TO: Napa County Planning Commission
FROM: Brian D. Bordona - Director of Planning, Building and Environmental Services
REPORT BY: Trevor Hawkes - Supervising Planner
SUBJECT: Inn at the Abbey Draft Environmental Impact Report Public Meeting (P19-00038-MM)
RECOMMENDATION
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Inn at the Abbey Draft Environmental Impact Report Public Meeting (P19-00038-MM)
That the Napa County Planning Commission conduct a public hearing to receive comments from agencies and the public on the Draft Environmental Impact Report (DEIR) prepared for the Inn at the Abbey (the Project).
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EXECUTIVE SUMMARY
Proposed Action:
That the Planning Commission hold a public hearing and solicit comment on the DEIR.
Discussion:
Jackson Family Investments III, LLC (Applicant) is proposing a Use Permit Major Modification and Development Agreement to accommodate development of a boutique hotel within the existing Freemark Abbey Winery complex. The Project would construct a 79-room hotel that would be split between the North Parcel (50 rooms) and the South Parcel (29 rooms). The Project would demolish three existing structures totaling approximately 10,050 square feet. These buildings are currently used as a restaurant, retail wine shop, art gallery, and five-room motel. Demolition activities would also include removal of asphalt concrete driveways and surface parking areas, as well as concrete slabs. Overall, the Project would involve approximately 78,500 square feet of new construction. The Project Applicant has also offered public benefits and improvements as terms of a Development Agreement (DA) including an at-grade street crossing enhancement to the existing Vine Trail crossing at SR 29 and Lodi Lane, an on-site private fire truck, and the provision of affordable housing units for employees.
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The DEIR (State Clearinghouse #2020079021) provides an evaluation of the potential environmental impacts of the Project and identifies that the Project would not have any significant and unavoidable impacts. With the implementation of the mitigation measures proposed in the DEIR, the following environmental impacts would be reduced to a less-than-significant level: Air Quality (AIR-1); Biological Resources (BIO-1, BIO-2); Cultural Resources (CUL-2, CUL-3, CUL-2.CU); Greenhouse Gas Emissions (GHG-1, GHG-2, GHG-1.CU); Noise and Vibration (NOI-1, NOI-1.CU); Transportation (TRA-1, TRA-3, TRA-1.CU); Tribal Cultural Resources (TCR-1, TCR-1.CU); Utilities and Service Systems (UTL-1); and Geology and Soils (GEO-1).
BACKGROUND AND DISCUSSION
The Inn at the Abbey DEIR, DEIR appendices, Notice of Availability, Notice of Completion and DEIR comment letter (as they are received) can be accessed at the link below.
<https://pbes.cloud/index.php/s/Weq47JTGL5NbyLd>
Purpose of Today’s Hearing
The DEIR was released on April 10, 2025, for the required 45-day public comment and review period which ends on May 27, 2025. The purpose of today’s hearing is to solicit input from the public, agencies and the Planning Commission concerning the contents of the DEIR prepared for the Inn at the Abbey project. Comments should be limited to the adequacy of the DEIR and its environmental analysis and not on the merits, or lack thereof, of the Project or whether the Project should be approved or not.
Subsequent to the close of the DEIR public comment period on May 27, County Staff and our consultant team will begin preparing the Final Environmental Impact Report (FEIR), CEQA Findings, the Conditions of Approval, and the DA. The FEIR will contain comments on the EIR, responses to comments and necessary revisions (if any) to the text of the DEIR. Upon completion of the FEIR, a public hearing will be scheduled and noticed at least ten days in advance of the Planning Commission hearing at which time the Commission will make its recommendations to the Board of Supervisors regarding: 1) certification of the FEIR; 2) approval of the Use Permit Major Modification Application; and 3) adoption of an ordinance approving the DA. Because the DA is a legislative action that requires approval by the Board, the Commission serves in an advisory capacity and the Board will be the final decision-maker on all of the Project components.
