TO: Napa County Planning Commission
FROM: Brian D. Bordona - Director of Planning, Building and Environmental Services
REPORT BY: Andrew Amelung - Planner II
SUBJECT: Vine Cliff Winery Alteration - Use Permit Conservation Regulations Exception P25-00161-UP & Use Permit Minor Modification P24-00191-MM
RECOMMENDATION
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WILLIS BLAKEWELL / VINE CLIFF WINERY ALTERATION / USE PERMIT FOR EXCEPTION TO CONSERVATION REGULATIONS NO. P25-00161 AND USE PERMIT MINOR MODIFICATION NO. P24-00191
CEQA status: Based on the proposed project as described further below, the project meets the criteria for eligibility as Categorically Exempt from the California Environmental Quality Act (CEQA) and will not have a significant impact on the environment. [See Class 1 (“Existing Facilities”), Class 2 (“Replacement or Reconstruction”), Class 3 (“New Construction or Conversion of Small Structures”), Class 4 (“Minor Alterations to Land”), and Class 11 (“Accessory Structures”), which may be found in the guidelines for the implementation of the California Environmental Quality Act at 14 CCR §15301, §15302, §15303, §15304, and §15311; see also Napa County’s Local Procedures for Implementing the California Environmental Quality Act, Appendix B.]
Request: Approval of a Use Permit for an Exception to the Conservation Regulations for development activity on slopes over 30 percent, and approval of a Use Permit Minor Modification to remodel and expand a winery cave for Type III occupancy with the addition of a fire water storage area and fire pump room, relocate production to the second cave portal, add a covered crush pad, remodel and relocate expanded guest restrooms, add a commercial high-risk kitchen, remodel and relocate offices, laboratory, breakroom and other accessory uses, create a garden plaza by removing 10,000 square feet of impervious surface, and widen access roads to meet county standards.
The winery is on an approximately 99.59-acre parcel located at 7400 Silverado Trail, Napa. The parcel is within the AW (Agricultural Watershed) zoning district, with a General Plan designation AWOS (Agriculture, Watershed and Open Space). APN: 032-030-027-000.
Staff Recommendation: Find the project categorically exempt from CEQA, approve an Exception to Conservation Regulations No. P25-00161 and approve Use Permit Minor Modification No. P24-00191 as conditioned.
Staff Contact: Andrew Amelung, Planner II, 1195 Third St, Suite 210, Napa, CA 94559; (707) 253-4307; andrew.amelung@countyofnapa.org
Applicant Contact: Willis Blakewell, 7400 Silverado Trail, Napa, CA 94558; (707) 480-9250; willis@blakewellconsulting.com
Applicant Agent: Kirsten Shinnamon Baker, Signum Architecture, 1675 2nd Street, Napa, CA 94559, (707) 337-5986; kirsten@signumarchitecture.com
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EXECUTIVE SUMMARY
PROPOSED ACTIONS:
That the Planning Commission:
1. Find the project Categorically Exempt from CEQA based on recommended Findings 1-3 of Attachment A;
2. Approve Use Permit Application No. P25-00161 for an Exception to Conservation Regulation based on recommended Findings 4-9 of Attachment A; and
3. Approve Use Permit Minor Modification Application No. P24-00191, based on recommended Findings 10-14 of Attachment A and subject to the recommended Conditions of Approval in Attachment B.
Discussion:
Vine Cliff Winery is an existing winery located on a 99.59-acre parcel at 7400 Silverado Trail, between Oakville Cross Rd to the north and Yountville Cross Rd to the south, just northwest of Rector Reservoir. The site is accessed from a private driveway on the east side of Silverado Trail. The winery was originally recognized through a Small Winery Exemption in 1989 and a Use Permit in 1996, with several subsequent modifications to the entitlement.
The purpose of this Minor Modification is to remodel portions of the winery’s existing caves and hospitality building, remodel and relocate various accessory uses such a laboratory, restrooms, and breakroom, install a commercial high-risk kitchen, remove an impervious driveway and parking area to install a garden plaza, add a second portal to the cave and install sprinklers and other improvements such as a fire water storage area and fire pump room in order to achieve Type III occupancy for hospitality, and to make further improvements to the driveways to meet the Napa County Road and Street Standards.
