TO: Napa County Planning Commission
FROM: Brian D. Bordona - Director of Planning, Building and Environmental Services
REPORT BY: Wendy Atkins - Planner II
SUBJECT: Gateway 24 Napa, New Winery Use Permit, P24-00134
RECOMMENDATION
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SHEA ROUDA / GATEWAY 24 NAPA, NEW WINERY / USE PERMIT NO. P24-00134-UP
CEQA Status: Consideration and possible adoption of a Mitigated Negative Declaration. According to the proposed Mitigated Negative Declaration, the proposed project would have potentially significant effects on Biological and Cultural Resources unless mitigation measures are adopted. The project site is not on any of the lists of hazardous waste sites enumerated under Government Code Section 65962.5.
Request: Approval of a Use Permit for a new 250,000 gallon per year winery in a 54,790 sq. ft one-story building with fifty-five (55) parking spaces. The project will connect to municipal water and sewer services provided by the City of American Canyon and the Napa Sanitation District, respectively. The request also includes a variation to the development standards of the Napa Valley Business Park Specific Plan (NVBPSP). The project is proposed on a 4.33-acre site on the east side of Gateway Road East and the south side of Sheehy Creek, within the Industrial Park: Airport Compatibility (IP:AC) zoning district. APN 057-200-039.
Staff Recommendation: Adopt the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program and approve the Use Permit with the proposed conditions of approval.
Staff Contact: Wendy Atkins (707) 259-8757, or wendy.atkins@countyofnapa.org
Applicant/Owner: Shea Rouda, Gateway 24 Napa LLC: (614) 502-1456, or srouda@phelandevco.com
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EXECUTIVE SUMMARY
Proposed Actions:
That the Planning Commission:
1. Adopt the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program for the Gateway 24 Winery based on findings 1-6 of Attachment A; and
2. Approve Use Permit P24-00134-UP including a variation to development standards, based on findings 7-14 of Attachment A, and subject to the conditions of approval (Attachment B).
Discussion:
The project consists of a request to construct a 54,790 sq. ft. building for a new winery with an annual production capacity of 250,000 gallons. The building includes areas for wine production, storage, and office. The site plan shows parking consistent with Code requirements. The request also includes construction of a new driveway on Gateway Road East, hours of operation from 6 a.m. to 8 p.m., Monday through Sunday, and six full-time employees during non-harvest and 15 full-time employees during harvest. Wineries within the Napa Valley Business Park Specific Plan (NVBPSP) are not subject to the Winery Definition Ordinance, and no retail/tourist elements are proposed. The project is compatible in design and operation with other projects located in the NVBPSP area and staff supports grant of the use permit, subject to the recommended conditions of approval. The request also includes a variation to the development standards of the NVBPSP and IP zoning district to increase building height from 35-feet to a maximum of 45-feet.
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: ENVIRONMENTAL DETERMINATION: Consideration and possible adoption of a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program. According to the proposed Mitigated Negative Declaration, the proposed project would have potentially significant effects on Biological and Cultural Resources unless mitigation measures are adopted. In accordance with Section 15073 of the California Environmental Quality Act (CEQA) Guidelines, Napa County submitted the initial proposed IS/MND to the State Clearinghouse for a 30-day review period beginning on July 3, 2025, and running through August 1, 2025 (SCH #SCH2025060897). In addition, Napa County circulated a Notice of Intent to adopt the initial proposed IS/MND to interested agencies and individuals. The project is not included on a list of hazardous materials sites compiled pursuant to Government Code Section 65962.5.
BACKGROUND AND DISCUSSION
Owner/Applicant: Gateway 24 Napa LLC, Attn: Shea Rouda, 220 Montgomery Street, Suite 315, San
Francisco, CA 94104
Zoning: IP:AC (Industrial Park: Airport Compatibility Combination)
General Plan Designation: Industrial
Filed: May 24, 2024; Resubmittals: September 10, 2024, December 5, 2024, March 17, 2025; Application
Complete: April 16, 2025
Parcel Size: 4.33 acres.
Proposed Building Size: 54,790 sq. ft.
Proposed Production Capacity: 250,000 gallons per year.
Number of Employees: The facility is expected to employ six full-time employees during non-harvest and15 full-time employees during harvest.
Winery Visitation: None proposed.
Winery Marketing Program: None proposed.
Hours of Operation: Seven days a week from 6 a.m. to 8 p.m.
Proposed Parking: Fifty-five (55) parking spaces, including four (4) accessible spaces and three (3) electric vehicle charging stations.
Airport Compatibility: Zone D1 - Inner Traffic Pattern Zone - aircraft typically at or below 1,000-foot traffic pattern. Wineries, warehousing, distribution, office and light industrial uses are normally compatible with this zone. There should also be no more than 1,200 people per acre inside the building and outside. All aspects of the development have been designed to comply with these limitations.