Background
The Applicant submitted a request for a Use Permit Major Modification (P19-00038) to the Napa County Planning, Building and Environmental Services Department on February 15, 2019. The request would demolish existing uses and redevelop the site with 79-room boutique hotel and related amenities and infrastructure. The application was found to be complete by Staff in April of 2020 and it was determined that the project would require the preparation of an EIR. A Notice of EIR Preparation (NOP) was published in the Napa Valley Register, mailed to properties within 1,000 feet of the project site and to interested parties, and uploaded to the California State Clearinghouse on July 23, 2020. The NOP provided a description of the proposed project, a summary of the potential environmental impacts, identified how the public could view project documents and the California Environmental Quality Act (CEQA) Initial Study, and announced that an EIR Scoping Session would be held on August 5, 2020, with the Napa County Planning Commission. A link is provided below to access the video of the Inn at the Abbey EIR Scoping Session. The NOP and comments received during the preparation period can be accessed in Appendix A of Attachment B. The CEQA Initial Study can be accessed in Appendix B of Attachment B.
August 5, 2020, Inn at the Abbey EIR Scoping Session - <https://napa.granicus.com/player/clip/4668?meta_id=373871>
In conjunction with the Use Permit, the Applicant volunteered terms to be included in a DA with the County as a component of the potential project approval. DA’s are authorized by state law (Govt. Code Section 65864 et seq.). The purpose of a DA in this case would be to provide the Applicant with a vested right to develop the project for 20 years in accordance with the applicable laws and entitlements in effect at the time of Project approval. In exchange, the Applicant would agree to terms that would address the impacts of the Project which could not have been otherwise required under applicable law. The initial terms of a DA were submitted by the Applicant to staff in the Fall of 2023. On December 5, 2023, the Napa County Board of Supervisors publicly discussed the terms and provided initial direction to Staff and the Applicant on potential terms, revisions to the draft term sheet and further discussion by the Board at a later date. The Applicant’s initial draft term sheet, associated materials, comments received on the DA terms and the video of the hearing can be accessed at the links below.
December 5, 2023, DA Terms discussion with the BOS, hearing materials - <https://napa.legistar.com/LegislationDetail.aspx?ID=6432828&GUID=FA0F1030-720D-407D-9D9B-52770A635BE4>
December 5, 2023, DA Terms discussion with the BOS, video - <https://napa.granicus.com/player/clip/5434?meta_id=489899>
In the Spring of 2024, the Applicant sent staff a revised term sheet and on May 21, 2024, a hearing before the Board was scheduled. At the conclusion of that meeting, the Board approved the revised term sheet with direction to Staff and the Applicant in preparation of a DA. The revised term sheet, associated materials, comments received on the DA terms, and the video of the hearing can be accessed at the links below. Further discussion of the DA terms and their inclusion in the DEIR is provided below.
May 21, 2024, DA Terms discussion with the BOS, hearing materials - <https://napa.legistar.com/LegislationDetail.aspx?ID=6691689&GUID=E617D4AD-3FA6-4656-9193-CA1F075E76A2>
May 21, 2024, DA Terms discussion with the BOS, video - <https://napa.granicus.com/player/clip/5485?meta_id=501688>
Project Description
The Project site is located in unincorporated Napa County, approximately one-half mile north of the city limits of St. Helena. The Project is comprised of a 15.13-acre site composed of six parcels located at Lodi Lane along SR 29 (see Figures 3-1 and 3-2 in Attachment B; pages 44 and 45 in PDF). The “North Parcel” is approximately 10.30 acres and consists of the four parcels located north of Lodi Lane. The four contiguous parcels are Assessor’s Parcel Numbers (APNs) 022-130-027, 022-130-028, 022-130-023, and 022-130-024. The “South Parcel” is approximately 4.83 acres and consists of the two parcels located south of Lodi Lane. The two contiguous parcels are APN 022-220-028 and 022-220-029. The North Parcel and South Parcel are collectively referred to as the “Project site” in the DEIR.
The Project site is predominantly flat and is currently used as part of the Freemark Abbey Winery complex. The Project site has been used for a blend of agricultural, commercial, and residential uses since the 1960s. The North Parcel contains the Freemark Abbey Winery which includes wine tasting, and retail sales, as well as the existing Stone Building and a restaurant. The South Parcel contains a commercial building, a five-room motel, and six residential dwelling units. The Project site is partially paved, and surface parking lots exist on both parcels. The Project site contains existing vineyards and is surrounded by trees.
