Move Downtown
A Downtown Stockton Multimodal Transportation
Network & Land Use Compatibility Action Plan
FINAL REPORT June 2026
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TABLE OF CONTENTS
CONTENTS
Executive Summary 1
Project Purpose
and Planning Context 1
Study Area Overview 1
Key Challenges and Opportunities 1
Plan Development and Participation 2
Overview of Alternatives 2
Implementation Roadmap 3
Introduction 4
Project Team 4
Purpose of the Plan 4
Study Area and Regional Context 5
Existing Conditions Assessment 9
Summary of Key Local, Regional, and State Plans 9
Land Use Analysis 10
Displacement Risk Analysis 1 7
Transportation Network Analysis 1 8
Community and Stakeholder Engagement 30
Public Engagement Overview 30
Stakeholder Working Group 3 1
Public Engagement Activities 32
Transit Customer Experience 33
Engagement Themes 34
Alternatives Analysis 36
Alternative 1 – Foundation 36
Alternative 2 – Focused Plan 42
Alternative 3 – Full Vision 48
Alternative Benefit-Cost Analysis 55
Preferred Alternative 55
Action and Phasing Plan 59
Recommended Projects 59
Financial Strategy 6 1
Agency Roles 63
Plan Adoption and Next Steps 65
Plan Gaps 65
Plan Integration 65
Plan Monitoring 66
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APPENDICES
Appendix A: Literature Review
Appendix B: Land Use Network Review
Appendix C: Equity Analysis
Appendix D: Displacement Analysis
Appendix E: Transportation Network Review
Appendix F: Community Engagement Summary
Appendix G: Site-Walk Summary
Appendix H: Final Alternatives
Appendix I: Toolbox Strategies
Appendix J: Benefit-Cost Analysis
Appendix K: Project Prioritization Methodology
Appendix L: Project List
Appendix M: Preliminary Cost Estimates
Appendix N: Financial Strategy
TABLE OF CONTENTS
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LIST OF FIGURES
Figure 1. Study Area Map 6
Figure 2. Study Subareas Map 8
Figure 3. Key Destinations Map 1 2
Figure 4. Vacant Lands, Public Lands, and Historic Resources Map 16 Figure 5. Existing and Planned Bicycle Facilities Map 1 9 Figure 6. Transit Network Map 2 1
Figure 7. Crashes by Severity Levels 26
Figure 8. Percentage of Crashes by User and Severity 27 Figure 9. Collision Heat Map 28
Figure 10. Alternative 1 Priority Safety Intersections 37 Figure 1 1. Alternative 1 Bicycle and Pedestrian Priority Corridors 38 Figure 1 2. Alternative 1 Transit Improvement Areas 39
Figure 1 4. Alternative 2 Safety Priority Corridors 43
Figure 1 5. Alternative 2 Bicycle and Pedestrian Priority Corridors 44 Figure 16. Alternative 2 Transit Priority Corridors 45
Figure 1 7. Alternative 2 Land Use Focus Area 47
Figure 1 8. Proposed El Dorado Street Cross Section 49
Figure 1 9. Proposed Center Street Cross Section 49
Figure 20. Proposed San Joaquin Street Cross Section 50 Figure 2 1. Proposed Oak Street Cross Section 50
Figure 22. Alternative 3 Bicycle and Pedestrian Priority Corridors 5 1 Figure 23. Alternative 3 Transit Priority Corridors 52
Figure 24. Alternative 3 Land Use Focus Area 54
LIST OF TABLES
Table 1. Top 5 Ranked Projects 3
Table 2. Project Goals and Objectives 5
Table 3. List of Reviewed Documents 9
Table 4. Crashes by Severity and User Type 26
Table 5. Intersections Ranked by Crash Frequency 29
Table 6. Alternative Strategies 56
Table 7. Recommended Projects 59
Table 8. Project Preliminary Cost Estimates 6 1
Table 9. Potential Transportation Focused Funding Opportunities 62 Table 10. Potential Land Use and Development Focused Funding Opportunities 63
Table 1 1. Performance Measures 67
TABLE OF CONTENTS
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EXECUTIVE SUMMARY
Project Purpose
and Planning Context
The Move Downtown Plan (Plan) is a comprehensive, long
range framework to guide transportation and land use
investment in Downtown Stockton, focusing on creating a safer, more connected, equitable, and economically vibrant multimodal district. Centered on a one-square-mile study area anchored by the Robert J. Cabral Station, Downtown Transit Center, and San Joaquin Street Station, the Plan synthesizes an existing conditions analysis, extensive
community and stakeholder engagement, and alignment
with adopted City, regional, and State policies to identify challenges and opportunities across mobility, land use, economic development, and community equity. The Plan
evaluates and refines alternative multimodal and land use scenarios using a prioritization framework that leverages a collection of multidisciplinary goals to culminate in a recommended integration strategy. An implementation
roadmap, including phased actions, cost considerations, funding strategies, and performance tracking, positions the Plan as a practical tool to support capital programming, grant readiness, and coordinated decision making
that advances Downtown Stockton’s role as a regional
multimodal and economic hub.
Relationship to City,
Regional, and State Priorities
The Project aligns with City, Regional, and State plans and priorities for transportation and the built environment. Goals, priorities, and strategies outlined in documents such as the California Transportation Plan (CTP) 2050, the California Climate Action Plan for Transportation Infrastructure
(CAPTI), and the City General Plan were incorporated, as applicable, throughout the development of the Project.
Study Area Overview
The Plan Study Area encompasses approximately one square mile in the heart of Downtown Stockton. It is bounded by the Burlington Northern Santa Fe (BNSF) railroad tracks to the south, Oak Street to the north, Center Street to the west, and Airport Way to the east. This boundary was
established to strategically include three key transit stations within Downtown: the Robert J. Cabral (Cabral) ACE Station on Channel Street, the Downtown Transit Center (DTC) on Weber Avenue, and the San Joaquin Street Station, which operates Gold Runner intercity rail service, on South San Joaquin Street.
Key Challenges and Opportunities
Downtown Stockton’s transportation and land use network presents a strong foundation for multimodal mobility and revitalization opportunities, alongside several critical challenges that must be addressed to achieve a cohesive and equitable downtown. Key strengths include a well
connected street grid with walkable block sizes, a robust network of parks and public spaces, including McLeod
Lake, and a rich collection of historic and architecturally significant buildings that contribute to Downtown Stockton’s unique character. In addition, the City’s General Plan
and zoning allow multifamily residential and mixed use
development throughout most of Downtown, providing
flexibility to advance housing and economic development without requiring major policy amendments.
At the same time, the Study Area faces several land use, equity, and mobility challenges. Development opportunities, while abundant, including vacant parcels and publicly
owned land, are scattered, making it difficult to establish continuous development corridors that connect the three major transit stations. Physical barriers such as State Route 4 (SR-4), the Union Pacific and BNSF rail corridors, and adjacent industrial uses limit connectivity, fragment neighborhoods, and create incompatibilities with nearby residential areas, particularly in Little Manila and areas east of the rail line. Environmental conditions on former industrial sites, aging utility infrastructure, and the presence of unhoused populations along the Mormon Slough further complicate redevelopment and raise equity and public
health concerns. Access to healthy and affordable food
also remains a challenge for Downtown residents.
From a transportation perspective, gaps in the bikeway
and transit networks constrain mobility and limit access to key destinations and transit stations, particularly south of SR-4 and in the eastern portions of the Study Area where higher density residential zoning is planned. The Plan’s safety analysis reveals that pedestrians and bicyclists are disproportionately affected by severe and fatal crashes, with high risk locations concentrated south of SR-4 and along corridors such as Airport Way, El Dorado Street, and Center Street. These findings underscore the opportunity for targeted safety improvements, multimodal connectivity enhancements, and land use strategies that reduce barriers, improve access to transit, and support a safer, healthier, and more connected Downtown Stockton.
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Plan Development and Participation
The Plan was developed through a comprehensive, three
phase community outreach and engagement process
guided by a Stakeholder Working Group representing
twenty-four (24) agencies, service providers, advocacy
groups, and organizations. More than twenty (20) in
person and virtual events and three surveys engaged
over 1,200 residents, visitors, business owners, workers, and property owners. Community and stakeholder input
consistently highlighted priorities including safer walking and bicycling conditions, improved connections across SR-4 and rail corridors, enhanced cleanliness, better access to transit stations, and strategic investments that support small businesses, expand affordable housing opportunities, and enhance the public realm, particularly through the activation of underutilized and vacant properties, and incorporating mobility hub features at all three major transit locations.
Overview of Alternatives
The Move Downtown Plan evaluated three distinct
alternatives to understand how varying levels of investment, intensity, and implementation complexity could address
Downtown Stockton’s transportation and land use needs. The alternatives were developed collaboratively with the City, the Stakeholder Working Group, and the Downtown Stockton
community to reflect shared priorities and local context.
Alternative 1: The Foundation Plan
Alternative 1 focuses on near term, lower cost
programmatic and capital improvements that address
urgent safety and mobility needs while establishing a
baseline for future enhancements.
Transportation improvements include:
• High collision intersection safety treatments
• Pedestrian crossing and sidewalk improvements
• Roadway striping and signage enhancements
• Lighting and wayfinding improvements
• Targeted traffic calming measures
• Transportation Demand Management (TDM) strategies
• Basic transit stop amenity upgrades
Land use improvements include:
• Identifying vacant parcels and opportunity sites
• Activating Downtown commercial spaces, including
vacant ground floor space, parking lot edges, and other underutilized parcels
• Rehabilitation of vacant buildings
• Pursuit of funding and resources for façade
improvements
Alternative 2: The Focused Plan
Alternative 2 builds upon the Foundation Plan by
introducing targeted Safety, Pedestrian and Bicycle,
and Transit Priority Corridors, balancing aspirational
improvements with feasibility and implementation readiness.
Transportation improvements include:
• Continuous, high quality bicycle facilities
• Expanded pedestrian enhancements along key corridors
• Upgraded transit stops with improved amenities
• Reallocation of street space to better support multimodal travel
Land use improvements include:
• Development of Historic Design Guidelines
• Encouragement of infill housing on vacant and
underutilized parcels
• Activation of the Mormon Slough as a community and
mobility asset
• Creation of pedestrian oriented corridors across SR-4 Alternative 3: The Full Vision Plan
Alternative 3 represents a comprehensive, long term
approach that fully integrates multimodal transportation investments with land use strategies to transform Downtown into a connected, transit oriented, and vibrant urban center.
Transportation and public realm improvements include:
• Complete corridor build outs with protected bikeways
• Widened sidewalks and high quality pedestrian
crossings
• Transit priority treatments, such as transit signal priority and enhanced bus stop platforms
• Streetscape and public realm enhancements
Land use and placemaking strategies include:
• Encouragement of mixed use and high density housing
and infill development
• Development of transitions and buffers adjacent to rail lines
• Improvements to SR-4 undercrossings
• Continued activation and enhancement of the Mormon
Slough
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Each alternative was evaluated based on its performance relative to the Plan’s goals, community and stakeholder input, and feasibility considerations. Through this
assessment, the Plan concludes that Alternative 3 best
advances safety, connectivity, equity, economic vitality, and land use integration, while providing a scalable framework that can be implemented incrementally over time as funding and partnerships become available.
Implementation Roadmap
The Action and Phasing Plan establishes a structured, goal based approach for advancing the Full Vision Alternative through prioritized implementation strategies. Recommended projects were evaluated using a quantitative prioritization framework that measures how closely each strategy aligns with the Plan’s six goals: Safety, Mobility, Economic Vitality, Social Equity, Improved Land Use, and Air Quality, Health, and Sustainability. Projects were ranked based on these scores, with high ranked projects demonstrating the strongest overall alignment with Plan objectives. The top 5 ranked projects are shown in the table below.
Table 1. Top 5 Ranked Projects
PROJECT NAME PROJECT
RANKING
IMPLEMENTATION
PRIORITY
SR 4 Crossings 1 Medium Term
El Dorado Street
Corridor 2 Short Term
Airport Way Corridor 3 Short Term
Weber Avenue Corridor 3 Short Term
Downtown Transit
Center (DTC) Access 5 Short Term
The preliminary capital cost estimate associated with
the recommended alternative is $79,8 1 2,500. The
Plan’s financial strategy identifies a range of potential funding sources and grant programs that can support
the implementation of the recommended projects and
help align investments with project readiness and impact.
This approach supports informed decision making, helps
prioritize investments, and allows the City to advance
high impact solutions incrementally as funding and
implementation opportunities arise.
Successful implementation of the Move Downtown Plan will require coordinated leadership across local, regional, and State agencies. The City of Stockton will serve as the lead implementing agency, advancing projects and aligning
land use with the Plan’s multimodal vision. Regional and State partners will support transit operations, funding, and infrastructure coordination, particularly for projects affecting major corridors. The City will also work with developers, business organizations, and community groups, serving as the central convener to coordinate project delivery, align funding, and advance implementation over time.
Existing SR 4 undercrossing at California Street
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INTRODUCTION
Project Team
The Move Downtown Plan (Plan) was prepared by a
multidisciplinary team of public agency and consultant staff, including:
City of Stockton (Lead)
In partnership with:
SAN JOAQUIN
REGIONAL
RAIL COMMISSION
San Joaquin Regional
Rail Commission (SJRRC)
San Joaquin Regional
Transit District (SJRTD)
San Joaquin
Council of Governments
(SJCOG)
With support from:
Mark Thomas
PlaceWorks
PortCity
Purpose of the Plan
Role and Intended Audiences
of th
e Move Downtown Plan
The Move Downtown Plan (Plan) serves as a
comprehensive, long-range framework that unifies prior
planning efforts for Downtown Stockton into a single
guiding document. By consolidating transportation,
land use, and community priorities, the Plan streamlines decision-making and establishes a consistent vision to guide both near-term actions and long-term investment.
The Plan functions as a central reference for City staff, transit providers, developers, and community partners by informing capital improvement priorities, grant applications, service planning, and development review. More broadly, it provides stakeholders with a transparent, data-driven roadmap for how Downtown’s transportation network and
land use patterns are intended to evolve, helping the City and its partners coordinate investments and direct resources efficiently to achieve the Plan vision.
Relationship to Adopted City, Regional,
and State Plans
The Plan is intentionally aligned with adopted City, regional, and State priorities to ensure consistency, competitiveness for funding, and long term implementation success. At the City level, the Plan advances the Envision Stockton 2040 General Plan by supporting infill development, transit oriented growth, multimodal connectivity, and revitalization of the Downtown Core and Greater Downtown areas. Regionally, the Plan
supports the San Joaquin Council of Governments’ Regional Transportation Plan/Sustainable Communities Strategy
and Mobility Hub initiatives by strengthening connections to key transit facilities, improving first and last mile access, and reinforcing Downtown Stockton’s role as a central
multimodal hub. At the State level, the Plan aligns with the California Transportation Plan 2050 and the Climate Action Plan for Transportation Infrastructure (CAPTI) by prioritizing safety, equity, mode shift, reduced vehicle miles traveled, and greenhouse gas emissions reductions. By integrating these City, regional, and State objectives into a single, actionable framework, the Move Downtown Plan positions
Downtown Stockton to advance shared policy goals while
improving quality of life and supporting future funding and implementation opportunities.