Four locations where development activities will take place - the new cave portal and covered crush pad location as well as the parking area near the proposed courtyard - are on slopes over 30 percent, which requires approval of a Use Permit for an Exception to the Conservation Regulations. The applicant intends to restore the natural slope of these locations to the furthest extent possible. The proposal does not include any changes to wine production, number of employees, visitation or marketing events.
Staff has reviewed the proposed project and recommend that the Planning Commission find the project categorically exempt from CEQA and approve the Use Permit requests, subject to the recommended Conditions of Approval in Attachment B. Findings in support of the CEQA Categorical Exemptions and the Use Permit have been prepared in Attachment A. A Memorandum on the CEQA Categorical Exemptions has been prepared in Attachment D.
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: Based on the proposed project as described further below, the project meets the criteria for eligibility as Categorically Exempt from the California Environmental Quality Act (CEQA) and will not have a significant impact on the environment. Consideration and possible adoption of the following exemptions: [See Class 1 (“Existing Facilities”), Class 2 (“Replacement or Reconstruction”), Class 3 (“New Construction or Conversion of Small Structures”), Class 4 (“Minor Alterations to Land”), and Class 11 (“Accessory Structures”), which may be found in the guidelines for the implementation of the California Environmental Quality Act at 14 CCR §15301, §15302, §15303, §15304, and §15311; see also Napa County’s Local Procedures for Implementing the California Environmental Quality Act, Appendix B.]
BACKGROUND AND DISCUSSION
Owner: Vine Cliff 1871, 7400 Silverado Trail, Napa, CA 94558
Applicant: Willis Blakewell, 7400 Silverado Trail, Napa, CA 94558; (707) 480-9250; willis@blakewellconsulting.com <mailto:willis@blakewellconsulting.com>
Applicant Agent: Kirsten Shinnamon Baker, Signum Architecture, 1675 2nd Street, Napa, CA 94559, (707) 337-5986; kirsten@signumarchitecture.com <mailto:kirsten@signumarchitecture.com>
Zoning: Agricultural Watershed (AW)
General Plan Designation: Agriculture, Watershed and Open Space (AWOS)
Filed: July 15, 2024
Complete: March 21, 2025
Property Area: 99.59 Acres
Existing Development: The parcel is developed with the winery production and hospitality building, two wells, a production wine cave, an historic barrel storage cave not in use, a solar array, a primary dwelling unit, an accessory dwelling unit, a farm labor dwelling unit, accessory structures, 26 acres of vineyard, and landscaping with an ornamental pond.
Proposed Structural Development: Alteration of and addition to the existing winery structure; the expansion of the existing cave for improvements and the addition of a second portal; the introduction of winery use in an existing historic barrel storage cave, the addition of a garden plaza area and entry courtyard for guests, and the relocation of production and hospitality uses.
Signage: No changes
Adjacent General Plan Designation / Zoning / Land Use:
North: Agriculture, Watershed and Open Space / Agricultural Watershed / Vineyards & Rural Residences
East: Agriculture, Watershed and Open Space / Agricultural Watershed / Vineyards & Rural Residences
South: Agriculture, Watershed and Open Space / Agricultural Preserve / Vineyards & Public Lands
West: Agriculture, Watershed and Open Space / Agricultural Watershed / Vineyards & Rural Residences
Parcel History: Wine production at the Vine Cliff site has occurred for over 100 years. Napa County recognized these activities and issued a Small Winery Exemption (SWE) in 1989 (#SW-17889). Under the SWE, Vine Cliff was authorized to produce a maximum of 10,000 gallons of wine per year, subject to the following limitations: 1) no public tours or tasting; 2) no more than one visitor per day and seven visitors per week; and 3) no more than two full-time and two part-time employees. In 1995, Napa County approved a modification to the SWE (#94180-MOD) which allowed for a redesign of the winery floor plan, reduction in production space to 4,424 square feet, and use of a 2,271 square-foot outdoor concrete slab for grape receiving and crushing.