Adjacent Zoning / Land Use:
North: IP:AC - Across Sheehy Creek to the north is an approved and constructed 105,099 sq. ft. multi-building self-storage facility on a 7.38-acre property.
South: IP:AC - Adjoining the project site to the south is an approved and constructed 32,521 sq. ft. light industrial building on a 2.23-acre property.
East: IP:AC - Across S.R. 29 to the east is an approved and constructed 23,000 sq. ft. warehouse building on a 1.56-acre site.
West: IP:AC - Adjoining the project site to the west is an approved and constructed 86,393 sq. ft. winery building on a 3.36-acre site.
Parcel History/Setting:
The site is vacant and is relatively flat with gentle slopes ranging from 0 to 5 percent from northwest to southeast. Grade elevations on the site range from approximately 45 feet to 60 feet above mean sea level from northwest to southeast. The northern boundary of the site is located to the north of Sheehy Creek. The site includes ruderal grasses, bushes, and riparian woodland areas along Sheehy Creek, which were planted as part of the creek restoration project. There is also a paved pathway located along the top of the bank of Sheehy Creek. Adjoining streets and public improvements have been completed, including street paving, curb, gutter, and public utilities when improvements were installed for the Gateway Business Park (NVBP).
On January 18, 2012, the Planning Commission approved Use Permit P08-00555-UP for a 67,930 sq. ft. three-story office building. The Use Permit expired on January 18, 2014.
Active Code Compliance Violations:
There are no open or pending code violations for the subject site.
Attachment I provides a list of 21 wineries/production facilities operating, approved to operate, or pursuing approval to operate within the NVBPSP area.
Discussion Points:
1. Building Design, Layout & Materials - Exterior building materials include concrete tilt-up wall panels with a multi-color paint scheme with heights of approximately 40 to 45 feet. The south facing elevation facing Gateway Road East is approximately 290 feet. The 290-foot wall section includes a formliner access panel in the center of the wall and a clear anodized storefront system at the southwest corner. The east facing elevation is approximately 255 feet and includes a formliner access panel in the center of the wall. The north facing elevation is approximately 135 feet. The west facing elevation is 254 feet and includes two at-grade loading doors at the northwest corner, seven dock doors, and a clear anodized storefront system at the southwest corner.
2. Building Height - The applicant is requesting a variation to development regulations of the NVBPSP to increase the building height from 35-feet to a maximum height of 45-feet. The intention of asking for a height increase is to create a more economically viable building. Additional height allows the building to service a greater number of tenants, ensuring the building remains occupied and avoids issues that come with building vacancy. The Federal Aviation Administration has provided a Determination of No Hazard to Air Navigation, dated March 4, 2025, indicating that the requested building height does not exceed obstruction standards and would not be a hazard to air navigation providing certain conditions are met. Further, the FAA has also determined that the use of a crane during construction activities would not be a hazard to air navigation as well, letter dated February 10, 2025. Both letters will be included as project conditions of approval. (see Attachment B).
3. Access - Access to the building is proposed from one new driveway on Gateway Road East. On-site drive aisles are designed to County standards and wrap around the building providing Fire Department and emergency vehicle access to all areas of the building. The project has been reviewed by the County Fire Department and Engineering Services Division and found acceptable as conditioned.
4. Parking - The NVBPSP requires one parking space per 1,000 sq. ft. for the first 20,000 sq. ft. of floor area and one parking space per 2,000 sq. ft. of floor area thereafter for storage/warehouse use. The specific plan also requires one parking space per 250 sq. ft. of floor area for office uses. Based on the preliminary floor plan of the proposed building, which includes approximately 49,790 sq. ft. of warehouse and 5,000 sq. ft. of office floor area, 55 parking spaces are required. The site plan includes 55 parking spaces consistent with Code requirements.
5. Building Setback/Landscaping - The NVBPSP requires a building setback with a 40-foot average, and a minimum of 25-feet (landscaped), from Gateway Road East and a 10-foot setback from property lines that do not adjoin a street. Properties that border S.R. 29 require a building setback with a 55-foot average, and a minimum of 45-feet (landscaped) from the right-of-way. The building is setback 64 feet from Gateway Road East, between 70 and 160 feet from the west property line, 81 feet from the east property line (S.R. 29), and between 106 and 152 feet from the north property line. Water quality detention and treatment basins, planted with water tolerant grasses, as well as shrubs and trees, are proposed along the street frontage within the landscape setback.
6. Sheehy Creek - As noted above, the northerly property line of the site runs along north side of the creek. In the late 1990s Sheehy Creek was realigned, enhanced and revegetated, including the portion of the creek adjoining the project site. There is an existing walking path along the south side of Sheehy Creek that was constructed as part of the creek restoration project that includes the planted riparian corridor. A conservation easement, measured 35-feet from the centerline of the creek on both sides of the creek, was recorded to further protect the creek and the enhanced/created riparian areas. Uses within the setback area are limited to habitat restoration/mitigation, landscaping, pedestrian/bicycle improvements, storm-water retention/detention facilities or similar uses that do not adversely affect habitat value, wildlife movement or flood water storage. The project connects to the existing storm drain pipe in the existing storm drain easement that passes through the property. No improvements are proposed within the creek’s conservation easement.