Project Goals and Objectives
Goals and objectives were critical to the project
development process, and were identified early in the
Project to provide guidance and inform the development of strategies and a preferred alternative. A set of six (6) goals (Safety, Mobility, Economic Vitality, Social Equity, Improved Land Use, and Air Quality, Health, & Sustainability) were identified to guide the Project and support alignment with goals and priorities by the City of Stockton (City) and the State of California (State). Objectives were also identified to expand on these goals and define intended outcomes from the implementation of the Project’s preferred alternative.
These goals and objectives were reviewed and informed by discussions with the City’s partner agencies, as well as the Project’s Stakeholder Working Group (SWG).
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Table 2. Project Goals and Objectives
# GOALS: OBJECTIVES:
1 Safety
1. 1 Reduce collision rates, injuries, and fatalities for all modes of travel
1.2 Increase the quality and comfort of bicycle, pedestrian, and transit facilities
1.3 Improve collision hot spots
1.4 Increase the feeling of personal safety for residents and visitors by applying principles of Crime Prevention Through Environmental Design
2 Mobility
2. 1 Increase mode share for non-single-occupancy vehicle modes
2.2 Reduce vehicle miles traveled
2.3 Enhance first/last-mile connections to transit
2.4 Increase travel time reliability
3 Economic Vitality
3. 1 Provide opportunities to develop underutilized parcels as mixed-use development
3.2 Improve pedestrian, bicycle, and transit access to commercial corridors and business districts
3.3 Encourage placemaking and the development of public spaces
3.4 Support local goods movement and enhanced delivery systems 4 Social Equity
4. 1 Prioritize investments and improvements serving disadvantaged community members
4.2 Incorporate community-identified solutions into recommendations
4.3 Increase access to multimodal and low-cost transportation options 5 Improved Land Use
5. 1 Support infill residential development ranging from middle to high-density housing
5.2 Support transit-oriented development
5.3 Encourage joint development opportunities
5.4 Enhance livability by improving access to services, healthcare, and healthy food
5.5 Explore parking optimization strategies
6 Air Quality, Health,
& Sustainability
6. 1 Reduce transportation-related greenhouse gas emissions and other environmental pollutants
6.2 Encourage physical activity within Downtown Stockton Study Area and Regional Context
Downtown Stockton Geographic Boundaries
The Plan Study Area encompasses approximately one square mile in the heart of Downtown Stockton. It is bounded by the Burlington Northern Santa Fe (BNSF) railroad tracks to the south, Oak Street to the north, Center Street to the west, and Airport Way to the east. This boundary was established to strategically include three key transit stations within Downtown:
the Robert J. Cabral (Cabral) ACE Station on Channel Street, the Downtown Transit Center (DTC) on Weber Avenue, and the San Joaquin Street Amtrak Station on South San Joaquin Street.
Figure 1 illustrates the boundaries of the Move Downtown Study Area. The Envision Stockton 2040 General Plan identifies two Downtown subareas: the Downtown Core and the Greater Downtown. The Move Downtown Study Area largely overlaps with the Downtown Core but extends slightly beyond it to include areas such as Little Manila, located south of State Route 4 (SR-4), and parcels east of the UPRR rail line. The Study Area is fully contained within the Greater Downtown boundary.
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Figure 1. Study Area Map
Move Downtown
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Transit, Rail, and Highway Systems
Key transportation conditions in the Study Area include San Joaquin Regional Transit District (RTD) bus routes and stops, rail transit stations identified by the San Joaquin Council of Governments (SJCOG) as future mobility hubs, and the influence of SR-4 on connectivity and access.
RTD offers Bus Rapid Transit (BRT) Express, local fixed-route bus services, Metro Hopper, Intercity County Hopper,
commuter, and ADA Dial-a-Ride (DAR) services. Through
these services, RTD offers transit connectivity to destinations within the Study Area, including bus and rail transit stations, and to destinations outside of Stockton. Metro Hopper
service provides a deviated fixed-route service throughout the City of Stockton which supplements the demand for
ADA Dial-a-Ride operations. Commuter services provide
connections between San Joaquin County, Sacramento and
Dublin Bay Area Rapid Transit (BART).
Two major rail corridors traverse the Study Area: the north– south Union Pacific Railroad (UPRR) line, which carries both ACE and Gold Runner intercity passenger rail services, and the east–west BNSF Railway line, which serves Amtrak.
ACE provides passenger rail connections from Stockton
to Manteca and extends westward to San Jose. Amtrak
offers statewide and national passenger service, with major destinations from Stockton including Sacramento, the San Francisco Bay Area, and the Central Valley.
Locally regarded as the “Crosstown Freeway,” SR-4 provides the primary connection between Interstate 5 (I-5) and
Highway 99 and cuts through the southern third of the Study Area. The facility is elevated above the surrounding street network, allowing north–south streets to pass underneath.
Built Environment and Character
Downtown Stockton is laid out with a traditional grid
street network with blocks relatively equal squares of 300 feet by 300 feet, creating blocks approximately 90,000
square feet each. This compact and consistent block grid is conducive for a walkable environment and allows for
a development pattern that is denser than other parts of the City. This block structure extends beyond the Move
Downtown Study Area into the surrounding areas.
The one-square-mile Plan Study Area is a diverse
environment comprised of different subareas, each having a distinct physical character and style of development. For the purposes of the Move Downtown project, three subareas
were identified to guide recommendations based on
existing land uses and area character. These three subareas are: the Downtown Civic and Commercial area to the north and west, East Cabral Station area to the east, and the Little Manila area to the south. The following sections describe each of these three areas in greater detail. Figure 2 shows the subareas comprising the Move Downtown Study Area.
These subareas overlap with, but are distinct from, areas defined in other City documents including the Gleason
Historic Neighborhood (Design District) and the Little
Manila/Gleason Park Neighborhood Action Plan.
Within the Study Area, natural features such as McLeod
Lake and Mormon Slough also shape Downtown’s identity
and development pattern. McLeod Lake provides a
prominent waterfront amenity near Center Street, while
Mormon Slough, a seasonally dry creek bed along the
southern boundary, creates opportunities for ecological enhancement and improved public access.
Role of Downtown
as a Multimodal and Economic Hub
Downtown Stockton serves as a critical multimodal and
economic hub for both the City and the broader Central
Valley. Its proximity to major transportation assets, including rail, regional transit, and the Port of Stockton, positions it as a central node for the movement of people and goods
between the San Francisco Bay Area, Sacramento Valley,
and San Joaquin Valley. Located just west of the Study Area along the San Joaquin River, the Port of Stockton, one of only two inland ports in California, plays a significant role in supporting goods movement, regional commerce, and
economic competitiveness.
RTD offers transit services throughout the Study Area
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Figure 2. Study Subareas Map
4 Stockton
Channel
MormonSlough
McLeod
Lake
SAN JOAQUIN ST
MADISON ST
SCOTTS AVE
SAN JOAQUIN ST
SONORA ST
STANISLAUS ST
COMMERCE ST
POPLAR ST
AURORA ST
PILGRIM ST
CHANNEL ST
SUTTER ST
PILGRIM ST
AURORA ST
GRANT STAMERICAN ST
STANISLAUS ST
SUTTER ST
UNION ST
LAFAYE
TTE ST
WASHINGTON ST
LAFAYETTE ST
LINDSAY ST
MINER AVE
WEBER AVE
WORTH ST
CHURCH ST
ANDERSON ST
SCOTTS AVE
SONORA ST
MINER AVE
FLORA ST
FREMONT ST
CENTER ST
EL DORADO ST
WEBER AVE
OAK ST
CALIFORNIA ST
AIRPORT WAY
MARKET ST
WILSON WAY
HAZELTON AVE
MAIN ST
SIERRA NEVADA ST
PARK ST
FREMONT
ST
Downtown Civic
and
Commercial Area
East Cabral
Station
Area
Little
Manila
Area
0 0.15 0.07Mi
City of Stockton LEGEND
J:\Stockton 24-B0492 Multimodal Transp Network\GV\GIS\Stockton - Multimodal Transp Network\Stockton - Move Downtown.aprx - A014 - Stockton Move Downtown - Sub Areas
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Study Subarea Rail
Plan Area
Boundary
Study Subarea
Downtown Civic
and Commercial
Study Subarea
East Cabral Station
Study Subarea
Little Manila Study
Subarea
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Move Downtown
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EXISTING CONDITIONS ASSESSMENT
Summary of Key Local, Regional, and State Plans
A focused review of relevant local, regional, and statewide plans was conducted to ensure the Plan builds upon prior efforts and aligns with established policy direction, funding priorities, and implementation frameworks. This review evaluated adopted plans, ongoing initiatives, and regulatory guidance to identify key goals, performance measures, planned investments, and project recommendations applicable to the Study Area. A summary of the documents reviewed is provided in Table 2, with a detailed analysis of findings and alignment included in Appendix A: Literature Review.
Table 3. List of Reviewed Documents
DOCUMENT LEAD AGENCY YEAR OF
COMPLETION
State
California State Rail Plan Caltrans 2024
Caltrans Active Transportation Plan for District 10 Caltrans 2 0 21 California Transportation Plan 2050 Caltrans 2 0 21
Climate Action Plan for Transportation Infrastructure Caltrans 2 0 21 Toward an Active California Caltrans 2017
Regional
Bike Stockton SJCOG 2025
San Joaquin Regional Mobility Hub Plan SJCOG 2025
Existing Bikeways Map SJCOG 2023
Regional Transportation Plan/Sustainable Communities Strategy SJCOG 2022 Local Roadway Safety Plan San Joaquin County 2022
Short Range Transit Plan Fiscal Years 2024/25 – 2033/34 RTD 2025 2024-2025 Annual Action Plan San Joaquin County 2 0 21
San Joaquin County Bicycle Master Plan Update San Joaquin County 2020 Coordinated Transportation Plan RTD 2025
Regional Bicycle, Pedestrian, and Safe Routes to School Master Plan SJCOG 2 012 Downtown Transit Center Map San Joaquin Regional
Transit District
N/A
Local
Downtown Stockton Weber Avenue Bicycle-Pedestrian Connectivity Project City of Stockton 2027 Stockton Diamond Grade Separation Website City of Stockton 2025 Interactive Zoning Map City of Stockton 2025
Channel Street Improvements Project City of Stockton 2025 Main Street Complete Streets Plan City of Stockton 2024 South Stockton Pedestrian HAWK Improvements Project City of Stockton 2024 Safe Routes to School Safety and Connectivity Project City of Stockton 2024 2023-203 1 Housing Element Draft City of Stockton 2024
Active Multifamily Housing Development Map City of Stockton 2024 Cabral/East Cabral Station Area Neighborhood Action Plan City of Stockton 2024 Little Manila Neighborhood Action Plan City of Stockton 2024 Housing Action Plan City of Stockton 2024
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Land Use Analysis
This section summarizes key land use conditions and
challenges within the Plan Study Area, including existing uses, physical conditions, landmarks, destinations, current developments, socioeconomic trends, and the existing
regulatory framework under the General Plan, Zoning
Ordinance, Housing Action Plan, and Neighborhood
Action Plans. The information provided in this summary is intended to provide a base understanding of the land use patterns and key transportation connections to support
development of the Move Downtown vision. A more
detailed discussion of the land use analysis is provided in Appendix B: Land Use Network Review.
Subareas and Key Destinations
Downtown Civic and Commercial Area
The Downtown Civic and Commercial subarea is the largest and most intensely developed portion of the Plan Study
Area, generally bounded by Park Street to the north, the UPRR railroad tracks to the east, SR-4 to the south, and I-5 to the west. This area functions as Stockton’s primary civic and commercial core, characterized by a mix of
higher-density residential, office, retail, and restaurant uses within a traditional downtown street grid. Buildings are generally taller and more closely spaced together than in the surrounding subareas, creating an active, pedestrian- oriented urban environment that supports employment,
services, and cultural destinations.
Table 3. List of Reviewed Documents
DOCUMENT LEAD AGENCY YEAR OF
COMPLETION
Local
Large Residential Projects Map City of Stockton 2024
Stockton Downtown Transformation Project Caltrans 2023
California Street Road Diet Project City of Stockton 2023 Housing and General Plan Annual Progress Report City of Stockton 2023 Downtown and South Shore Infrastructure Analysis City of Stockton 2023 Economic Development Strategic Action Plan City of Stockton 2 0 21 Systemic Safety Analysis Report and Local Road Safety Plan City of Stockton 2 0 21 Greater Downtown Stockton Active Transportation Plan City of Stockton 2020 Greater Downtown Bike and Pedestrian Connectivity Map City of Stockton 2020 Downtown East-West Connection Map City of Stockton 2020 Sustainable Neighborhood Plan City of Stockton 2019
Safe Routes to School Sidewalk Gap Closure Project Map City of Stockton 2018 Envision Stockton 2040 General Plan City of Stockton 2018 Bicycle Master Plan City of Stockton 2017
Safe Route to School Plan City of Stockton 2017
Infill Opportunities Report City of Stockton 2016
ACE Planning and Parking Strategy, Cabral Station City of Stockton 2 0 11 Robert J. Cabral Station Master Plan Update City of Stockton 2008 Robert J. Cabral Station Neighborhood: A Plan for Revitalizing East Downtown Stockton
City of Stockton 2005
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East Cabral Station Area
The East Cabral Station subarea is centered on Robert J.
Cabral Station and the north–south UPRR rail line. The area includes a mix of residential, industrial, and commercial uses, with a more industrial character concentrated
along the rail corridor and a transition to predominantly residential neighborhoods toward the east. Proximity to rail infrastructure and auto-oriented businesses contributes to distinct land use and environmental conditions within this subarea.
The Stockton Diamond Grade Separation Project, located
near Aurora Street and Scotts Avenue, will significantly influence future development patterns through the relocation of select industrial uses and infrastructure modifications.
Existing conditions documentation also identifies
infrastructure gaps, limited neighborhood amenities, and environmental concerns associated with historic industrial activity. These factors position the East Cabral Station area as a transition zone with both redevelopment opportunity and implementation challenges.
Little Manila Area and Gleason Park
The Little Manila and Gleason Park subarea occupies
the southern portion of the Study Area, extending from
the elevated SR-4 to the BNSF rail line at the southern boundary. Predominantly residential in character, the
neighborhood includes single-family homes centered
around Gleason Park and Spanos Elementary School.
The area holds deep cultural and historic significance as a longtime center of Stockton’s Filipino/a community, along with Japanese and Chinese communities, and includes
designated historic resources such as the Little Manila Historic Site.
Construction of SR-4 significantly disrupted the
neighborhood, resulting in displacement and long-term
social and economic impacts that continue to influence
community conditions today. Existing conditions analysis identifies challenges related to food access, infrastructure quality, and neighborhood amenities. Despite these
challenges, the subarea’s strong historic identity and
community cohesion present meaningful opportunities for sensitive revitalization and reinvestment, guided by existing City design standards and preservation policies.