In 1996, Napa County approved Use Permit #96095-UP, which allowed 1) wine production up to 30,000 gallons per year; 2) the construction of an approximately 840 square-foot mezzanine within the existing 1,498 square-foot winery barrel room structure; 3) construction of a single-story 3,835 square-foot structure for offices, a conference room, a kitchen, and a tasting/reception area; 4) use of the existing 2,072 square-foot cave and the addition of 10,255 square feet of new cave area for wine barrel storage; 5) custom production of wine for three new producers utilizing 5,000 gallons per year of the 30,000 gallons per year production capacity; 5) the use of 2,800 square feet of production area for custom production activities; 6) retail wine sales; 7) private tours and tastings for up to four persons, with an average of three persons, 100 times per year; 8) marketing events that included tours and tasting, luncheons, and private promotional dinners; 9) the addition of 12 parking spaces; and 10) the construction of a left turn lane from Silverado Trail.
The 3,835 square-foot structure was never constructed, and in 1998, Napa County approved a modification (#98041-MOD) to the unbuilt structure to add 123 square feet for hospitality and administrative activities, for a total of 3,598 square feet.
The foundation and a cave tunnel from the original 1871 winery structure remains on the property (an unpermitted but legal historic structure that pre-dates County zoning regulations), however it was not part of these first two entitlements nor subsequent entitlements and has not been in use since the original winery ceased operations in 1901 due to phylloxera. This foundation and cave tunnel are part of the current project proposal and described as the historic wine barrel storage cave, in addition to the primary wine production cave that was authorized for use and expansion through Use Permit #96095-UP.
In 1999, Napa County approved Use Permit #98323-UP which authorized 1) an increase in production from 30,000 gallons per year to 48,000 gallons per year; 2) the expansion of the winery production cave from 12,327 square feet to 15,000 square feet for barrel and library wine storage; 3) marketing events between 11:00am and 11:00pm that allowed tours and tastings twice a week for up to four visitors, luncheons twice a month for up to 50 visitors, and private promotional dinners six times per year for up to 50 visitors; 4) closure of retail sales when over 40 persons are in attendance of a marketing event; 5) marketing events that cannot be scheduled to begin or end between 4:00pm and 6:00pm; and 7) an increase in the maximum number of off street parking from 12 to 21 spaces. In 2008, a Very Minor Modification to Use Permit (P08-00159-VMM) to redesign the unbuilt 3,598 square-foot hospitality and administrative building to a 2,393 square-foot structure within the same footprint, and to remove custom crush, was approved.
In 2017, the County authorized modifications to the entitlement through Major Modification to Use Permit P17-00129-MOD, which involved revisions to the marketing program and recognition of changes to the site and floor plan. The modification included 1) visitation, tours, and tastings seven days a week from 11:00am to 11:00pm with up to 50 visitors per day or up to 350 per week, which may include food pairings by a licensed caterer or food service provider and can take place in the existing winery building, patio, pond and garden area, vineyards and within the cave; 2) on-premise consumption of wine in accordance with “Assembly Bill 2004” and the sale of wine for consumption on premise; 3) up to ten full-time employees and six part-time employees; the construction of driveway and access road improvements as required by Napa County Road and Street Standards; 4) the removal of custom crush from the entitlement; 5) utilization of the existing 2,338 square-foot winery building for winemaking, retail sales, tastings, marketing events and offices (including the 840 square-foot mezzanine), with a total accessory use area of 2,338 square feet and production area of 21,696 square feet; and 6) utilization of the 15,000 square foot cave to also include marketing events for up to 50 persons, which requires a Type III occupancy permit to be in place prior to any public use.
Code Compliance History: Two Code Enforcement cases were opened for the project parcel APN: 032-030-027. The first, Code Enforcement Case CE11-00023, was opened on February 10, 2011, to address possible vineyard replanting and grading, and was closed under “no violation” as staff determined no activity was taking place on the parcel. The second, Code Enforcement Case CE15-00359, was opened on October 14, 2015, to address tours and tastings that were exceeding their entitlement at that time, and the case was resolved on March 11, 2016, through a letter of clarification provided by County Staff, with the property owner returning to operations under the current entitlement with consideration for a Modification to Use Permit in the near future. The following year the County approved P17-00129-MOD which involved revisions to the marketing plan.