7. Zoning and Winery Definition Ordinance (WDO) - The site of the proposed winery is zoned IP:AC (Planned Industrial: Airport Compatibility) District. The intent of the IP District is to provide areas for modern, non-nuisance light industrial and office uses that are compatible both with each other and with adjoining non-industrial areas. Wineries are conditionally permitted uses in the IP District but should be operated in such a manner that does not compromise opportunities for light industrial and office development on proximate properties. Since the proposed winery would not operate within the County’s AW (Agricultural Watershed) or AP (Agricultural Preserve) districts, the winery is not subject to the roadway setback, grape sourcing, and other requirements of County code Sections 18.104.200 through 18.104.250 (WDO). It is noted, however, that the accessory uses related to the winery (consisting of the office) aggregate to 5,000 sq. ft. of the floor area which is just over 0.91 percent of the total indoor production area of the winery and is consistent with the intent of the limitation on accessory uses as established in County Code Section 18.104.200.
8. Public Utilities - Water services will be provided by the City of American Canyon and will be required to meet the City’s Zero Water Footprint (ZWF) Policy, which may include contributing to the City’s water conservation fund. Sewer services will be provided by Napa Sanitation District (NSD). The applicant will also connect to NSD’s recycled water system for irrigation. Both agencies have indicated that there is capacity to serve the proposed winery and have issued will-serve letters.
9. Greenhouse Gas Reduction Strategies - The County requires project applicants to consider methods to reduce Green House (GHG) emissions consistent with the Napa County General Plan Policy CON-65(e), which requires GHG review of discretionary projects. The applicant has completed the Department’s Best Management Practices Checklist for Development Projects, which is attached to this report as Attachment D. The applicant intends to implement the following GHG reduction methods at the winery: installing energy conserving lighting, installing bicycle incentives, connecting to recycled water, installing water efficient fixtures, implementing low-impact development, installing a water efficient landscape, installation of electrical vehicle charging stations, the site is accessible to public transit, limiting the amount of grading and tree removal, and use of recycled materials.
Public Comments:
As of the date of this staff report (July 23, 2025) two comments have been received regarding this proposed winery development project (Attachment J). One comment letter from CDFW and one comment in opposition of the project. The Initial Study/Mitigated Negative Declaration was revised to reflect recommendations from CDFW. Two modifications were made: 1) added language to Section 11 related to a CESA Incidental Take Permit (ITP) and; 2) added language to Mitigation Measure BIO-2, related to Swainson Hawk foraging habitat. Per CEQA code section 15073.5 the revised Initial Study/Mitigated Negative Declaration did not require recirculation. Changes are shown in strikethrough and underline.
Decision Making options:
As noted in the Executive Summary Section above, Staff is recommending approval of the project with conditions of approval as described in Option 1 below. Decision making options include the following:
Option 1 - Approve Applicant’s Proposal with Project Specific Conditions of Approval (staff recommendation)
Discussion - This option would result in approval of the proposed 250,000 gallon per year winery. Staff recommends this option as the request is consistent with the Zoning Ordinance, applicable General Plan policies, and other County regulations. Furthermore, this option has been analyzed for its environmental impacts, which were found to be less than significant as mitigated.
Action Required - Follow the proposed action listed in the Executive Summary.
Option 2 - Reduced Project Alternative
Discussion - Although development in the business park area generally does not lend itself to reduced project alternatives such as floor area reductions, and/or restrictions on the number of employees, hours of operation or business operations, this option would reduce the scope of the project via reduced production.
Action Required - Follow proposed action listed in the Executive Summary and amend scope and project
specific conditions of approval to place limits on development. If major revisions of the conditions of approval are required, the item will need to be continued to a future date.
Option 3 - Deny Proposed Use Permit Modification
Discussion - In the event the Commission determines that the project does not, or cannot meet the required findings for grant of a use permit or consistency with the General Plan, Commissioners should articulate what aspect(s) of the project is in conflict with required findings or General Plan, and either deny the request or continue the item to allow the applicant an opportunity to redesign the project.
Action Required - Commission should articulate the aspect(s) of the project in conflict with required findings or General Plan policies and either take action to deny the project or, if needed, remand the matter to staff for preparation of required findings to return to the Commission on a specified date.
Option 4 - Continuance Option
Discussion - The Commission may continue an item to a future hearing date at its own discretion.
Supporting Documents
A. Recommended Findings
B. Recommended Conditions of Approval and Final Agency Approval Memos
C. Initial Study/Mitigated Negative Declaration and MMRP
D. Use Permit Application Packet
E. Sewer Feasibility Report
F. Stormwater Control Plan
G. Biology Study
H. Graphics
I. NVBPSP Area Wineries
J. Correspondence