Key Destinations
Some of the important destinations within and adjacent
to the Plan Study Area that identify patterns and
concentrations of key trip generators, and how destinations may relate to one another, as well as to transit stations, are shown in Figure 3. Key destinations shown include parks, public facilities, civic buildings, food destinations, schools, fire stations, and police stations. The map also shows half- mile buffers around each of the three transit stations.
Robert J. Cabral Station
Cabral Station is a railway transit station located along Channel Street in Downtown Stockton within the east part of the Study Area. It is one of the two passenger rail stations Downtown Civic and Commercial Area: Downtown Transit Center EXHIBIT 1
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Figure 3. Key Destinations Map
1 2
3 4
1 2 3
4 5
1 2
Madison Park
American Legion
Park
Eden Square
Park
Victory
Park
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Community School
Frederick (Jane)
Continuation High
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Applied Sciences
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Unified Early College
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TEAM Charter School
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El Dorado Elementary
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TEAM Charter School
Annunciation
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Victory
Elementary School
Washington (George)
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Commodore Stockton
Skills Elem
Sch.
Hoover
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Joaquin
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Fire Station
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Stockton Maritime
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Amtrak S. San Joaquin
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1 Advantis Health Areana
2 Banner Island Ballpark
3 Regal Stocton City Center
4 Stockton Memorial Civic
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5 Weber Point Events
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1 City of Stockton City Hall
2 San Joaquin County
Council of Government
3 San Joaquin County Court
House
4 State Department of
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1 Golden Villa Farmers'
Market
2 Smart & Final
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within the City. Cabral Station is a terminus stop for ACE rail services that connect to San Jose’s Diridon Station, and is a stop along the Amtrak route that connects Sacramento and Bakersfield. Built in 1 930, it is an architecturally significant building in the Italian Renaissance style, which recalls a previous era of rail travel. The station deteriorated during the 1 970’s and after, until a voter-approved transportation measure allowed it to be renovated and reopened in 2003.
State Route 4
Locally regarded as the “Crosstown Freeway”, SR-4 is a
primary east–west connection between I-5 and Highway
99 and runs through the southern portion of the Study Area.
Elevated above the surrounding street network, the facility allows north–south connections beneath it; however, these underpasses create dark and uncomfortable conditions
for pedestrians and bicyclists. While SR-4 plays a critical regional mobility role, it also functions as a significant physical and social barrier between Downtown and the
Little Manila neighborhood, contributing to fragmentation and inequitable access across the area.
Mormon Slough
Mormon Slough, which runs parallel to the southern BNSF rail line, is a former waterway that was diverted in the early 20th century to redirect flow away from Downtown
Stockton. Today, the corridor presents environmental, social, and public health challenges, including the presence of unhoused residents. The Little Manila and Gleason Park
Neighborhood Action Plan recommends restoration and
coordinated improvements to enhance environmental
conditions while addressing ongoing community needs.
Weber Point Events Center
Along the west of the Study Area by Center Street and
facing McLeod Lake, is the Weber Point Events Center. This is a large outdoor event space in Downtown Stockton that provides a venue for attractions year-round. It includes a children’s play area, an amphitheater, and interactive water features, and accommodates a variety of events such as
festivals, concerts, and other community gatherings.
San Joaquin County Superior Court of California
The San Joaquin County Superior Court of California,
located on Weber Avenue, is the general trial court for all citizens of San Joaquin County. This courthouse was completed in 201 7 and is 1 2 stories tall, accommodating 30 courtrooms. This is the largest building in the Study Area and a major employment destination.
Diversity Plaza (remnant of Hunter Square Plaza)
Diversity Plaza, located in Downtown Stockton, occupies the southern portion of the former Hunter Square Plaza
site following redevelopment of the northern half for the San Joaquin County Superior Court. The plaza has been
enhanced with public art, lighting, landscaping, and
gathering amenities, creating a well-maintained civic space that celebrates Stockton’s cultural diversity and serves as an important community gathering place in the city center.
Mormon Slough
El Dorado Street, looking southeast towards the new Superior Courthouse
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Existing Regulatory Framework
A review of key existing regulatory land use documents was conducted. These documents are summarized below with
additional information available in Appendix B: Land Use Network Review.
Envision Stockton General Plan 2040
Envision Stockton 2040 is the City’s long-range general plan guiding growth and development through the year
2040. Adopted in December 201 8, it establishes a
comprehensive framework for achieving the community’s
vision by addressing land use, housing, circulation,
environmental justice, public services, safety, and quality of life. The plan integrates State-requir ed elements into four chapters (with the Housing Element updated separately
on an eight-year cycle, most recently in July 202 4) and provides policies, actions, and land use designations to ensure that future development, aligns with Stockton’s
long-term goals. The plan includes several goals, policies, and specific to downtown.
Development Code:
Title 16 of the City Municipal Code
Title 16 of the City Municipal Code is the Development Code, which creates zoning districts to implement the General Plan Land Use map and regulates uses and development
standards for each zoning district. The majority of the Move Downtown Study Area is occupied by commercial land uses, especially within and around the Downtown Core. There are strips of industrial land running along the north-south UPRR line and the east-west BNSF Railway line. There are smaller pockets of housing around the Study Area, primarily within the Little Manila area south of SR-4. There are medium- density residential areas concentrated in the south-eastern portion of the study area, east of Union Street. A small amount of high-density residential is located around and to the east of Gleason Park.
Housing Action Plan
The City finalized the Housing Action Plan (HAP) in
November 2024. This community-driven plan analyzed
challenges and proposed solutions to Stockton’s housing crisis. For example, one of the key factors leading to the statewide housing crisis is the increase in housing prices and rents, while incomes have not kept up. The HAP analyzed the Stockton housing market and needs; the existing housing supply and opportunities for new development; and the
development process in the City to see if there are ways to streamline production of new housing. To improve the implementation of housing efforts, the HAP was developed for the entire city, with three Neighborhood Action Plans (NAP) developed for distinct communities within Stockton.
Neighborhood Action Plans
In 2023, through funding from the SJCOG, the City prepared Neighborhood Action Plans (NAPs) for three separate areas within the City: South Airport Way, Cabral Station Area, and Little Manila/Gleason Park. These three plan areas
were selected for their elevated need for quality housing, as identified in the 2040 Envision Stockton General Plan, in addition to their location within the South Stockton Promise Zone and identification as low-resource areas by the State Housing and Community Development Department.
Major Developments
Residential Development
There are several planned developments currently going
through the approval process throughout the City, many of which are located within the Study Area and will increase the available stock of multifamily residential units. As of July 2024, there were seven projects under review, approved, or under construction within the Greater Downtown Area, three within the Downtown Core, and three within the Study Area. If these projects are approved and built, they would add 1,044 multifamily units to the Greater Downtown Area, 5 1 4 units to the Downtown Core, and 346 units to the Move Downtown Study Area. The construction of 1 10 multifamily homes are planned for the State of California Department of General Services (DGS) building on Miner Avenue, with income restrictions across income levels. Just outside of the Study Area, an additional 1 10 multifamily units are planned for the former DMV location.
As of April 2024, two large residential projects were
proposed within the Greater Downtown Area just outside
of the Study Area. The first is the South Pointe Project, within the Downtown Core a few blocks west of the Study Area.
This project was under review as of April 2024 and, if
approved, would add approximately 300 units. The second project, the University Park Master Plan, was approved in April 2024 and will add approximately 359 residential
units when completed. This project is located along Park Street, just north of the Study Area. Combined, these two projects would add 659 new residential units to the Greater Downtown Area.
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Stockton Diamond Grade Separation Project
The Stockton Diamond Grade Separation Project is a
proposed grade separation designed to improve the rail
intersection at the Stockton Diamond, located just south of Downtown Stockton near Aurora Street and Scotts Avenue.
The project would separate the two intersecting rail lines, which are both currently at grade, by raising the UPRR line to cross over the BNSF line. This design minimizes impacts to local roadways, such as SR-4, but will significantly reconfigure land in the area. Figure 4 shows the potential right of way acquisition required for the project.
Caltrans Downtown Stockton Transformation Project
The Caltrans Downtown Stockton Transformative Project
is an effort to remediate the division created by SR-4.
Caltrans is exploring opportunities to develop a new park under the highway’s elevated structure, currently referred to as Crosstown Park. Concepts for the park include an
amphitheater, skate park, playground, murals, and a
community garden.
Vacant Lands, Public Lands, and Historic Resources
Figure 4 shows vacant lands, public land, and historic
resources within and around the Study Area. This map
provides a preliminary snapshot of potential development opportunities as well as constraints. The various Historic Resources include Historic Landmarks, Historic Sites,
Structures of Merit, and Preservation Districts. No
Preservation Districts are within the Study Area.
Perception of Safety Analysis
A perception of safety analysis was conducted to evaluate how the Study Area environment may feel to pedestrians
based on observable physical street conditions. This high- level assessment focused on visual cues that influence
comfort and walkability, rather than crime data or
socioeconomic factors. The analysis is intended to identify environmental characteristics that may support or detract from a pedestrian’s sense of comfort and to highlight
opportunities for targeted improvements.
Guided by core Crime Prevention Through Environmental
Design (CPTED) principles, the evaluation assessed street segments against a set of criteria related to sidewalk
completeness, maintenance, landscaping, building frontage conditions, active uses, lighting, and the presence of vacant or underutilized properties. Each segment received a
cumulative score based on these observable characteristics, allowing for a comparative understanding of perceived
comfort levels across the Study Area.
Results indicate that lower levels of perceived safety
are concentrated south of SR-4 and along the railroad
corridors, where street environments more frequently lack active frontages, consistent maintenance, or adequate
lighting. In contrast, areas within and adjacent to the Downtown Civic and Commercial District generally
demonstrate higher perceived comfort levels, reflecting stronger pedestrian-oriented conditions.
Equity Analysis
The equity analysis reveals significant challenges across all tracts within the Study Area, with respect to socioeconomic conditions, community health, and housing affordability.
Incomes are generally low with high rates of poverty, many households are renters, homes tend to be older, and harmful environmental conditions are present across the Study
Area census tracts. Some of these issues are concentrated and worse in the Study Area and Downtown Core, while
other issues are shared by neighboring tracts in the Greater Downtown Area.
These findings indicate the Plan Study Area is a priority for investments aimed at mitigating adverse environmental conditions and improving the health and wellbeing of
downtown Stockton residents. Investment opportunities
could improve environmental quality and housing conditions in the area, as well as help to reconnect communities across the boundaries created by transportation infrastructure, improving resident access to jobs, food, and other daily needs and community destinations. The full equity analysis can be found in Appendix C: Equity Analysis.
Stray dog at the California Street and Hazelton Avenue
intersection, leading to Spanos Elementary School
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Figure 4. Vacant Lands, Public Lands, and Historic Resources Map Stockton Channel
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Land Use Analysis Summary of Findings
The land use analysis indicates that the Study Area is
well-positioned to support continued revitalization and multimodal activity. A connected street grid, accessible parks and public spaces, and a concentration of historic and architecturally significant resources contribute to a strong physical and cultural framework. In addition,
existing General Plan and zoning regulations already
allow multifamily residential and mixed-use development throughout much of Downtown, providing regulatory
flexibility to support growth and reinvestment without
requiring substantial policy amendments.
Key Strengths:
• The Study Area has a strong existing grid network
with block sizes that can easily facilitate pedestrian
movement throughout the area.
• The Study Area is well-served by parks and public
spaces.
• There are many historic resources and architecturally significant buildings that are protected as designated
landmarks and sites.
• The General Plan and Zoning already permit multifamily residential throughout Downtown, except on industrial
land, supporting flexible and mixed-use development
without needing a General Plan and Zoning
amendment.
While Downtown Stockton is supported by a strong
physical and regulatory framework, the analysis identifies several structural and equity-related challenges that
affect connectivity, cohesion, and long-term reinvestment potential. Physical barriers, including SR-4, the UPRR rail corridor, and industrial land uses fragment neighborhoods and make it challenging or unpleasant to travel to transit stops. Scattered vacant and underutilized parcels present redevelopment opportunity but interrupt continuous
corridors of activity, particularly where infrastructure capacity, environmental contamination, or land use
compatibility issues exist. In addition, public health, food access, and conditions surrounding Mormon Slough reflect ongoing equity concerns that must be addressed alongside physical improvements.
Key Challenges:
• There are multiple opportunities for redevelopment
including vacant lots and City- and County-owned
land. However, many of these are non-contiguous
and scattered throughout the study area, making it
challenging to coordinate improvements, activate city
blocks, and support connectivity between the three
transit stations.
• The capacity and condition of existing utility
infrastructure may present obstacles to development
and would likely need to be reviewed for necessary
upgrades.
• SR-4 remains a challenging barrier for connectivity
and cohesion of community and land uses between
the Downtown Civic and Commercial District and Little
Manila.
• The industrial lands flanking the UPRR rail is a barrier to land use and community cohesion for residents on
either side of the tracks. Industrial activities are generally incompatible with residential uses and can adversely
impact overall community health.
• Many vacant industrial sites in the Study Area have
environmental contamination issues.
• Mormon Slough is home to many unhoused people,
which creates public health challenges and emphasizes
the need for human services in downtown.
• The high-level perception of safety analysis shows
that areas most likely to be perceived as unsafe or
uncomfortable from a pedestrian point-of-view are
areas and crossings through and adjacent to SR-4,
Mormon Slough, and the UPRR rail corridor.
• Access to healthy and affordable fresh food is a
challenge for current and future residents of the Study Area.
Displacement Risk Analysis
As part of the Plan, the project team evaluated the potential for transportation and land use investments to contribute to gentrification and displacement in the Downtown Core.
While the recommended strategies are intended to improve mobility, sustainability, and economic development, such investments can also increase neighborhood desirability, drive up rents, and place pressure on lower-income
households and small businesses. Recognizing this risk, factors associated with displacement were examined
and policy considerations and mitigation strategies were identified to help ensure that revitalization benefits existing residents and businesses.
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The displacement analysis draws on findings and
recommendations from recent local and regional efforts, including the SJCOG Housing Policy Toolkit, Stockton TCC Displacement Avoidance Plan, Stockton Housing Action
Plan, and the City’s Housing Element. These documents
identify existing displacement risk factors in Downtown Stockton and outline tools to preserve housing affordability, support tenant stability, and promote equitable
development. The analysis also assessed the distribution of subsidized and naturally occurring affordable housing in the Study Area, noting concentrations near Weber Avenue, Main Street, and E. Sonora Street, with larger affordable housing developments generally located north of SR-4.
Anti displacement strategies were evaluated across four major implementation areas:
• Land use preservation and rehabilitation
• Activation
• Long term development and transitions
• Transportation improvements
Preservation and rehabilitation strategies emphasize
maintaining existing housing supply, particularly historic and culturally significant buildings, while pairing
reinvestment incentives with affordability protections.