Discussion Points:
Setting
The approximately 99.59-acre parcel includes the winery development, cave, 26 acres of vineyard, and solar array, with approximately 55 acres of undeveloped grassland, shrubland, oak woodland and coniferous woodland. Properties in the vicinity of the project site include vineyards, grasslands, forest land, and residences. The winery is located approximately 1,000 feet from the Silverado Trail, and all applicable setbacks, including stream setbacks for an ephemeral watercourse, have been met. The nearest offsite residence is approximately 1,250 feet to the north, and the 349.57-acre parcel to the southeast is owned by the State of California as part of the Rector Reservoir Wildlife Area. The closest significant stream is Rector Creek where it is released from Rector Reservoir, which is approximately 2,470 feet away, and the closest neighboring well is 1,275 feet to the north.
Winery Use Permit Modification Proposal
The applicant is requesting an Exception to the Conservation Regulations for development activity on slopes over 30 percent and approval of a Minor Modification for the conversion of an existing winery structure with 4,424 square feet of production area and 2,338 square feet of accessory area (for a total of 6,762 square-foot) into a new winery structure with 1,064 square feet of production area and 3,579 square feet of accessory area (for a total of 4,643 square-foot); the conversion and expansion of an existing 15,000 square-foot winery production cave currently authorized and in use and the conversion of an existing 2,751 square-foot historic barrel storage cave not authorized and not currently in use; the remodeling and relocation of an existing covered crush pad, production area, tasting area, laboratory, employee offices, restrooms, and an employee break room; the addition of a guest elevator between building levels; the addition of a high-risk kitchen for on-site food preparation; the addition of an entry courtyard for guests; the conversion of the existing crush pad into an entry courtyard for guests; the addition of a second hospitality cave portal to the primary production cave; the installation of fire sprinklers and insulation that meet Type III Occupancy standards; and the conversion of approximately 10,000 square feet of asphalt driveway and parking area into a garden plaza.
The remodel and expansion of approximately 17,751 square feet of existing wine cave area will include the addition of wine production, a winemaker laboratory, an employee breakroom and restroom, a fire water storage area and fire pump room, storage of wine equipment, barrel storage and hospitality. The remodel of the existing 6,762 square-foot hospitality structure includes the relocation of all production activities from the existing building to the expanded winery cave. A second cave portal will be installed to the primary production cave, in addition to fire sprinklers and insulation in order to meet Type III Occupancy. A covered crush pad will be incorporated into the second cave portal, along with the expansion of one existing cave tunnel to accommodate fermentation tanks. Approximately 3,300 square feet of the existing cave will be utilized for guest tasting and marketing events, as approved through a previous entitlement (P17-00129-MOD) under the condition that the cave meets Type III Occupancy standards. The 2,751 square-foot historic barrel storage cave that was not part of previous entitlements and not in use with current operations is also included in the proposal, with 500 square-foot hospitality area and a tunnel connection to the proposed hospitality structure.
Cave spoils are estimated to be 14,000 cubic yards. Excess soils will be hauled to an approved offsite location. The project also proposes the removal of approximately 10,000 square feet of impervious asphalt currently used for driveway and parking area with the installation of a garden plaza made up of pervious surface. The plaza will incorporate hydroseeding that will not require a permanent irrigation system.
Under P17-00129-MOD, tours and tastings that include food pairings are allowed to be furnished by a licensed caterer or food service provider. This application seeks to improve the existing low-risk breakroom to a high-risk kitchen to allow onsite food preparation. The proposed structure will be 4,643 square feet, with 1,064 square feet of production area and 3,579 square feet of accessory area. The footprint of the proposed structure will extend into an area of impervious asphalt and will have no significant impacts on the environment as it will be located on a previously disturbed area.