Existing uses in the Project vicinity are primarily agricultural (e.g., vineyards and wineries) and residential. Vineyards and wineries surround much of the Project site, with scattered residential units, including a small mobile home park located west of the Project site, across SR 29. Existing uses to the north include vineyards, the Trinchero Napa Valley Winery, and residential housing. Existing uses to the east include a commercial inn, vineyards, and residential housing. Existing uses to the south and west include various vineyards and residential housing.
The Project site is accessible from SR 29, which is located adjacent to the east of the Project site, and Lodi Lane, located in between the North and South Parcels. The Project site is also served by the Napa Valley Transportation Authority (NVTA) Route 10 which has a bus stop located just north of the Project site on SR 29.
The Project would demolish three structures totaling approximately 10,048 square feet and include approximately 78,500 square feet of new construction. The existing Stone Building on the North Parcel has approximately 21,225 square feet of floor space split between the basement and ground levels and is currently used for winery, retail wine, and restaurant uses. The Project would not physically change the building’s structure; however, minor renovations to the interior are proposed so that approximately 12,900 square feet may serve as the hotel’s main lobby, which may include a retail component and meeting space on the ground level. The existing ground-floor restaurant kitchen and restaurant space would be retained. Current winery uses (barrel storage, wine lab, and bottle storage spaces) in the basement of the building would be removed, and this space would be converted to commercial uses (pre-function and events space, wine room, and event back-of-house needs). The existing commercial café use would remain.
The Project would construct a 79-room hotel that would be split between the North Parcel (50 rooms) and the South Parcel (29 rooms). The new North Hotel Building on the North Parcel would be located in approximately the same location as the existing restaurant building, which would be demolished. The North Hotel Building would have approximately 55,500 square feet of floor area, including approximately 21,450 square feet for the 50 guest rooms and the remaining 34,050 square feet would be for the spa, retail operations, a rooftop terrace, other public areas, circulation, and back-of-house uses. The North Hotel Building would be a split-level structure with four levels and maximum height of 45 feet. The parking garage would be underground and the remaining structure and building levels would step down with the topography.
The construction on the South Parcel would include demolishing the existing commercial and five-room motel buildings and replacing them with a two-story South Hotel Main Building, a two-story South Hotel Barn Building, a freestanding single-story fitness studio, and two separate two-story bungalow buildings. The South Hotel Main Building would include 11 guest rooms (four on the ground floor and seven on the second floor), a support kitchen, a library, and back-of-house uses for a total of approximately 11,150 square feet of floor area. The South Hotel Barn Building would include 12 guestrooms (six (6) on the ground floor and six (6) on the second floor) totaling approximately 7,500 square feet, back-of-house uses, and an adjacent plunge pool. The 350 square foot fitness studio would be proximate to the plunge pool. A lawn area would be located between the South Hotel Main Building and the South Hotel Barn Building. Each of the two bungalow buildings would include three rooms (two (2) on the ground floor and one (1) on the second floor) for a total of approximately 4,000 square feet between the two buildings. Buildings on the South Parcel would be connected by a series of walkways, breezeways, patios, courtyards, and landscaped areas. The South Parcel would retain six existing on-site residential dwelling units for workers employed on the property.
Development Agreement Terms
The Applicant has also offered public benefits and improvements as terms of a DA. Terms which would cause physical changes to the environment have been included in the DEIR’s analysis. These terms include;
• Six (6) deed restricted on-site employee housing units
• Construction of five (5) dwelling units deed restricted for lower incomes
• Graywater reclamation and water conservation
• Lodi Lane Vine Trail at-grade crossing enhancement
• Participation in GSA Pilot Program (program established to refine and share estimates and management practices of water use in the valley)
• Establish a Lodi Lane Area Fire Safe Council
• Maintaining a private fire truck on site
• Inclusion of sustainability measures (achieving highest possible LEED certification, increasing EV charging stations over requirements and an air quality monitoring station)
Environmental Impacts and Analysis
The Applicant has developed the following objectives for the Project:
1. Develop hotel, retail, and restaurant uses on an infill project site consistent with the Commercial Limited zoning and General Plan Policy AG/LU-45;
2. Generate positive fiscal impacts for Napa County through redevelopment and use of the Project site;
3. Develop land uses that do not exceed the intensities permitted by the historical/existing site entitlements;
4. Provide on-site affordable housing in existing residences;
5. Develop a project that integrates the Vine Trail to allow project patrons alternative transportation and reduce vehicle miles travelled; and
6. Implement a sustainable project that meets or exceeds CalGreen energy standards and maximizes reuse of water supply and minimizes water demand.