Tools such as housing rehabilitation programs, proactive code enforcement, tenant protections, and preservation
of subsidized housing can help balance reinvestment with tenant stability and neighborhood continuity.
Activation strategies focus on near-term use of vacant
and underutilized sites to build activity and momentum
while longer-term redevelopment occurs. To reduce
displacement risk, activation efforts should prioritize local vendors, nonprofit service providers, and community-based businesses, ensuring that existing residents benefit
economically from revitalization.
Long-term strategies address redevelopment along major
infrastructure corridors, including SR-4 and rail lines, where coordinated investment can improve connectivity and public health outcomes by reducing exposure to environmental
contaminants associated with freight and industrial activity.
Integrating affordability incentives, encouraging mixed-use development, and establishing appropriate buffers between industrial, rail, and residential uses are critical to reducing displacement pressures and benefiting existing residents as private investment increases. Early and ongoing community engagement is essential to ensure that redevelopment
reflects local needs and priorities.
Transportation strategies, including pedestrian, bicycle, transit, and safety improvements, offer important
quality-of-life benefits but must be paired with clear
communication and trust-building efforts. Historic
patterns of displacement associated with infrastructure investment underscore the importance of community-led
engagement, transparent messaging, and equity-centered
implementation. Programs such as Vision Zero and Safe
Routes to School can deliver direct safety benefits to
current residents when paired with meaningful community participation.
These strategies should also align with housing goals
by encouraging infill development on sites identified in the Housing Element and accounting for the mobility
needs of lower-income households as parking and street
configurations evolve.
By coordinating transportation investments, land
use policies, housing preservation tools, and
community-focused economic development, the City can
support revitalization while protecting affordability and social equity. The full displacement analysis is provided in Appendix D: Displacement Analysis.
Transportation Network Analysis
This section details the findings of a Transportation Network Review, which identified existing transportation conditions, socioeconomic characteristics, and transportation safety challenges within the Plan Study Area.
Existing and Planned Bicycle Facilities
Figure 5 illustrates the network of existing and proposed bikeway facilities within and adjacent to the Study Area, offering insight into the level of bicycle connectivity available in Downtown Stockton. This mapping helps
evaluate the extent to which the Study Area currently
supports connectivity for bicycle travel, proposed
improvements for bicycle connectivity, and identifies key gaps in the existing and proposed bikeway network.
Existing bikeway facilities are located along segments of Center Street, Oak Street, Miner Avenue, Weber Avenue,
Hunter Street, California Street, El Dorado Street, and Hazelton Avenue.
Additional bikeways are planned along the following
roadways; Miner Avenue, Airport Way, Aurora Street, Oak Street, Fremont Street, Channel Street, Weber Avenue, and Market Street.
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Figure 5. Existing and Planned Bicycle Facilities Map
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California Street, El Dorado Street, and Center Street have recently undergone bicycle improvements, and are the only designated, continuous north-south bikeways that traverse the entire Study Area.
Existing east-west bikeways are located on Oak Street,
Miner Avenue, Hazelton Avenue, and Weber Avenue. The
existing east-west planned facilities on Main Street and Market Street offer direct access to the core of Downtown Stockton and key transportation facilities, including the DTC and the Cabral ACE Station. However, there are a lack of east-west bikeway facilities planned south of Market Street, limiting bikeway connectivity across the southern portion of the Study Area.
Planned bikeway improvements, identified through previous local and regional planning efforts, including the Greater Downtown Active Transportation Plan, aim to address
network gaps and enhance Downtown Stockton’s bicycle
infrastructure. Planned north-south facilities on Aurora Street and Airport Way will improve connectivity through the Study Area, increasing access to key community
destinations. The addition of bikeways along Main Street and Market Street will enhance connectivity across the
center of the Study Area, resulting in a more continuous, integrated bicycle network.
One bikeshare program, Bike San Joaquin, is currently
operating in the Study Area, offering pedal-assisted e-bikes to expand mobility options for residents, particularly in historically underserved communities. The program operates under two models: a long-term lending subscription and
a round-trip rental system. The long-term option allows residents within designated equity-priority zones to
borrow an e-bike for personal use for 30 days at a time, with reduced-cost subscriptions available for qualifying households. The short-term system offers access to fleets of e-bikes stationed at hub locations, with users required to return the bikes to their original pick-up hub.
While most Bike San Joaquin hubs are located outside of the Study Area, near the University of the Pacific, Calaveras Quarters, and other nearby residential developments,
one hub is located within the Study Area at Grand View
Village, at the intersection of Miner Avenue and San
Joaquin Street. The Bike San Joaquin bikeshare program
provides a valuable transportation service that complements Downtown Stockton’s growing bicycle network. However,
the requirement to return e-bikes to their original hub limits trip flexibility and eliminates trips which require one-way travel to destinations.
Transit Network
Figure 6 illustrates the existing public transit conditions in the Study Area, including the coverage of RTD transit services, as shown through RTD bus routes and stops,
and the locations of transit stations, which have been
identified by the SJCOG as future mobility hubs. This
map highlights areas that are well-served by existing
transit services as well as those with limited options. While transit coverage provides an important snapshot of where services are available, it does not necessarily reflect service frequency, reliability, span of service, or the capacity of routes to accommodate additional riders. As a result, areas shown as “served” may still experience limited
usability or constrained first and last mile connectivity depending on schedule coordination and operational
conditions. These factors can disproportionately affect lower-income households, seniors, people with disabilities, and households without reliable access to a vehicle,
underscoring the importance of coordinating transit service with access improvements.
Overview
An important aspect of RTD’s approach to transit is the “hub and spoke approach” which routes local feeder lines into central transit centers. While existing RTD bus routes operate across the Study Area, the northern half of the Study Area is currently better served by the transit services, with a greater density of transit routes and stops, particularly surrounding the DTC and near the Cabral ACE Station. The DTC is an
RTD transit hub located on Weber Avenue, which facilitates transfers between multiple bus lines and serves as a key node in the regional transit system. In addition to the DTC, the area near the Cabral ACE Station is also well served by RTD, supporting access to ACE commuter rail service
between Stockton and the Bay Area.
Recent bikeway improvements on California Street
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The San Joaquin Street Amtrak Station, located in the
southern portion of the Study Area, is also served by
RTD transit. A bus stop is located adjacent to the station, providing a direct connection to the local transit network.
A bus stop located across the street, south of the BNSF rail line, serves northbound passengers traveling to downtown.
However, while this stop offers transit access, the overall transit coverage in the southern portion of the Study Area is noticeably less dense compared to the north. Fewer
routes and longer distances between stops may limit the convenience and frequency of transit service for residents and visitors in this area, reducing its appeal as a first- and last-mile option for Amtrak passengers.
San Joaquin Street Station is currently not served by an Express Route. Improving transit connectivity, service
coordination, and first- and last-mile access in the southern portion of the Study Area would help advance more
equitable mobility outcomes, strengthen access to regional rail, and expand the benefits of transit investments for disadvantaged communities while enhancing overall system effectiveness.
RTD Express Routes
As part of the existing conditions analysis, all RTD express bus routes were reviewed to assess their potential to serve the Cabral and San Joaquin Street rail stations. Preliminary analysis identified Express Route 40 as having potential to serve Cabral Station due to its service to the nearby DTC. However, limited space at Cabral Station would
constrain its ability to function as a layover, origin, and/or destination for bus operations, which could increase travel times and affect schedule reliability. Ridership modeling and operations and maintenance analyses are required to evaluate the benefits and costs of potential modifications to Express Route 40. It is also important to note that Express Route 40 currently terminates at the DTC and does not
directly serve Cabral Station. Extending the route would introduce additional travel time that could affect schedule reliability, operator work shifts, and overall route efficiency.
Given that Express Route 44 already provides direct service to Cabral Station, any consideration of modifying Route 40 should be supported by a detailed feasibility analysis demonstrating ridership demand and evaluating impacts to travel time, frequency, and operational costs.
RTD Express Routes 44 and 47 were identified as the most viable opportunities to serve San Joaquin Street Station.
Express Route 44 could potentially add a stop at San
Joaquin Street Station as an endpoint before or after the DTC stop. Express Route 47 could potentially serve the
station between Lincoln/Washington and Steamboat
Landing on Commerce. However, both options would
introduce significant route deviations. In addition, San Joaquin Street Station would require stop infrastructure improvements to accommodate express bus service. Further analysis, including route geometry, signal operations,
turning movements relative to the timetable, ridership
modeling, and operations and maintenance considerations, is needed to support any modifications to Express Routes 44 and 70. Beyond physical routing considerations, transfer reliability depends on how bus arrival times align with first and last rail departures. While this analysis explores opportunities for additional direct express service to rail stations, RTD’s transit network is designed to function through timed connections at key hubs, particularly the DTC.
This hub and spoke approach allows passengers to transfer between express and local routes, such as using Route
5 10 to access San Joaquin Street Station, supporting a balance between system coverage, operational efficiency, and service reliability. Although one seat bus connections to rail stations can improve convenience for some riders, route deviations must be carefully weighed against potential impacts to travel times, headways, and schedule reliability for the broader transit network. Accordingly, any proposed modifications to directly serve rail stations should be evaluated through ridership demand, operational feasibility, and cost analyses to ensure overall system performance
and reliability are maintained.
Express Bus and Rail Service Coordination
As discussed above, Express Route 44 currently provides the primary express bus connection to Cabral Station and the DTC, and it is the only express service directly serving Cabral Station. The earliest Route 44 bus arrives at 5:5 1 AM and the first departing ACE train from Cabral Station leaves for San Jose at 4:10 AM. The last departing service at Cabral Station is on the Amtrak Thruway Bus at 8:45 PM terminating at Davis and the last arriving train on the ACE rail arrives at 7:47 PM from San Jose. Route 44 operates at approximately 20-minute intervals through 9:33 PM,
allowing potential evening connections to ACE services.
Downtown Transit Center (DTC)
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The San Joaquin Street Station is only served by RTD
local Routes 3 1 5 and 5 10. Route 3 1 5 provides three daily trips between the DTC, San Joaquin Street Station, and
communities southwest of downtown, with the earliest bus arriving at 8:16 AM and the latest bus departing at 3:39 PM. Route 5 10 provides service approximately every 40
minutes to the DTC and south Stockton, with the earliest bus arriving at 5:32 AM and the last bus departing at 8:50 PM.
The earliest Gold Runner intercity train departs San Joaquin Street Station at 9:23 AM and the last train arrives at 8:29 PM. Passengers accessing express bus services from San
Joaquin Street Station would most likely rely on Route 5 10 to connect to the DTC.
Further analysis should evaluate existing gaps in access from express bus services for first-departing and last- arriving regional and Gold Runner intercity rail services at Cabral and San Joaquin Street stations and consider
potential operational adjustments to better align transit connections.
Downtown Transit Center
Configuration and Operations
The DTC contains 20 sheltered, off-street bus bays. On
Weber Avenue, there is about 160 feet of curb space
for shuttles and buses traveling westbound. Existing
bus schedules and layover needs can be analyzed for
compatibility and accommodation of a new potential
circulator that can provide direct, high-frequency service between DTC, San Joaquin Street, and Cabral stations.
Adding a potential stop for eastbound buses in the median on Weber Avenue by removing parking and reconfiguring travel and turning lanes may potentially provide an additional opportunity for direct, on-street transfers. This would require analysis on street geometry and traffic impacts.
Lessons from the East Channel Street Streetscape and
Connectivity Project, once completed in 2026, could
help inform a roadway redesign that prioritizes safety, walkability, and station access in front of the DTC.
Additional studies should examine multimodal coordination, such as schedule synchronization with ACE and Gold
Runner intercity rail services, opportunities for micromobility integration, and curbside management for shuttles and taxi or ride-hail services.
Land use and transit-oriented development potential must also be considered, as increasing density and active
uses around stations is a regional goal, and changes to the street configuration or station access may influence redevelopment opportunities near the DTC.
Further analysis is needed on passenger amenities,
including lighting, security presence, weather protection, and real time signage, as these factors are central
to creating safe and welcoming on street transfer
environments. Construction feasibility, agency coordination, and funding pathways must also be assessed, drawing on
Stockton’s experience leveraging programs such as Active Transportation Plan (ATP), Measure K, and Affordable
Housing and Sustainable Communities (AHSC) to deliver
multimodal improvements in the downtown core.
Passenger Rail
Located at the southern edge of the Study Area, the
Stockton Diamond Grade Separation Project is expected to enhance passenger rail transit upon its completion in 2030.
The project will grade separate the UPRR and BNSF rail
lines, used by both Amtrak and ACE passenger rail services as well as freight, reducing travel times, enhancing safety, and supporting sustainable transportation options.
Consolidation of the Cabral and San Joaquin Street rail stations has been proposed to improve the passenger
rail experience and strengthen connections between the
Central Valley and the Bay Area. However, consolidating the stations would likely require substantial right-of-way acquisition to accommodate train operations and
supporting infrastructure. Additional analysis is needed to evaluate right-of-way requirements, operational impacts to both the UPRR and BNSF rail lines, construction impacts to freight operations, and associated utility, environmental, and cost considerations.
As an alternative to station consolidation, relocation of the San Joaquin Street Station farther east has been considered to provide more direct connections to Sacramento and the Bay Area. This option may be feasible if the surrounding roadway network, particularly access to the north side of SR-4, can support existing and future bus circulation and capacity needs. Conditions become more constrained
closer to the UP Stockton Yard due to at-grade crossings at Pilgrim Street and Airport Way, which would likely require closure or grade separation. Relocation of the station would necessitate detailed traffic, operational, right-of-way, utility, environmental, and cost analyses.
SJRRC is not pursuing consolidation of the Stockton rail stations or relocation of the San Joaquin Street Station at this time.
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Mobility Hubs
In the San Joaquin Regional Mobility Hub Plan, SJCOG has identified the DTC, Cabral ACE Station, and San Joaquin Street Amtrak Station as potential mobility hub sites, with the Cabral Station being one of the top three candidates within the plan for initial implementation. The mobility hubs are planned to support a diverse array of transportation options such as electric carshare, bike and scooter share, and bus and rail transit access. These downtown hubs are envisioned to feature amenities such as EV charging, real-time transit information, micromobility services, and pedestrian-focused design improvements.
Transit and Rail Parking Demand and Management
Current transit, regional rail, and intercity rail parking conditions in Downtown Stockton reflect a mix of
constrained curbside options and multiple public lots
serving riders accessing ACE at Cabral Station, Amtrak at San Joaquin Street Station, and RTD at the DTC.
At Cabral Station, passengers rely on limited on-street parking along Channel Street, a handicapped lot adjacent to the platform, and three dedicated parking lots located on Weber Avenue, Main Street, and an overflow lot on Weber Avenue east of the railroad. These facilities operate under differing overnight parking allowances.
The San Joaquin Street Amtrak Station provides a small
free park-and-ride lot supplemented by nearby on-street parking along San Joaquin Street. Existing parking appears adequate for typical demand but may become strained
during high ridership periods or special events.
