TO: Board of Supervisors
FROM: Steven Lederer, Director of Public Works
REPORT BY: Graham Wadsworth, PE, Engineering Supervisor
SUBJECT: Adopt the Napa Countywide Active Transportation Plan
RECOMMENDATION
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Receive a presentation and adopt the Napa Countywide Active Transportation Plan. (No Fiscal Impact)
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BACKGROUND
The Napa Valley Transportation Authority (NVTA) led the effort to create a Countywide Active Transportation Plan to help guide future investments in active transportation infrastructure and programs throughout Napa County communities. The Plan seeks to create a connected regional network of facilities for pedestrians, bicyclists, and other active transportation users to make Napa County a safer and more accessible community for all ages and abilities. NVTA has conducted extensive public engagement on the Plan, including numerous in-person and online presentations, forums, and pop-up events. While the plan does not provide funding for any specific project, it does identify broad desires, and project inclusion in the plan assists when applying for grant funds in the future.
Napa County staff provided extensive comments and direction on key documents and materials throughout the plan development process, which contributed significantly to the final Plan. On January 27, 2026, NVTA staff updated the Board on the status of the Plan and obtained feedback for improving walking and biking in the unincorporated areas of Napa County. Topics raised by members of the Board at that meeting, including ongoing evaluation and progress toward County goals around active transportation investments, mode share, and contributions to GHG reduction efforts, are included in the Plan or addressed in the staff recommended changes discussed below.
On March 23, 2026, the NVTA Board of Directors approved the Plan. The Plan, including maps of proposed walking and biking improvements, are online at www.NapaATplan.org <http://www.NapaATplan.org>.
In recent years, the Board of Supervisors has adopted numerous plans, policies, and resolutions addressing active transportation and roadway safety, including the General Plan Circulation Element (2019), Complete Streets Policy (2013), Local Roadway Safety Plan (2022), and Senate Bill 1 and Measure U lists of projects (2026). Additionally, On December 5, 2023, the Board adopted Resolution 2023-54 supporting NVTA's adoption of its Vision Zero Plan and the goal of eliminating traffic collisions resulting in serious injuries or fatalities in Napa County by 2030. Key elements including goals, objectives, policies, and specific projects identified in these and other previously adopted plans are included in the Active Transportation Plan.
The Napa Countywide Active Transportation Plan is structured to provide sections that address countywide topics, such as existing conditions, goals/objectives, and countywide policies, as well as stand-alone chapters that address projects and programs specific to each local agency, including the County of Napa. NVTA has requested that the County adopt Chapters 1 through 6 (countywide sections), Chapter 12 (County of Napa), and Plan Appendices A through F.
Based on these documents and comments from the Board on January 27, 2026, Napa County staff recommend that the Board adopt the Napa Countywide Active Transportation Plan with the following minor revisions.
A brief summary of each Chapter, along with specific Staff recommend changes, is provided below:
Chapter 1 - Introduction. Addresses the purpose of this Plan as establishing a framework for consistency in bicycle and pedestrian facilities, policies, and programs across all jurisdictions. Establishes the countywide Vision, Goals and Objectives of the Plan. No changes proposed by staff.
Chapter 2 - Existing Transportation Environment. Summarizes the existing active transportation environment countywide, and within each jurisdiction, including existing facility mileage totals and a summary of bicycle facility classifications. No changes proposed by staff.
Chapter 3 - Community Engagement. Memorializing the nearly 2,000 unique engagements and conversations held over the course of two years of Plan development, and identifying key findings from public feedback. No changes proposed by staff.
Chapter 4 - Needs Assessment. Establishes evaluation framework for project and program improvements, utilizing Level of Traffic Stress (LTS) and proximity to key origins or destinations such as schools, parks, or transit stops, and other criteria. No changes proposed by staff.
Chapter 5 - Countywide Recommendations. Summary of countywide facility recommendations. Guidelines for crosswalk markings and other pedestrian improvements. Countywide policies and programs to serve as baseline across all jurisdictions. Staff propose the following changes:
• Add the following language to the Recommended Policies and Programs section, starting on page 99 of the Plan. After “The lead implementing agency for each policy and program is the local jurisdiction, unless otherwise noted.” add “Napa County will assist NVTA in implementing the Policies or Programs in Table 5-4 and Napa County has more specific policies and programs in Chapter 12. For roads included in the Napa County 5-year Roads Maintenance Plan, the plan will consider roadways with the priority bike projects suggested by NVTA for sequencing and priority.”
Chapter 6 - Implementation Plan. Addresses project and program implementation, provides high level benefit/cost analysis for improvements, estimates for project cost by facility type, and identifies major funding opportunities.