The total amount of cave area will increase from 17,751 square feet to 20,174 square feet, and the total amount of winery structure area will decrease from 6,762 square feet to 4,643 square feet. Overall, the total amount of winery area will increase from 26,785 square feet to 27,563 square feet (an increase of 778 square feet). Of the 27,563 square feet being proposed, 63 percent (20,138 square feet) will be dedicated to production use while 37 percent (7,425 square feet) will be dedicated to accessory use. Further details on winery square footage can be found on Sheet G0.02 of the plan set in Attachment F - Graphics.
Conservation Regulations
The overall development area consists of mild to steep slopes, with four sections in areas with slopes over 30 percent. These sections include 1) a 3,408 square-foot development area with an average slope of 41.02 percent near one of the cave hospitality areas; 2) a 1,295 square-foot development area with an average slope of 42.69 percent near the entry courtyard for guests; 3) a 1,177 square-foot development area with an average slope of 42.96 percent near the tunnel that connects the winery structure to the historic barrel storage cave; and 4) a 2,805 square-foot development area with an average slope of 48.25 percent where the new covered crush pad and production cave portal will be located. Development on these slopes will require the granting of a Use Permit for an Exception to Conservation Regulations, as described in NCC § 18.108.060(A). Grading activities in these areas will allow for some hillside restoration back to the original slope where feasible, with the use of retaining walls in other locations to minimize the amount grading activities. According to the Biological Resources Assessment prepared by Salix Consulting, Inc. in July 2024, these development activities make up a small expansion of the existing winery with very little new native ground disturbance. No special-status species were identified on site. One native oak tree will be removed at the location of a cave hospitality area and will be replaced at a 3:1 replanting ratio, and the applicant intends to have a biologist survey the tree for bats or nesting birds prior to removal. Recommended Findings 4 through 9 in Attachment A address the requirements needed for the granting of an Exception to Conservation Regulations for structural/road development projects as described in NCC § 18.108.040(A). Staff has determined that the required findings can be met and supports the approval of an Exception to Conservation Regulations.
Water Availability and Wastewater Feasibility
According to the submitted Water Availability Analysis prepared by O’Connor Environmental, Inc. dated September 18, 2024, the project is not proposing any changes to existing water use over the most recent existing approved entitlement (P17-00129-MOD) and the associated February 27, 2017, Water Availability Analysis, also prepared by O’Connor Environmental, Inc. The submitted Water Availability Analysis and Wastewater Feasibility Study both demonstrate that the proposed project will not cause significant adverse well interference or substantial reductions in groundwater discharge to surface waters, however it was noted that the addition of a high-risk kitchen for on-site food preparation for marketing events was likely to account for some additional water use. An addendum prepared by Matthew O’Connor, PhD (CEG #2449) dated May 9, 2025, which opined that the 2017 Water Availability Analysis assumed that the marketing events were catered on-site and accounted for a 15 gallon per guest rate of domestic water use. The addendum also pointed out that the more recent September 2024 WAA estimated that on-site catering would add 5 gallons per guest, or the equivalent of approximately 0.032 acre-feet per year based on the permitted 2,100 marketing event guests per year. This means that the proposed estimated 0.10 acre-feet per year for on-site catered events listed in Table 3 of the September 2024 WAA is 0.068 acre-feet higher than what is to be expected with on-site catering and food preparation. With this clarification in the addendum, staff concluded that no adverse effects on groundwater use or wastewater discharge are to be expected. The Environmental Health Division has reviewed and approved the proposed septic system with conditions. The proposed project did not require a Tier 2 or Tier 3 WAA as the well is not within 500 feet of a neighboring well or 1,500 feet from a significant stream or body of water.
Napa County Road and Street Standards
The winery currently utilizes two existing parallel driveways that each provide access to the winery structure. Currently the northernmost driveway primarily accommodates hospitality activities, and the southernmost driveway accommodates production activities. The project proposes the relocation of production and hospitality activities, and with the relocation the primary function of each driveway will shift. The northern driveway that was primarily used for hospitality will now be primarily serving production activities and vice versa. The driveway design meets the Napa County Road and Street Standards. It has been reviewed by the Engineering Division and Fire Marshal’s Office and has been approved for driveway improvements with conditions.