The expansion of parking should be done in coordination with ongoing and future transit-oriented development
planning and downtown development efforts. Parking
management and pricing strategies may be used to
preserve parking capacity for transit users, including paid parking programs during peak periods and discounts for
carpool vehicles.
The City’s approach to parking must also reflect recent changes in State policy, including Assembly Bill 2097
(AB 2097), which eliminated minimum parking requirements for most new development projects located near major
transit. Since AB 2097 applies to the entirety of Downtown Stockton and much of the developed City south of
Hammer Lane to Dr. Martin Luther King Jr. Boulevard, the City’s ability to require parking provision as part of new development has been significantly reduced. While this
policy shift supports transit-oriented development and can reduce the cost of housing and infill projects, it may also limit the City’s ability to require developers to contribute toward addressing potential parking constraints as new
growth occurs.
As a result, proactive parking planning will be critical to balancing reduced parking minimums with overall
system performance. Strategies such as parking pricing, shared parking, district-based parking management,
and reinvestment of parking revenues can help manage
demand, support transit use, and mitigate localized
shortages. These approaches should be coordinated
with broader mobility goals to reduce reliance on single- occupancy vehicle travel while maintaining access for
residents, businesses, and visitors.
Strengthening RTD bus connections through timed transfers, improving bicycle and pedestrian access, and further
developing mobility hubs at the DTC, Cabral Station, and San Joaquin Street Station could further shift travel behavior away from driving.
Employer-based transit pass programs, discounted transfers between rail and local transit, and improved wayfinding across the network may also reinforce mode shift.
Together, these strategies could limit the need for new parking infrastructure, preserve valuable downtown land for higher uses, and support Stockton’s long-term multimodal vision.
Regional Transportation Initiatives
Within the Stockton region, several initiatives are expanding mobility options and supporting equitable community
development.
Miocar, a 100% electric community carsharing service
operating throughout the San Joaquin Valley, provides
affordable hourly EV rentals that help address first/last- mile gaps and serve areas where fixed-route transit may be limited. A Miocar station located within the Study Area, near Crossways and Sonora Square Apartments, enhances
access for residents of affordable housing managed by the Housing Authority of the County of San Joaquin.
The Vamos Mobility App is a mobile application that puts public transit in the palm of transit riders’ hands. The app can be used to ride any transit system in the San Joaquin region and neighboring counties. The app can assist with trip planning and fare payment, helping transit riders get where they want to go. This platform simplifies multimodal travel and improves system usability, particularly for transit- dependent populations.
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Transportation Barriers
Transportation infrastructure design can create significant barriers to mobility. These barriers can include physical barriers, such as major highways or rail lines that restrict movement, and/or perceptual and environmental barriers, where concerns about personal safety, comfort, or health can deter travel in certain areas or times of day. Some examples of environmental barriers may include exposure to high noise levels, proximity to fast-moving traffic, the presence of vacant or underutilized parcels, and a lack of well-maintained and attractive infrastructure, including sidewalks, street lighting, landscaping, and active storefronts.
An analysis of the Study Area has identified several such barriers that limit safe, comfortable, and convenient travel for all users but are particularly impactful for pedestrians, bicyclists, and transit users.
One of the most prominent barriers is SR-4. Although the freeway is elevated as it passes through the Study Area, the underpasses often lack adequate lighting, landscaping, or pedestrian amenities, creating dark, uninviting spaces that discourage pedestrian and bicycle modes. The freeway also introduces noise and visual blight, further deterring active transportation travel. These conditions disproportionately affect pedestrians and bicyclists, who are more vulnerable to environmental factors and rely on a cohesive network of safe and attractive routes.
Additional barriers are posed by the UPRR and BNSF
rail lines, which serve the Cabral ACE Station and San
Joaquin Street Amtrak Station, respectively. These at-
grade railways may present uncomfortable and uninviting conditions for pedestrians and bicyclists due to poor
pavement quality, lack of designated crossing infrastructure, minimal wayfinding, and exposure to high noise levels and vibrations from passing trains. These crossings can also create delays for all modes of travel, especially during active train movements, further reducing the efficiency and appeal of multimodal trips in the area.
Truck routes within the Study Area—including designated flammable liquid routes and City truck routes—present
potential barriers to active transportation due to higher traffic volumes, larger vehicle sizes, increased turning movements, and associated safety and comfort concerns
for pedestrians and bicyclists. Key east–west routes include Oak Street, Miner Avenue, portions of Weber Avenue,
Washington Street, SR-4, Lafayette Street, and Hazelton Avenue, while north–south routes include Center Street, El Dorado Street, Stanislaus Street, Grant Street, Aurora Street, Union Street, and a portion of Airport Way. As projects identified in this Plan advance, planning and design efforts should explicitly consider these truck routes to minimize conflicts, enhance safety, and improve the user experience where feasible. Where feasible, active transportation
facilities should be routed to avoid truck corridors or designed with appropriate mitigation measures to reduce exposure and improve comfort; in parallel, adjustments to truck routes should be evaluated to better accommodate
active transportation needs and minimize conflicts
SR-4 underpass on California Street
BNSF Tracks at San Joaquin Street Station
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Transportation Safety Analysis
A safety analysis was conducted to gain insight into various aspects of transportation safety within the Plan study area.
This analysis identified the history of injury and property damage only collisions, crash severity, primary collision factors, locations with higher crash frequencies and injury severity, and other conditions related to safety.
Crash Severity
Figure 7 shows the percentage of crashes in the Study Area by crash severity.
A significant number of injuries have been reported within the Study Area, with a total of 8 1 5 injury crashes over a five-year period. About 5 percent of the total crashes resulted in a killed or severe injury (KSI).
Crash Severity and User Type
Table 3 lists crashes categorized by both crash severity and road user type.
Of the 8 1 5 injury crashes reported within the Study Area, there were 9 fatal crashes and 3 1 severe injury crashes.
The results show that between 201 8 and 2022, 86 crashes involved pedestrians and 52 crashes involved bicycles
within the Study Area. Pedestrian and bicycle-involved
crashes accounted for 55 percent of all KSI crashes,
while comprising only 1 7 percent of total crashes. This disproportionate rate of KSI crashes by mode highlights bicyclists and pedestrians in the Study Area as vulnerable road users, who often incur the most severe injuries when involved in a crash.
70% COMPLAINT OF PAIN
25% VISIBLE INJURY
4% SEVERE INJURY
1% FATAL
Source: TIMS data from January 1, 201 8, through December 3 1, 2022.
Figure 7 . Crashes by Severity Levels
Table 4. Crashes by Severity and User Type
ROAD USER TYPE
CRASH SEVERITY
FATAL SEVERE
INJURY
VISIBLE
INJURY
COMPLAINT
OF PAIN TOTAL
Pedestrian 2 11 37 36 86
Bicycle 3 6 23 20 52
Motor Vehicle Only and Fixed Object 4 14 142 517 677
Not Stated 0 0 1 3 4
Total 9 31 202 573 815
Source: TIMS data from January 1, 201 8, through December 3 1, 2022.
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Figure 8 shows the distribution of crash percentages based on user type and severity.
From the study period, bicycle-involved crashes had the highest rate of fatal crashes (6 percent of all bicycle-involved crashes) while bicycle-involved and pedestrian-involved crashes had the highest rates of severe injury crashes (1 3 and 1 2 percent, respectively).
Figure 8. Percentage of Crashes by User and Severity
Source: TIMS data from January 1, 201 8, through December 3 1, 2022.
Crash Location Trends
Figure 9 provides a visual representation of crash activity within the Study Area by using collision data sourced from the Statewide Integrated Traffic Records System (SWITRS) and the Transportation Injury Mapping System (TIMS). The heat map identifies geographic concentrations of traffic collisions between 201 8 and 2022. 90%
80%
70%
60%
50%
40%
30%
20%
10%
2%
6%
1%
Fatal
13 % 12 %
2%
Severe Injury
43% 44%
21%
Visible Injury
42%
38%
76%
Complaint of Pain
Pedestrian Bicycle Motor Vehicle Only and Fixed Object
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4 Stockton
Channel
Mormon
Slough
McLeodLake
Google
0 0.250.13 Mi
Rail
Project Area
Cabral Station
Downtown Transit
Center (DTC)
San Joaquin Street
Station
Collisions (2018-2022 TIMS)
Dense
Sparse
LEGEND
Move Downtown
Folder: J:\Stockton 24-B0492 Multimodal Transp Network\GV\GIS\Stockton - Multimodal Transp Network\
EL DORADO STSAN JOAQUIN ST
CALIFORNIA ST AURORA ST
HAZEL TON AVE
MAIN ST
WEBER AVE
MINER AVE
Collision Heat Map
(2018-2022)
AIRPORT WAY
OAK ST
CENTER ST
STANISLAUS ST
FREMONT ST
Figure 9. Collision Heat Map
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The resulting heat map highlights several key corridors within Downtown Stockton that experience elevated crash densities. Notable high-density collision corridors include Airport Way, Center Street, Oak Street, Weber Avenue,
and SR-4. These roadways serve as major thoroughfares
through the Study Area, with higher traffic volumes and multimodal activity, which can contribute to increased
exposure to crash risk. The intersection of Hazelton Avenue and Stanislaus Street is also identified as a high-density crash location.
Table 4 ranks the Study Area intersections by the highest injury crash frequencies within 50 feet of the intersection.
Table 5. Intersections Ranked by Crash Frequency
INTERSECTION # OF COLLISIONS
Airport Way & Market Street 28
Airport Way & Hazelton Ave. 27
Airport Way & Weber Ave 21
Source: TIMS data from January 1, 201 8, through December 3 1, 2022.
As shown in Table 4, the intersections with the highest number of injury crashes are located on Airport Way. The Highway Safety Improvement Program (HSIP) provided
funding for safety improvements at Airport Way and
Hazelton Avenue which were completed in 2024.
Airport Way was most often identified as the primary
roadway in a crash, with 38 1 crashes occurring on
Airport Way, accounting for 38 percent of all crashes in the Study Area. El Dorado Street and Center Street were also identified often as primary roadways, accounting
for 1 2 percent and 10 percent of all crashes in the Study Area. Secondary roadways showed less variation in crash frequency compared to primary roadways. Market Street,
Washington Street, Weber Avenue, and Miner Avenue
experienced the highest number of crashes.
Transportation Network
Summary of Findings
The transportation network review identifies significant mobility and safety challenges within the Study Area
that affect access, connectivity, and comfort for all users, particularly pedestrians and bicyclists. While Downtown Stockton is served by regional transit assets and major corridors, gaps in the bicycle and transit networks,
combined with physical barriers such as SR-4 and rail
infrastructure, limit multimodal connectivity, especially south of SR-4 and in areas planned for higher-density
development. Safety analysis further highlights that
vulnerable road users are disproportionately impacted by severe and fatal crashes, underscoring the need for targeted safety improvements.
Key Challenges – Mobility:
• East-west bicycle connectivity is limited south of SR-4, with only partial planned facilities along Hazelton
Avenue.
• No existing bikeways provide direct access to the San Joaquin Street Amtrak Station.
• Transit coverage is sparse south of SR-4, particularly for east-west routes.
• Existing bikeway and transit networks do not adequately support High- and Medium-density residential zoning
districts in the eastern and southern portions of the Study Area.
• Major transportation facilities, including SR-4 and the UPRR and BNSF rail corridors, create significant barriers to pedestrian and bicycle movement.
Key Challenges – Safety:
• Pedestrians and bicyclists are overrepresented in killed and severely injured (KSI) crashes; bicycle-involved
crashes are more than six times as likely to be fatal
compared to motor-vehicle-only crash es, and both
pedestrian- and bicycle-involved crash es are six times more likely to result in severe injury.
• Broadside, rear-end, and vehicle-pedestrian collisions are the most frequent crash types, with broadside and
vehicle-pedestrian crash es accounting for the highest
number of fatal and severe injuries.
• Primary collision factors most frequently involve
violations related to traffic signs and signals, vehicle right-of-way, and unsafe speeds.
• KSI crashes are concentrated south of SR-4, indicating a need for focused safety enhancements in this area.
• El Dorado Street is the most frequently reported
roadway for pedestrian- and bicycle-injury cr ashes.
• Airport Way contains the top three high-crash
intersections in the Study Area and is a key corridor for multimodal safety improvements.
• Center Street and El Dorado Street also present safety challenges for all modes due to high crash frequencies.
The full transportation analysis can be found in Appendix E:
Transportation Network Review.
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ENGAGEMENT HIGHLIGHTS
20 COMMUNITY EVENTS
1,200
PARTICIPANTS
400+
RESPONSES
27%
PEDESTRIANS
15 %
TRANSIT USERS
24 ORGANIZATIONS
COMMUNITY AND STAKEHOLDER ENGAGEMENT
A multi phased engagement approach ensured that the Plan’s policy, programmatic, and infrastructure recommendations reflect community identified needs and priorities. The engagement strategy focused on engaging the community, gathering diverse input, and incorporating feedback into the development of multimodal and land use strategies and the recommended alternative.
Engagement included a mix of in person and virtual activities, with input collected through surveys, workshops, and interactive outreach. These efforts provided insight into local challenges, opportunities, and preferences related to mobility and community development. A complete summary of engagement activities and findings is provided in Appendix F.
Public Engagement Overview
Public engagement was designed to reach a broad and diverse range of residents, workers, visitors, and stakeholders.
Engagement included 20 community events (1 3 in-person and 7 virtual), ranging from informal pop up outreach at community gatherings to more structured meetings, such as Stakeholder Working Group (SWG) sessions held at transit hubs.
This flexible approach reduced participation barriers and expanded access to engagement opportunities.
Across all project phases, more than 1,200 community members participated, reflecting a strong interest in downtown mobility and land use. Engagement included three public surveys, administered both in person and online, that generated over 400 responses. Survey results highlighted the multimodal nature of downtown travel, with 27 percent of respondents reporting walking and more than 1 5 percent reporting transit use, reinforcing the importance of pedestrian and transit supportive strategies. A SWG comprised of 24 organizations also provided sustained input throughout the planning process, ensuring the Plan reflects lived experience, technical expertise, and the needs of people who walk, bike, use transit, and live or work downtown.
Families complete Phase II survey during the Family Day at the Park
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Three-Phase Engagement Structure
Community engagement followed a three phase process
from Spring 2025 through Winter 2026. It was designed
to inform technical analysis, translate community
priorities into strategies, and confirm alignment between recommendations and community needs. Engagement
activities were sequenced to align with key planning
milestones, combining public outreach with ongoing SWG
coordination throughout the project.
Phase I: Existing Conditions (Spring 2025)
Phase I focused on understanding existing walking,
bicycling, transit, and land use conditions. Engagement included Survey #1, a guided site walk to identify on
the ground issues, and Public Workshop #1. Additional
outreach at community events and focus meetings helped
validate technical findings and align community input
with crash data, transit operations, land use patterns, and displacement risk indicators.
Phase II: Opportunities and Improvement
Strategies (Summer 2025)
Phase II translated community identified issues into
opportunity areas and potential strategies. Engagement
included Survey #2 and Public Workshop #2, where
participants evaluated concepts and trade offs related
to multimodal mobility, public spaces, and development.