• Consistent with changes proposed in Chapter 12, amend the following maps and tables to reflect those Near-term projects (prioritized for delivery in next 5-7 years) identified in Table 12.6.
Chapter 12 - County of Napa Local Plan. Provides background & demographics on unincorporated Napa County transportation landscape, key origins and destinations, and specific proposed improvements. Includes maps of existing and proposed bicycle and pedestrian facilities, and high-level project benefits and cost estimates.
• Add language under Proposed Pedestrian Network on page 276 to include the following policy statement: “The County of Napa will attempt to implement sidewalk gap closure projects in unincorporated areas when the project is delivered by or in partnership with adjacent jurisdiction or public agency and addresses Safe Routes to School, transit access, regional active transportation, or other similar project that serves key destinations as identified in this Plan.”
• Remove the two paragraphs under Implementation Plan / Bicycle Network Prioritization on page 293 and replace with the following: “The proposed active transportation network provides a vision for unincorporated Napa County through 2050. Given staff resources and funding available. Napa County has prioritized completion of the Vine Trail Yountville to St. Helena project (7.7 miles) and Vine Trail Vista Carneros (2.3 miles). Napa County will apply for funding to widen County roads to construct bike lanes and buffered bike lanes when such funding is reasonably available and compliments an existing planned project. For all paving projects listed on the 5-year plan, Napa County will analyze the AT Plan's recommended facility along with traffic calming and other treatments in the Appendix D “Treatment Toolkit,” and implement those that are feasible within the existing road width and document their decisions (and the reasons therefor) in the “Basis of Design” memo.
• Amend Table 12.6, County of Napa Near-Term Bicycle Projects List to retain Project ID 838 (Vine Trail Vista Carneros) and Project ID 1180 (Vine Trail St. Helena to Yountville) and those projects identified in the first 3 years of our 5 Year Paving Plan.
• Amend or remove Near-Term Bicycle Network maps, Figures 12.44 through 12.52, to be consistent with Table 12.6, Near-Term Bicycle Projects List.
• Amend the title on Table 12.7 to read “County of Napa Bicycle - Select Project Benefits” and amend the first sentence under subsection “Induced Bicycle Demand and VMT Reductions” to replace “For the 18 near-term projects proposed for unincorporated Napa County, benefits were quantified using…” with “For 18 select projects from the unincorporated Napa County bicycle project list, benefits were quantified using…”
• In the “Programs and Policies” section in Chapter 12, when engineers prepare preliminary plans for paving projects listed on the 5 year plan, they will analyze the AT Plan's recommended facility along with traffic calming and other treatments in the Appendix D “Treatment Toolkit,” and document their decisions (and the reasons therefor) in the “Basis of Design” memo.
• Napa County also notes that the project costs in Appendix E, Table E.6: “Bicycle Network Recommendations - County of Napa” are preliminary planning-level estimates and that actual cost may be significantly higher to address environmental studies, right-of-way acquisition, drainage, steep adjacent slopes, etc. Cost estimates in the Plan are based on Unit Cost Assumptions identified in Table 6.4, which include context identifying how these planning-level estimates were developed, and what project-specific costs are not included. During the 2031 Plan update, NVTA and Napa County staff should identify projects within the Caltrans highway rights-of-way, clarify the beginning and ends of projects, and provide preliminary engineering level cost estimates.
Appendix A through Appendix F. No changes proposed by staff.
Adoption of this Plan will support long-term improvements to walking and biking in unincorporated Napa County and throughout the region. Having a current adopted plan that identifies specific projects is a requirement or scoring consideration for transportation grant programs at the regional, state, and federal level, including the federal Community Projects Fund and Safe Streets and Roads for All Grants and state Active Transportation Program, Sustainable Transportation Planning Grants, Highway Safety Improvement Program, and others listed in Chapter 6.
Staff note that many of the projects identified in this Plan would require right-of-way acquisitions, regulatory permits, and significant grading to widen roads or bridges, add retaining walls, or necessitate other major modifications to the existing landscape. None of these proposed projects have undergone feasibility analysis, nor has funding for such work been identified.
Requested Action:
Adopt the Napa Countywide Active Transportation Plan.
FISCAL IMPACT
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Is there a Fiscal Impact? |
No |
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Is it Mandatory or Discretionary? |
Discretionary |
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Discretionary Justification: |
The Board has the option to adopt the plan or ask staff to revise the Plan for adoption at a future meeting. |
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Strategic Initiative: |
Build Healthy, Connected Communities |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The proposed action is not a project as defined by 14 California Code of Regulations 15378 (State CEQA Guidelines) and therefore CEQA is not applicable.