed prior to execution of any new entitlement or final on all new development proposed. The private drive surface shall be periodically maintained by the property owner to assure sufficient structural section for loading conditions equivalent to support apparatus weighing 75,000 pounds, and the design Traffic Index. The property owner shall also install clear directional signage at the entrance to the driveway and all internal roadways. The directional signage shall be consistent with California Department of Forestry and Fire Protection requirements, and roadway improvements shall be constructed and maintained to the approved condition prior to any new commercial use and/or occupancy. Further details on the County’s RSS Exception requirements can be found in Attachment B.
Public Comments
At the time this staff report was completed, the Napa County Planning Division received 32 written public comments between June 21, 2024, and January 28, 2025. Of these 32 public comments, four of them were neutral requests for further information while two of them, including the last received, were in support of the project. The 26 emails that were in opposition to the project primarily came from neighboring residents and HOA representatives, and raised concerns over the removal of trees, the size of the structure, evacuation routes, traffic and parking, impacts on watercourses and flooding, the loss of community gathering space, and impacts on wildlife (See Attachment I).
On January 28, 2025, a Letter of Support was submitted from the Grove at Silverado Homeowners Association. The letter states that several concerns have been addressed through meetings with the Silverado Management Team, and that the HOA had entered into a private agreement with Silverado, with support from 31 homes immediately adjacent to the event center location. Support for moving outdoor events into an indoor facility to reduce noise levels was specifically expressed in the letter.
Decision Making Options:
As noted in the Executive Summary Section above, staff is recommending the Planning Commission approve the project as proposed, subject to the Findings and Conditions of Approval in Attachments A & B. Decision making options include the following:
Option 1 - Applicant’s Proposal (Staff Recommendation)
Disposition - This action would result in the adoption of the Categorical Exemptions, approval of the Napa County Road and Street Standards Exception, and approval of a Minor Modification to Use Permit for the Silverado Resort and Spa to approve one 9,308 square-foot pavilion and one 1,750 square-foot lounge to be used for events. Staff recommends this option as the request is consistent with the Zoning Ordinance, applicable General Plan policies, and other County regulations as presented in the Recommended Findings (Attachment A).
Action Required - Follow the proposed action listed in the Executive Summary. If conditions of approval are to be amended, specify conditions to be amended at time motion is made. This option has been analyzed for its environmental impacts, and the project was found to be categorically exempt from CEQA.
Option 2 - Modify the Applicant’s Proposal
Disposition - This option would result in modification of the proposed project and use to address concerns of the Planning Commission and/or public comments if solicited.
Action Required - Follow proposed actions listed in the Executive Summary and recommend amended scope and applicable conditions of approval. The item may need to be continued to a future date if significant revisions to the recommended conditions of approval are desired.
Option 3 - Deny Proposed Project
Disposition - In the event the Planning Commission determines that the project does not, or cannot, meet the required findings for the granting of the Minor Modification to Use Permit, the Commission should articulate what aspects of the project are in conflict with the required findings. State Law requires the Commission to adopt findings, based on the General Plan and County Code, setting forth why the proposed Minor Modification to Use Permit is not being approved.
Action Required - The Commission would move to deny the project.
Attachments:
A. Recommended Findings
B. Recommended Conditions of Approval and Final Agency Memos
C. CEQA Exemption Memorandum
D. Minor Modification to Use Permit Application Packet
E. Water Availability Analysis, Wastewater Feasibility Study, & Stormwater Control Plan
F. Habitat Assessment
G. The Grove Event Noise Study
H. Graphics
I. Public Comments