Staff Recommendation:
Consistency with Standards:
1. Zoning: The project is consistent with the AW zoning district which allows for Winery Activities as described in NCC §18.20. 030and for Minor Modifications to Winery Use Permits NCC §18.124.130(C). The project does not propose any increase in the number of full-time employees, will not result in an increase in the total number of vehicle trips per day, does not propose any increase in wine production, does not increase the number of marketing events or daily tours and tastings. The project proposes an increase in aggregate building footprint (including caves) that does not exceed 10,000 square feet, and includes the addition of a new high-risk commercial kitchen where existing off-site catering is entitled and has taken place, and therefore can be categorized as a Minor Modification to Winery Use Permit according NCC §18.124.130(C) Subsections 5, and 6. The other components of the project such as landscaping, interior remodeling and change in parking fall under the types of activities that may be approved under the winery administrative permit process (NCC §18.126,065 A, B, G, K, L, M, Q, R, S, T, and U). Recommended Findings 10 through 14 in Attachment A address the requirements needed for approval of a Use Permit as described in NCC §18.124.070.
2. Building: The Napa County Building Division has reviewed the project submittal documents and approved the proposed Minor Modification to Use Permit on August 6, 2024. The applicant has submitted Building Permit applications (BC25-00129-RPL, BC25-00130-ADD, and BC25-00132-ALT) which are under concurrent review and must be approved prior to any development activities, pending the approval of P24-00191-MM and P25-00161 by the Planning Commission.
3. Fire: The Napa County Fire Marshal has reviewed the project submittal documents and approved the proposed Minor Modification to Use Permit with Conditions of Approval dated March 25, 2025, which can be found in Attachment B.
4. Environmental Health: The Napa County Environmental Health Division has reviewed the project submittal documents and approved the proposed Minor Modification to Use Permit with Conditions of Approval dated January 16, 2025, which can be found in Attachment B.
5. Public Works: The Napa County Department of Public Works has reviewed the project submittal documents and approved the proposed Minor Modification to Use Permit with Conditions of Approval dated October 10, 2024, which can be found in Attachment B.
6. Engineering Division: The Napa County Engineering Division has reviewed the project submittal documents and approved the proposed Minor Modification to Use Permit with Conditions of Approval dated March 14, 2025, which can be found in Attachment B.
Public Comments
At the time this staff report was completed no public comments had been received.
Decision Making Options:
As noted in the Executive Summary Section above, staff is recommending approval of the Minor Modification to the Use Permit and Approval of the Exception to the Conservation Regulations with conditions of approval as described in Option 1, below. Decision making options include the following:
Option 1 - Approve Applicant’s Proposal (Staff Recommendation)
Disposition - This action would result in the adoption of the Categorical Exemption, approval of the Exception to Conservation Regulations, and approval of the Minor Modification to Use Permit. 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 actions listed in the Executive Summary. If conditions of approval are to be amended, specify conditions to be amended at time motion is made.
Option 2 - Modify the Applicant’s Proposal
Disposition - This option would result in modification to the Conservation Regulations Exception Use Permit and the Minor Modification to Use Permit 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 plans and conditions of approval are desired.
Option 3 - Deny Proposed Project
Disposition - In the event the Commission determines that the project does not, or cannot, meet the required findings for the granting of the Use Permit, Commissioners should articulate what aspect or 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 Use Permit is not being approved.
Action Required - Commission would make a motion to deny the project, based upon the Commission's statements.
Option 4 - Continuance Option
The Planning Commission may continue an item to a future hearing date, at its discretion.
Attachments:
A. Recommended Findings
B. Recommended Conditions of Approval and Final Agency Memos
C. Previous Project Conditions
D. Categorical Exemption Memorandum
E. Application Packet
F. Graphics
G. Biological Survey Report and Memorandum
H. Water Availability Analysis
I. Wastewater Feasibility Study
J. Water Availability Analysis Clarification Memorandum
K. Preliminary Stormwater Control Plan