Continued outreach and SWG Meeting #3 helped refine
and narrow draft alternatives.
Phase III: Draft Alternatives, Policies, and
Strategies (Fall 2025 to Winter 2026)
Phase III focused on reviewing and refining draft
alternatives and strategies. Engagement included Survey #3, Public Workshop #3, targeted presentations, and
continued community outreach. SWG Meetings #4 and #5
supported the final review and discussion of implementation considerations.
Together, the three engagement phases created an iterative and inclusive process that integrated community experience with technical analysis, ensuring the Plan reflects shared priorities and sustained stakeholder collaboration.
Stakeholder Working Group
The SWG was established to provide multidisciplinary
guidance and local expertise throughout the development of the Move Downtown Plan. The SWG brought together
representatives from agencies, organizations, and
community groups with direct knowledge of Downtown
Stockton’s transportation, land use, economic conditions, and community needs to inform plan development from
existing conditions through implementation planning.
The SWG met five times during the project, with meetings aligned to major engagement phases and deliverables.
This structure ensured stakeholder input directly informed the existing conditions analysis, identification of multimodal and land use opportunities, refinement of alternatives, and development of implementation strategies.
Composition and Role
Core responsibilities of the SWG included:
• Providing ongoing guidance to shape and refine the
Plan and its alternatives.
• Supporting public outreach and promoting engagement
opportunities.
• Validating existing conditions and technical analysis with local knowledge and lived experience.
• Identifying key challenges and opportunities related to multimodal travel, public spaces, and land use within the study area.
• Recommending coordinated infrastructure and
programmatic strategies to improve safety, access,
economic vitality, and community outcomes.
• Informing development of the implementation
framework, including potential funding strategies,
partnerships, and investment priorities.
Stakeholder Working Group meeting #1
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A total of twenty-four (24) organizations participated in the SWG, representing government agencies, economic
development organizations, health and social service
providers, community development organizations, and
community based groups. Organizations include:
• San Joaquin Regional Rail Commission
• San Joaquin Council of Governments
• San Joaquin Regional Transit District
• Caltrans District 10
• San Joaquin Partnership
• Downtown Stockton Alliance
• San Joaquin Community Foundation
• Downtown Stockton Comeback Club
• Central Valley Asian Chamber of Commerce
• African American Chamber of Commerce of San
Joaquin County
• San Joaquin County Public Health
• Visit Stockton
• Reinvent South Stockton Coalition
• Stockton Unified School District
• Housing Authority of the County of San Joaquin
• San Joaquin County Board of Supervisors
• San Joaquin County Office of Education
• Visionary Home Builders
• El Concilio
• Trust for Public Land
• Community Medical Centers
• Cal State East Bay
• City of Stockton Public Works
• City of Stockton Fire
• HATCH Workshop
By integrating multidisciplinary expertise with community based perspectives, the SWG helped ensure that the Plan is technically sound, locally informed, and responsive to the needs and aspirations of Downtown Stockton’s residents, workers, and visitors.
Key Themes and Priorities Identified
The SWG identified recurring themes and priorities that evolved from an initial focus on existing conditions and constraints to refinement of project alternatives and
implementation considerations. Stakeholders consistently emphasized the need to address persistent pedestrian and bicyclist safety issues caused by aging infrastructure, limited green space, and inadequate ADA accessibility along
priority corridors such as El Dorado Street, Weber Avenue, Center Street, and San Joaquin Street, particularly near the Downtown Transit Center and Cabral Station. Discussions also highlighted significant connectivity gaps to major transit hubs, unsafe pedestrian crossings under SR-4 and adjacent rail corridors, and the importance of improving first and last mile access through sidewalk repairs and transit strategies serving downtown neighborhoods and employment centers.
Participants further stressed the importance of aligning Plan recommendations with ongoing investments, including Channel Street restructuring, Weber Avenue street space repurposing, and the Visionary Home Builders affordable housing
development near Miner Avenue and San Joaquin Street,
to accelerate implementation and reinforce corridor level improvements. Stakeholders identified underutilized parcels near transit as opportunities for transit oriented and mixed use development, supported advancing multimodal improvements along key corridors with an expanded pedestrian and bicycle focused role for San Joaquin Street, emphasized affordable housing priorities within Little Manila and East Cabral, and called for a clear, well funded implementation framework to implement transformative improvements.
Public Engagement Activities
Community engagement used a mix of in person events,
targeted outreach, surveys, and stakeholder meetings to reach residents, workers, businesses, and community partners in Downtown Stockton. Engagement occurred throughout
2025 and early 2026, providing input at key stages of the planning process and ensuring community perspectives
informed the Plan’s strategies and recommendations.
Site Walk
A guided site walk held on March 1 2, 2025, allowed
project team members and stakeholders to observe
existing conditions within the project area. The walk
highlighted pedestrian, bicycle, and transit conditions, land use patterns, safety concerns, and first and last mile access challenges, helping shape subsequent engagement
activities and identify priority issues for further exploration.
A more detailed discussion of the site walk is provided as Appendix G.
Canvassing and Community Events
The project team conducted extensive canvassing and tabling outreach at community events to engage residents and
visitors in familiar, accessible settings. These events provided opportunities to share project information, distribute surveys, and collect informal feedback from participants who may not typically attend traditional public meetings.
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Canvassing activities included:
• Metro Market – Friday, April 4, 2025
• Earth Day Event – Sunday, April 27 , 2025
• National Night Out – Tuesday, August 5, 2025
• Golden Villa Farmers Market – Saturday, August 23, 2025 • Family Day at the Park – Saturday, September 20, 2025 • El Concilio Food Distribution – Friday, January 9, 2026 • Employee Service Awards – Friday, January 16, 2026
• Courthouse Plaza – Wednesday, January 2 1, 2026
These events supported inclusive outreach by engaging
families, older adults, employees, and residents accessing community services.
Surveys
Three rounds of public surveys were conducted to gather input at key milestones in the planning process. Surveys were available online and in paper format to maximize
accessibility.
• Survey #1: Friday, March 7 through Wednesday, April
30, 2025
• Survey #2: Wednesday, July 30 through Monday,
September 22, 2025
• Survey #3: Friday, December 5 through Friday, January 23, 2026
Survey topics included travel behavior, safety concerns, transit experience, pedestrian and bicycle conditions, land use preferences, and potential improvement strategies. The survey results informed the refinement of alternatives and subsequent engagement activities.
Community Workshops and Presentations
Community workshops and presentations were held to
share project information, present concepts, and gather detailed feedback through interactive formats.
• Workshop #1 – Thursday, March 20, 2025, held at
Cabral Station
• Workshop #2 – Thursday, July 3 1, 2025, held at DTC
• Grand View Village Presentation – Wednesday,
December 10, 2025, held at Grand View Village
Housing Complex
• Workshop #3 – Wednesday, December 10, 2025, held
at RTD meeting room
Workshops used open house formats, visual displays, and facilitated discussions. Targeted outreach at Grand View Village supported engagement with residents within the
project area.
Focus Meetings
To supplement broader public outreach, the project team conducted focus meetings with key stakeholder groups to gather specialized perspectives and technical insight.
• Community Based Organizations – Wednesday, May
1 4, 2025
• Public Agencies – Wednesday, June 4, 2025
These meetings supported coordination with
service providers and agencies and helped ensure
recommendations reflect community needs and
implementation considerations.
Transit Customer Experience
The project team coordinated closely with RTD at the DTC and SJRRC at the Cabral Station to gather targeted input from transit riders, ensuring that recommended transit
strategies reflect lived customer experience. This focused outreach complemented broader engagement efforts and
helped ground transit recommendations in operational and customer facing realities.
Feedback consistently emphasized that while transit is
essential to downtown mobility, used by more than 1 5
percent of respondents for daily needs, its effectiveness depends heavily on surrounding pedestrian conditions,
personal safety, station amenities, and first and last mile access. Riders noted that challenges related to reliability, station conditions, and safe access routes reduce transit’s overall usability, particularly outside peak periods or for trips requiring transfers.
Site Walk participants gather along Weber Avenue for a
discussion
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Rider Priorities and Concerns
Transit riders identified comfort, clarity, and safety as central to a positive experience. The most frequently cited needs included improved stop and station amenities such as shade, seating, lighting, and cleanliness, as well as clear travel information, including maps, schedules, and wayfinding. Personal safety concerns, especially related to lighting, inactive street edges, and underutilized areas near stations, were widely cited and echoed by non riders, reinforcing safety as a foundational issue for increasing transit use.
Service Quality and Access Issues
Transit riders highlighted service frequency, reliability, and connectivity as key factors shaping transit use. Infrequent service, limited route coverage, and weak connections
between major transit hubs were identified as barriers. First and last mile access was consistently cited as a significant challenge, with cracked or missing sidewalks, limited ADA access, poor lighting, and unsafe crossings discouraging transit use, particularly for older adults, families, and people with mobility impairment.
Implications for Transit-Oriented Strategies
The engagement results suggest that improving transit in Downtown Stockton requires an integrated approach that
pairs service enhancements with place based investments around stations and corridors. Transit oriented strategies should prioritize improvements to station environments, such as amenities, lighting, cleanliness, and wayfinding, while simultaneously addressing pedestrian safety, ADA
accessibility, and comfort along key approach routes.
Survey feedback also indicates strong support for mobility hubs that better connect transit with walking, bicycling, and emerging mobility services, helping to address first and last mile challenges. Coordinating transit investments with land use strategies, including mixed use development, activation of vacant parcels, and increased residential density near transit, was viewed as essential to creating more vibrant, safer, and transit supportive environments.
Engagement Themes
Mobility and Land Use Priorities
Community feedback revealed strong alignment around
the need to better integrate mobility improvements with land use strategies that support a more active, connected, and economically vibrant downtown. Across all outreach
activities, participants consistently emphasized the
importance of focusing investments along key corridors
while advancing land use changes that activate streets and underutilized sites.
The strongest consensus among
respondents was the prioritization of
improvements along El Dorado Street,
Weber Avenue, and Center Street, which
consistently ranked highest for multimodal safety,
bicycle infrastructure, and transit enhancements.
These corridors were widely viewed as critical spines
for improving downtown connectivity and supporting
safer, more comfortable travel across modes.
A transit user shares feedback with the Project Team
A Project Team member collects feedback from a transit user and local resident
!
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Community input also highlighted broad support for land use strategies that reinforce downtown revitalization.
The most widely supported approaches included
promoting infill development on vacant or
underutilized sites (40%) and activating streets and
the ground floors of buildings (27%), reflecting a clear community preference for increasing activity, visibility, and economic energy downtown. Notably, twenty-
seven percent (27%) of respondents identified street and ground floor activation as a near term priority, underscoring interest in early actions that can quickly improve the
downtown experience.
Participants expressed strong support for integrating shared mobility and first/last mile solutions into the downtown transportation network. Eighty five percent (85%)
of community feedback supported incorporating
mobility hub features, such as carshare, bikeshare,
and/or scooter share, at all three major transit
locations: the Downtown Transit Center, Cabral
Station, and the San Joaquin Street Amtrak Station.
These hubs were viewed as essential tools for improving access, reducing reliance on private vehicles, and
strengthening connections between transit and surrounding destinations. In addition, respondents showed
support for rethinking how downtown street space
is used, with seventy-one percent (71%) supporting
repurposing Weber Avenue and sixty-six percent
(66%) supporting repurposing Hazelton Avenue.
These responses reflect a willingness to consider changes to roadway design and function to better balance mobility, safety, and placemaking objectives.
Mobility and Land Use Concerns
Alongside identified priorities, engagement surfaced
consistent mobility and land use concerns that shape how improvements should be designed and implemented.
Participants emphasized repairing and maintaining
pedestrian infrastructure, such as sidewalks, crossings, and amenities like shade, benches, and lighting, noting that comfort and safety are foundational to encouraging walking downtown.
There was also strong support for protected bicycle
infrastructure, including protected bike lanes, secure
parking, and safer intersection crossings, reflecting a desire to reduce conflicts with vehicles and make bicycling viable for a broader range of users. Transit related concerns
focused on service reliability, frequency, and connectivity, supported by improved stop amenities, real time
information, and safer access routes. Participants stressed that transit improvements should be paired with supportive land uses to maximize effectiveness.
Beyond transportation, respondents highlighted safety,
cleanliness, and affordability as essential to supporting small businesses and attracting investment. Participants also expressed a clear preference for activating vacant lots, reusing underutilized buildings, expanding housing, and adding community serving amenities, reflecting a desire for a lively, mixed use downtown that supports daily activity and long term stability.
Equity Considerations
Survey results indicate that transit plays a significant role in Downtown Stockton, with 1 5 percent of respondents
relying on transit as their primary mode, three times the statewide average (5 percent of Californians, according to the U.S. Census Bureau’s American Community Survey). This underscores the importance of prioritizing improvements that serve transit dependent populations, including lower income households, older adults, people with disabilities, and those with limited access to private vehicles, consistent with the Plan’s Social Equity goal and Equity and
Displacement Analysis.
Equity concerns centered on safety, accessibility, and
first and last mile conditions. Participants frequently cited damaged sidewalks, inadequate ADA curb ramps, poor
lighting, and unsafe crossings near transit stops as barriers that disproportionately affect vulnerable users. Perceived and actual safety issues around stations, particularly in poorly lit or inactive areas, were also identified as limiting who feels comfortable using transit and when.
These findings highlight the need for transit oriented
strategies that integrate service improvements with place based investments focused on pedestrian safety, ADA
accessibility, and comfort along key access routes.
Prioritizing improvements in areas with the greatest safety and access challenges is essential to achieving equitable, inclusive outcomes.
TOP PRIORITIES
AS VOTED BY THE COMMUNITY
• PROMOTING INFILL DEVELOPMENT
• ADDING MOBILITY HUB FEATURES
• ACTIVATING STREETS AND BUILDINGS
• REPURPOSING WEBER AVENUE
AND HAZELTON AVENUE
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ALTERNATIVES ANALYSIS
Three alternatives were developed in support of the Plan to provide transportation and land use strategies of varying intensity. The alternatives support decision-making by
outlining the Plan recommendations from the most easily implementable to the most complex. Alternative 1 offers the lowest cost and most straightforward initial steps for the City, while Alternative 3 represents the most transformative option, delivering the greatest benefits but requiring the highest investment and extensive interagency coordination.
Although not formal phases, the alternatives are designed to build upon one another by incorporating elements from each preceding alternative. For example, improvements
identified in Alternative 1 are assumed as part of Alternative 2 and Alternative 3. These alternatives can be found in Appendix H: Alternatives. The toolbox strategies that were developed in support of the alternatives can be found in Appendix I: Toolbox Strategies.
Alternative 1 – Foundation
Alternative 1 presents a foundational set of Project
recommendations that address the most urgent needs
through lower-cost and less constrained recommendations.
Alternative 1 Transportation Vision
The transportation recommendations identified for
Alternative 1 focus on programmatic and low-cost
capital improvements while addressing the most urgent
transportation needs in the Project area through spot
treatment improvements.