The County seeks to achieve the following objectives for the Project:
1. Ensure development of the Project site consistent with policies in the General Plan that support the economic viability of agriculture and supporting industries to ensure the preservation of agricultural lands and envision additional commercial uses only within the portions of the parcels zoned for commercial use.
2. Demonstrate leadership in sustainable development by constructing a project intended to reduce the consumption of energy and groundwater, that obtains a minimum of LEED Gold Certification with the goal of achieving LEED Platinum Certification, and that maintains LEED certification through the life of the project.
3. Help create a wildfire resilient community by facilitating firefighting resources on the Project site and supporting the establishment of a local Fire Wise Council for the Lodi Lane neighborhood.
4. Ensure development of the Project site supports the maintenance, preservation, improvement, and development of housing in the unincorporated County consistent with State-mandated housing requirements, and balances job creation and the availability of affordable housing in the County.
Per CEQA Guidelines Section 15123(b)(1), an EIR must provide a summary of the impacts, mitigation measures and significant impacts after mitigation for a proposed project. This information is presented in Chapter 4 of the EIR. The Project would not result in any significant and unavoidable impacts. The Project would result in some impacts that would not require measures to mitigate the impact - i.e., that would be “less than significant” - for several resources, including aesthetics; agriculture and forestry resources, energy; hydrology and water quality; land use and planning; population and housing; public services and recreation; and wildfire. The Project would result in less than significant impacts that would require mitigation measures - i.e., that would be “less than significant with mitigation” - related to air quality; biological resources; cultural resources; greenhouse gas emissions; noise and vibration; transportation; tribal cultural resources; and utilities and service systems. Mitigation measures that would reduce the significance of potentially significant impacts to less-than-significant levels are described in this EIR.
The EIR analyzes a range of reasonable alternatives to the Project, including the No Project Alternative (Alternative A), the Reduced Development Alternative (Alternative B), and the North Parcel Alternative (Alternative C). The analysis of the alternatives, including a comparison of alternatives to the Project, is presented in Chapter 5, which provides a summary of impact levels within all environmental topic areas. Overall, the analysis shows that none of the alternatives considered would result in a significant and unavoidable impact, and all of the “build” alternatives would result in a similar degree of impact as the Project.
Based on the evaluation described in Chapter 5, the No Project Alternative would be environmentally superior to the Project. However, the No Project Alternative would not meet any of the basic objectives of the Project. CEQA requires that a second alternative be identified when the “No Project” alternative is the environmentally superior alternative (CEQA Guidelines, Section 15126.6(e)). Therefore, County has identified Alternative B (Reduced Development Alternative) as the environmentally superior alternative because it would reduce operational impacts related to vehicle miles traveled and vehicle trips and would result in the greatest potential for energy efficiency and incorporation of green building design features of the built alternatives through new construction, even though the impact conclusions would be the same as the Project.
Section 15123(b)(2) of the CEQA Guidelines requires that an EIR summary identify areas of controversy known to the lead agency and relevant to CEQA, including those issues raised by other agencies and the public. Issues raised by the public have included concerns regarding aesthetics, air quality, biological resources, geology and soils, hazards and hazardous materials, hydrology and water quality, noise, population and housing, transportation, tribal cultural resources, and utilities and service systems. As a result, these issues are potential areas of controversy.
Section 15123(b)(3) of the CEQA Guidelines requires that an EIR present the issues to be resolved including the choice among alternatives and whether or how to mitigate identified significant effects. The major issues to be resolved for the Project include decisions by Napa County, as the Lead Agency, as to whether:
• This EIR adequately describes the environmental impacts of the Project;
• Recommended mitigation measures should be adopted or modified;
• Additional mitigation measures need to be applied to the Project;
• Feasible alternatives exist that would achieve the objectives of the Project and reduce significant environmental impacts;
• Significant and unavoidable impacts would occur if the Project is adopted and implemented; and
• The Project should or should not be approved.