Safety improvements focused on the top six ranked
intersections (shown in Figure 10) with the highest number of crashes, resulting in the following six intersections:
• Rank 1. Airport Way & Market St (32 Collisions)
• Rank 2. Airport Way & Hazelton Avenue (28 Collisions) • Rank 3. Center Street & Washington Street (2 1
Collisions)
• Rank 3. Weber Avenue & Airport Way (2 1 Collisions)
• Rank 5. California Street and Oak Street (1 9 Collisions) • Rank 5. Airport Way and Miner Avenue (1 9 Collisions) Active transportation recommendations in Alternative
1 aim to address safety concerns at high-crash-volume
intersections as well as intersections with histories of severe and fatal crashes involving bicyclists and/or pedestrians. As shown in Figure 1 1, Bicycle and Pedestrian Priority Corridors are identified along Center Street, El Dorado Street, Weber Avenue, Airport Way, Hazelton Avenue, and Channel
Street, with improvements on Channel Street currently
underway. Recent City efforts include the construction of active transportation improvements on Center Street, El Dorado Street, and Hazelton Avenue, further supporting
their designation as pedestrian and bicycle priority
corridors. Over the course of the Project, these corridors were found to present the safety and/or mobility challenges for active transportation users. Additionally, improvements along the bicycle and pedestrian priority corridors
will enhance the South Stockton Citywide Backbone
Network that was recommended in the City’s 201 7 Active Transportation Plan.
Public transit recommendations in Alternative 1 (shown in Figure 1 2) are focused on enhancing bus stops with benches, shading, signage, and other improvements as well as
enhancing access to transit centers and stations, including the DTC, Cabral Station, and San Joaquin Street Station.
Bob Hope Theatre on Main Street
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Figure 10. Alternative 1 Priority Safety Intersections
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Figure 1 1. Alternative 1 Bicycle and Pedestrian Priority Corridors EXHIBIT 1
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Figure 1 2. Alternative 1 Transit Improvement Areas
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Alternative 1 Land Use Vision
Alternative 1 focuses on improving connectivity between the Downtown Transit Center and Cabral Station through
near- and mid-term activation strategies and early planning activities that can be implemented primarily by the City in partnership with community organizations. The focus area, shown in Figure 1 3, is bounded by Miner Avenue, Market Street, Sutter Street, and Airport Way. Near-term efforts emphasize low-cost, flexible street and storefront activation, such as temporary events, pop-ups, and markets, supported by an inventory of vacant and underutilized properties to guide programming without requiring changes to existing street designs or land use regulations. Concentrating near- term activities in the center of this focus area along Weber Avenue (shown in the dashed line in Figure 1 3) can help create a focal point and destination.
Mid-term and early planning activities build the foundation for long-term development by enhancing commercial
corridors, improving storefront conditions, and updating land use and zoning frameworks to support active,
pedestrian-oriented ground-floor uses. Strategies include façade and building improvements, incentives such as
“white boxing” for vacant commercial spaces, streamlined permitting for temporary uses and events, and identification of opportunity sites for infill and densification. Additional actions focus on attracting community-serving uses,
improving infrastructure including broadband, supporting healthy food access through healthy food vendors and
community gardens, and securing funding for site cleanup and environmental remediation to improve downtown
livability and readiness for future investment.
High-visibility crosswalk in Downtown Stockton on Weber Avenue
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Figure 1 3. Alternative 1 Land Use Focus Area
4 Stockton
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EL DORADO STSAN JOAQUIN ST
CALIFORNIA ST
AURORA ST
HAZELTON AVE
MA IN ST
WEBER AVE
MINER AVE
AIRPORT WAY
OAK ST
CENTER ST
STANISLAUS ST
FREMONT ST
E MARKET STE MARKET ST
E TAYLOR STE TAYLOR ST
S SUTTER STS SUTTER ST
N HUNTER STN HUNTER ST
S UNION STS UNION STS GRANT STS GRANT ST
Rail
Project Area
Cabral Station
Downtown Transit
Center (DTC)
San Joaquin Street Station
Diamond Grade Separation
Bicycle and Pedestrian
Priority Corridor
Bicycle Priority Corridor
LEGEND
Alternative 1
Land Use Alternative 1
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Identify vacant parcels
as opportunity sites for
future development
Pursue resources for
facade improvements
Program vacant ground-/f_loor
spaces, the edges of parking
lots, and vacant parcels with
temporary events
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Alternative 2 – Focused Plan
Alternative 2 presents a set of aspirational but attainable recommendations for the Plan area.
Alternative 2 Transportation Vision
The transportation strategies in Alternative 2 focus more on capital improvements than Alternative 1 and focuses on
corridor-wide strategies that focus on enhancing safety and improved mobility for all travelers in the Plan area.
In Alternative 2, safety recommendations look at corridor- wide enhancements along roadways with the highest
number of collisions. The Safety Priority Corridors, shown in Figure 1 4, include Center Street, El Dorado Street, California Street, Weber Avenue, and Airport Way, and
largely overlap with the intersections identified in the safety recommendations for Alternative 1.
Active transportation recommendations are expanded to
include additional bicycle and pedestrian priority corridors as well as bicycle-focused improvement corridors, as shown in Figure 1 5. Sidewalk and bikeway enhancements along
Lafayette Street will enhance mobility near SR-4 and access to the Golden Villa Farmer’s Market. Bikeway improvements along Aurora Street will advance the planned bikeway
network and enhance mobility for bicyclists traveling north and south in Downtown.
Transit Priority Corridors are identified in Alternative 2 on key roadways where the RTD currently has existing stops and operations, as shown in Figure 16. Transit improvements include real-time transit information, transit reliability strategies such as far-side bus stop relocations, transit stop curb management, last- and first- mile enhancements, and wayfinding signage improvements.
Bicycle parking at the Downtown Transit Center
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Figure 1 4. Alternative 2 Safety Priority Corridors
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Figure 15. Alternative 2 Bicycle and Pedestrian Priority Corridors EXHIBIT 1
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Figure 1 6. Alternative 2 Transit Priority Corridors
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Alternative 2 Land Use Vision
Alternative 2 land use strategies focus on strengthening connectivity between the DTC and San Joaquin Street
Station while advancing historic preservation, downtown activation, and private development. Building on the
Early Planning Activities assumed under Alternative 1, this alternative expands the focus area to include the area
bounded by Miner Avenue, Taylor Street, Center Street, and Grant Street.
Strategies emphasize preserving and adaptively reusing
historic resources through updated surveys, design
guidelines, incentives, and participation in programs
including the Mills Act, while streamlining approvals and securing funding to support reinvestment.
Downtown revitalization efforts include marketing
vacant and underutilized properties, particularly surplus City-owned land, for mixed-use and mixed-income
development; establishing programs to rehabilitate
commercial spaces; and securing funding for site cleanup and remediation. Improving connectivity across SR-4 is a central component of this phase, with multimodal crossings and a potential pedestrian-oriented corridor linking Little Manila to the downtown civic core through enhanced
streetscape, safety, and cultural placemaking elements.
Development would target higher-density mixed-use
housing in the civic core and compact residential and
community-serving uses in Lit tle Manila, supported by
parking optimization strategies, existing City incentive programs, and a long-term vision to transform Mormon
Slough into a downtown amenity with coordinated services for unhoused residents.
Curb extension at Downtown Lodi entrance Curb extension at Weber Avenue and Grant Street Curb extension at San Joaquin Street and Main Street
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Figure 1 7 . Alternative 2 Land Use Focus Area
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EL DORADO STSAN JOAQUIN ST
CALIFORNIA ST
AURORA ST
HAZELTON AVE
MA IN ST
WEBER AVE
MINER AVE
AIRPORT WAY
OAK ST
CENTER ST
STANISLAUS ST
FREMONT ST
E MARKET STE MARKET ST
E TAYLOR STE TAYLOR ST
S SUTTER STS SUTTER ST
N HUNTER STN HUNTER ST
S UNION STS UNION STS GRANT STS GRANT ST
Rail
Project Area
Cabral Station
Downtown Transit
Center (DTC)
San Joaquin Street Station
Diamond Grade Separation
Bicycle and Pedestrian
Priority Corridor
Bicycle Priority Corridor
LEGEND
Alternative 1
Alternative 2
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Land Use Alternative 2
In/f_ill housing in vacant
and underutilized parcels
Develop Historic Design
Guidelines to preserve and
reuse historic buildings
and sites, establish a program
supporting rehabilitation of
historic buildings, and explore
participation in the Mills Act
program
Improve Highway 4 undercrossings and
create north-south pedestrian-oriented corridors
Activate Mormon Slough with a
linear park, recreational amenities,
and/or community programming
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Alternative 3 – Full Vision
Alternative 3 represents the full transformational vision of the Project’s recommendations, with a focus on long-term implementation. It outlines the most desirable conditions for achieving the Project’s goals. These recommendations are typically applied broadly across the entire Plan area or targeted to specific zoning districts within it.
Alternative 3 Transportation Vision
Safety improvements in Alternative 3 have a systemic focus across the entire project area. These improvements focus on both programmatic and infrastructure improvements,
including strategies from the City’s Vision Zero plan, which is currently in development.
Active transportation and public transit improvements
included in Alternative 3 include systemic improvements to the transportation network. These changes include the full build-out of the planned bicycle and pedestrian networks and implementation of the planned mobility hubs at the
three transit stations in Downtown Stockton.
Four (4) representative cross-section alternatives were developed for key corridors within the Plan Study Area, including Center Street, El Dorado Street, San Joaquin
Street, and Oak Street. These cross sections were informed by the approximate existing roadway widths, curb-to-curb conditions, and functional context of each corridor and are intended to illustrate the types of improvements envisioned under the Plan alternatives. Rather than serving as final engineering designs, the cross sections provide a visual framework to demonstrate how recommended multimodal
elements could be accommodated within the existing
right-of-way. These cross sections are intended to serve as illustrative examples not only for the specific corridors shown, but also for other Pedestrian and Bicycle Priority Corridors and Transit Priority Corridors recommended in the Plan alternatives.
El Dorado Street (Figure 1 8) and Center Street (Figure 1 9) are identified as Pedestrian and Bicycle Priority Corridors under Alternative 3. The proposed cross sections for these corridors emphasize high-quality, comfortable facilities for people walking and bicycling, while maintaining
appropriate access for transit and local vehicle movements.
In these corridors, the preferred condition includes protected bikeways, which may be separated from vehicle traffic
through a combination of on-street parking, bus stop
platforms, bollards, landscaped buffers, or other vertical separation elements. Pedestrian enhancements are also
a key focus and may include wider sidewalks, enhanced
and more frequent crossings, shade trees, pedestrian-scale lighting, and street furniture, all of which contribute to improved safety, comfort, and overall street vitality.
ACE commuter at Cabral Station
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Figure 1 8. Proposed El Dorado Street Cross Section
Figure 1 9. Proposed Center Street Cross Section
Transit Priority Corridor cross sections were developed for San Joaquin Street (Figure 20) and Oak Street (Figure 2 1), reflecting their role as key transit spines within Downtown Stockton. The proposed cross sections for these corridors prioritize transit efficiency and reliability, while also improving safety and access for pedestrians and bicyclists. Conceptual elements include potential transit signal priority, enhanced bus stops with improved amenities, curb management strategies, and treatments that support reliable transit operations. These corridors will also offer first- and last-mile connectivity improvements, such as upgraded sidewalks, improved crossings, and bikeway connections, to ensure that transit riders can safely and comfortably access stations and stops.
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Figure 20. Proposed San Joaquin Street Cross Section
Figure 2 1. Proposed Oak Street Cross Section
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Figure 22. Alternative 3 Bicycle and Pedestrian Priority Corridors EXHIBIT 1
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Figure 23. Alternative 3 Transit Priority Corridors
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Alternative 3 Land Use Vision
Alternative 3 extends activation, connectivity, and
development strategies from Alternatives 1 and 2 to
the remaining northern and southeastern portions of the Study Area, building on earlier momentum to achieve
downtown-wide integration. The northern focus area,
bounded by Oak Street, Miner Avenue, Center Street, and Airport Way, includes residential and commercial uses
and would benefit from expanded amenities, improved
connectivity, and reinvestment that supports existing
residents and businesses while extending an activated
Downtown.
The southern focus area, bounded by Market Street,
Taylor Street, Grant Street, and the UPRR railroad, is
primarily industrial and would emphasize preserving and modernizing employment-generating uses while supporting compatible reuse and transitions between industrial,
residential, and commercial areas. Strategies include
extending multimodal connectivity across SR-4, mitigating impacts from the Stockton Diamond Grade Separation
Project through buffering and design standards, and
coordinating with regional rail and transportation agencies.
Development code updates and the use of corridor types
would guide appropriate land use transitions, noise
mitigation, and buffering to better integrate rail infrastructure into the Downtown context. Lastly, major improvements
and activities would be implemented to improve Mormon
Slough into an attractive and usable public open space
amenity.
Mixed-use housing transitioning to commercial in Redding, CA Wider and complete sidewalk
Bicycle and pedestrian prioritized protected intersection along mixed-used corridor
Underpass park in Albany, CA
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Figure 24. Alternative 3 Land Use Focus Area
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EL DORADO STSAN JOAQUIN ST
CALIFORNIA ST
AURORA ST
HAZELTON AVE
MA IN ST
WEBER AVE
MINER AVE
AIRPORT WAY
OAK ST
CENTER ST
STANISLAUS ST
FREMONT ST
E MARKET STE MARKET ST
E TAYLOR STE TAYLOR ST
S SUTTER STS SUTTER ST
N HUNTER STN HUNTER ST
S UNION STS UNION STS GRANT STS GRANT ST
Rail
Project Area
Cabral Station
Downtown Transit
Center (DTC)
San Joaquin Street Station
Diamond Grade Separation
Bicycle and Pedestrian
Priority Corridor
Bicycle Priority Corridor
LEGEND
Alternative 1
Alternative 2
Alternative 3
Special Area
Land Use Alternative 3
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Mixed-use and high-density
housing as in/f_ill development
Incorporate buffers along rail-lines,
such as noise walls and landscaping
treatments. Work with developers &
property owners to reduce impacts
from rail infrastructure and activities
Improve Highway 4 undercrossings
by adding lighting and increasing
pedestrian, cyclist, and transit access
Continue to implement Mormon
Slough improvements and activation
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Alternative Benefit-Cost Analysis
A Benefit-Cost Analysis (BCA) was conducted to evaluate the relative economic performance of the Plan alternatives and to assess how benefits scale with the level and
integration of investment. The analysis shows that economic benefits increase in both magnitude and durability as
improvements progress from localized interventions
(Alternative 1) to corridor continuity (Alternative 2) and, ultimately, system-level connectivity (Alternative 3). While all alternatives generate positive effects, outcomes are driven not only by investment scale but by the degree to which each alternative reduces structural access barriers, supports sustained shifts in travel behavior, and creates conditions that encourage long-term private reinvestment.
Under Alternative 1, benefits are largely localized and short-term, reflecting targeted safety and accessibility improvements that stabilize existing conditions but do not substantially alter downtown travel patterns or economic structure. Alternative 2 demonstrates stronger and more durable benefits by extending improvements across
connected corridors, improving access to destinations,
supporting workforce connectivity, and enabling
incremental reinvestment along priority routes. Alternative 3 yields the greatest long-term economic value by addressing downtown-wide connectivity and access constraints through system-level interventions, supporting sustained increases in visitation, non-automobile travel, retail clustering, and long-term reductions in public costs. While benefits under Alternative 3 accrue over a longer horizon, they are
cumulative and transformative in nature. The full Benefit-Cost Analysis is provided in Appendix J: Benefit-Cost Analysis.
Preferred Alternative
Alternative 3, the Full Vision Plan, was selected as the Preferred Alternative as it most comprehensively responds to the transportation and land use needs identified
through the existing conditions analysis and reinforced through community engagement. While Alternatives 1
and 2 establish important near-term and corridor-scale
improvements, Alternative 3 builds on these foundations to deliver a coordinated, system-wide vision that addresses safety, mobility, access, economic vitality, and long-term land use transformation across Downtown Stockton. It
incorporates the full range of programmatic, capital, and policy strategies necessary to overcome longstanding
barriers, improve multimodal connectivity, and support
sustainable growth in a manner consistent with community priorities and Plan goals. The complete list of strategies that comprise the preferred alternative is outlined in Table 5 below, which also details in which alternatives the strategy is specifically mentioned.
ALTERNATIVE SUMMARY
ALTERNATIVE 1
• targeted safety/accessibility
improvements
• stabilizes existing conditions
• does not alter travel patterns
or economic struc
ture
LOCALIZED,
SHORT-TERM BENEFITS
ALTERNATIVE 2
• improves access to destinations
• supports workforce connectivity
• enables reinvestment on
priority routes
STRONGER
,
MORE DURABLE BENEFITS
ALTERNATIVE 3
• system-level interventions
• supports increased visitation,
tr
avel, and retail
• long-term reduction in public
cost
GREATEST LONG-TERM
ECONOMIC VALUE
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Table 6. Alternative Strategies
# STRATEGY (CONDENSED DESCRIPTION) ALT 1 ALT 2 ALT 3
1 High crash intersection spot improvements
2 Community identified safety concern locations – –
3 Low cost safety programs (NTMP, speed feedback, etc.) 4 Pedestrian crossing & ADA upgrades
5 Bike boxes & conflict area bike crossings
6 Sidewalk repair, gap closures, widening
7 Pedestrian scale lighting for safety –
8 Corridor wide safety upgrades (high collision corridors) – 9 Advanced pedestrian crossing controls (LPI, RRFB, scramble) – 10 Traffic calming & diversion (chicanes, diverters) – 11 Transformative intersection redesigns – –
12 Systemic Vision Zero implementation – –
13 Priority bicycle and pedestrian corridors –
14 Connected bikeway network (Class II / IV) –
15 North–south bikeway corridors –
16 Southern area bikeway connectivity –
17 Lafayette St SR-4 & market access improvements – 18 Downtown Core bikeway build out – –
19 Continuous, accessible pedestrian network
20 Active transportation wayfinding
21 Station area access at DTC, Cabral, San Joaquin 22 Bus stop comfort & signage upgrades
23 Real time arrival info & enhanced shelters –
24 First/last mile network gap closures
25 Transit corridor access improvements
26 Bike on transit & secure bike parking –
27 Transit signal priority & curb enforcement –
28 Mobility hubs (DTC, Cabral, San Joaquin) – –
29 Mobility hub connections to Union Transfer Station – – 30 Shuttle, micromobility & rideshare integration – – 31 Express route connectivity evaluation – –
32 Rail station consolidation or San Joaquin Station relocation (study level) – – 33 SR-4 underpass lighting & multimodal upgrades –
34 SR-4 crossing feasibility & safety study –
35 Multimodal SR-4 crossings (Little Manila connections) – 36 Pedestrian oriented connector corridor –
37 Rail/Stockton Diamond area buffering & coordination – EXHIBIT 1
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Table 6. Alternative Strategies
# STRATEGY (CONDENSED DESCRIPTION) ALT 1 ALT 2 ALT 3
38 Buffer & transition design standards near rail – 39 Union Street walkable corridor – –
40 East of Diamond infill & reuse –
41 Travel Smart & TDM programs
42 Demonstration projects, open streets, slow streets – 43 Delivery zones & off hour freight pilots
44 Freight integrated curb & street design –
45 Downtown activation (events, pop ups)
46 Inventory of vacant/underutilized spaces
47 Corridor/storefront revitalization
48 White boxing ground floor spaces
49 Zoning updates & streamlined permitting
50 Corridor types/subareas framework
51 Infill & densification opportunity sites
52 Mixed use & housing development strategy
53 Development incentive programs
54 Historic preservation & adaptive reuse –
55 Vacant/abandoned building marketing
56 Commercial rehabilitation program –
57 Environmental cleanup & remediation funding –
58 Downtown internet connectivity programs
59 Healthy food access incentives
60 Parking optimization & reduced minimums –
61 Mormon Slough transformation plan –
62 Unhoused coordination along Mormon Slough –
63 Industrial preservation & land use transitions – – 64 Development Code buffering requirements – –
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Selection Rationale
Performance Relative to Goals
Alternative 3 best meets the Plan goals and objectives
by delivering the most comprehensive and integrated
set of transportation and land use improvements across
Downtown Stockton. As the most transformative option,
Alternative 3 advances a complete build out of the
multimodal network and supporting land use strategies,
resulting in the strongest overall alignment with the Project’s highest weighted goals: Safety, Mobility, and Improved
Land Use.
Under the Safety goal, Alternative 3 provides the greatest potential to reduce collision rates, injuries, and fatalities for all modes of travel. The Alternative emphasizes systemic safety improvements, including a focus on key high-
injury crash corridors and at high injury intersections. By prioritizing high quality, protected bicycle and pedestrian facilities, improving transit stop environments, and
applying Crime Prevention Through Environmental Design
principles, Alternative 3 also enhances user comfort and the perception of personal safety for residents and visitors throughout Downtown Stockton.
Alternative 3 most effectively advances the Mobility goal by supporting active transportation and transit modes that offer alternatives to single occupancy vehicle travel. Completion of the planned bicycle and pedestrian networks, combined with improved transit priority treatments and enhanced
first and last mile connections, creates a more reliable, convenient, and efficient multimodal transportation system.
These investments increase non auto mode share, reduce
vehicle miles traveled, and improve travel time reliability for people moving within, to, and through Downtown,
particularly for daily trips and transit access. From an Economic Vitality and Social Equity perspective, Alternative 3 offers the broadest and most inclusive benefits. Improved pedestrian, bicycle, and transit access to commercial
corridors and business districts supports local businesses and encourages reinvestment in underutilized parcels.
Alternative 3 also best fulfills the Improved Land Use
goal by aligning transportation investments with long
term development and livability objectives. Alternative 3 supports infill residential development at a range of densities, transit oriented development near major stations, and joint development opportunities that more efficiently use land and infrastructure. Complementary strategies
such as parking optimization and improved access to
services, healthcare, and healthy food further enhance
Downtown livability and reinforce the connection between transportation improvements and land use outcomes.
Alternative 3 also most strongly advances the Air Quality, Health, and Sustainability goal. By reducing reliance on automobile travel and encouraging walking, bicycling,
and transit use, through both transportation and land
use development changes, Alternative 3 will most likely contribute to reductions in transportation related greenhouse gas emissions and other pollutants. An increase in the
number of destinations and level of comfort while traveling in Downtown will also promote physical activity, supporting improved public health outcomes.
Benefit-Cost and Economic Analysis
The BCA and Economic Impact Analysis (EIA) support
adoption of Alternative 3 as the preferred long-term
alternative for the Move Downtown Project. Alternative 3 most directly addresses Downtown Stockton’s structural
constraints, produces the most durable and system-wide
benefits, and best aligns transportation investment with long-term socioeconomic, environmental, and land-use
objectives.
At the same time, the additive structure of the alternatives supports a phased implementation strategy. Foundational and corridor-scale investments can be pursued as near-
and medium-term actions while remaining fully consistent with the long-term vision embodied in Alternative 3. This approach balances affordability and feasibility while
maintaining a clear trajectory toward transformative
change.
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ACTION AND PHASING PLAN
Recommended Projects
Through the development of the three Plan alternatives and subsequent prioritization of transportation and land use strategies, a set of implementable projects was identified to translate the planning vision into action. For the complete prioritization methodology see Appendix K: Project
Prioritization Methodology.
The project list reflects a synthesis of the alternative concepts and the strategies that were most effective at addressing the needs identified through the existing conditions analysis and community engagement. Each project is defined by a
specific corridor, station area, or focus area within the study area and bundles complementary transportation and land
use strategies into coordinated, deliverable investments.
The projects are identified for short-term, mid-term, or long- term implementation, as defined below.
• Short Term (0-5 years) = High ranking, and/or readily implementable
• Medium Term (5-10 years) = High to medium ranking
but coordination or funding dependent
• Long Term (10+ years) = Low ranking, or high impact
but may feature significant multi agency coordination or engineering complexities
The complete list of projects is provided in Table 6 and detailed in Appendix L: Project List.
Table 7 . Recommended Projects
PROJECT NAME PROJECT
RANKING
IMPLEMENTATION
PRIORITY RATIONALE
SR-4 Crossings 1 Medium Term Requires coordination with Caltrans, however, improvements can be phased.
El Dorado Street
Corridor 2 Short Term
Top ranked project. Recently completed improvements establish momentum; additional placemaking and safety elements can be implemented in phased approach. Coordination with Caltrans may be required for improvements at SR-4.
Airport Way Corridor 3 Short Term Very high score and corridor improvements can be phased; not inherently more complex than other short term corridors.
Weber Avenue
Corridor 3 Short Term Corridor improvements currently in design; strong readiness for near term construction.
Downtown Transit
Center (DTC) Access 5 Short Term Access improvements require coordination with transit partners.
Mobility Hub
Implementation Study 6 Short Term High ranking non-capital project with likely lower cost compared to other projects
California Street
Corridor 7 Short Term
Recent Class IV bikeway improvements are complete; remaining scope focuses on pedestrian and transit enhancements with high safety benefits and strong readiness.
Cabral Station Access 7 Medium Term Station access improvements require coordination with rail partners.
Center Street Corridor 9 Short Term
Core downtown corridor with recent bikeway improvements; remaining enhancements are lower complexity and can be phased quickly.
San Joaquin Street
Corridor 10 Short Term Upper medium score with high anticipated benefits to San Joaquin Street Station.
Oak Street Corridor 11 Short Term Modest scope and strong feasibility.
Lafayette Street
Corridor 12 Medium Term Higher ranking project, however, potential right of way and coordination constraints.
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Table 7 . Recommended Projects
PROJECT NAME PROJECT
RANKING
IMPLEMENTATION
PRIORITY RATIONALE
Miner Avenue
Corridor 12 Short Term Medium ranked and has momentum from recently completed enhancements.
Mormon Slough
Project 14 Long Term High-medium ranked project, however, requires significant coordination, environmental and equity considerations.
Hazelton Avenue
Corridor 15 Short Term Bikeway improvements were recently completed; remaining enhancements are incremental and feasible in the near term.
Aurora Street Corridor 16 Medium Term Manageable scope and improvements can be implemented incrementally, however, low ranking.
Main Street Corridor 16 Medium Term Low ranked project with medium level implementation complexity.
Market Street Corridor 16 Medium Term Low ranked project with medium level implementation complexity.
Stanislaus Street
Corridor 19 Medium Term Lower ranked project with medium implementation complexity.
Union Street/
Stockton Diamond
District
19 Long Term
Rail adjacent, multi jurisdictional area with safety, land use, and buffering challenges. Requires significant coordination with rail partners and industrial businesses.
Rail Station
Consolidation Study 21 Long Term Low ranking non-capital project with long-term focus Downtown
Revitalization Program 22 Short Term Programmatic activation strategies that can begin immediately and scale over time.
Downtown Historic
Preservation &
Rehabilitation
23 Medium Term Requires property specific coordination, funding assembly, and phased implementation.
Fremont Street
Corridor 24 Medium Term Lowest ranked project, however, implementation of Class III bike route is easily implementable.
Supplemental Bikeway
Network 25 Short Term Low complexity and high connectivity benefits.
Transportation
Demand Management
(TDM) Program
26 Short Term Policy and program based strategies with minimal capital cost and quick deployment potential.
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Financial Strategy
Cost Estimates
Preliminary cost estimates were developed for each recommended capital project, as shown in Table 7. The estimates reflect full project delivery costs, including environmental approval, design, and construction, and include a 25 percent contingency. Detailed cost estimates can be found in Appendix M: Preliminary Cost Estimates.
Table 8. Project Preliminary Cost Estimates
PROJECT NAME LENGTH TOTAL $ (TODAY)
Airport Way Corridor Project 0.9 $4,056,250
Aurora Street Corridor Project 0.9 $4,056,250
California Street Corridor Project 0.4 $1,808,750
Center Street Corridor Project 0.9 $4,056,250
El Dorado Street Corridor Project 0.9 $4,056,250
Fremont Street Corridor Project 0.9 $4,050,000
Hazelton Avenue Corridor Project 0.9 $8,682,500
Lafayette Street Corridor Project 1.0 $4,508,750
Main Street Corridor Project 0.8 $3,608,750
Market Street Corridor Project 1.0 $4,508,750
Miner Street Corridor Project 1.0 $4,508,750
Oak Street Corridor Project 1.0 $4,508,750
San Joaquin Street Corridor Project 0.4 $1,808,750
Stanislaus Street Corridor Project 0.7 $3, 1 58,750
Weber Avenue Corridor Project 1.0 $4,502,500
Cabral Station Access Project N/A $3,860,000
DTC Access Project N/A $3,860,000
SR-4 Crossings Project N/A $3, 1 37 ,5001
Supplemental Bikeway Network Project N/A $1,930,0002
Union Street/Stockton Diamond District Project N/A $5, 1 45,000 1 Total cost per intersection improvement
2 Cost assumes $300,000 per bikeway connection
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Funding Sources and Programs
Competitive grant funding can provide a large portion of project costs. A funding strategy has been developed to ensure that the City and partner agencies are aware of what Federal, State, and Regional grant funding opportunities exist and which projects are best aligned with each program. The tables below summarize potential funding opportunities, including discretionary grants and local funding sources, that may support implementation of projects recommended in this Plan. Note, all of the following transportation and land use funding opportunities are for information only and do not imply project eligibility, funding apportionment, or governing body approval. Appendix N: Financial Strategy includes a comprehensive funding matrix that ranks each project as low, medium, or high based on its alignment with applicable funding programs.
In addition to transportation-related funding, implementation of the Plan will also rely on land use and development– oriented funding programs that support the preferred alternative strategies. The following table summarizes potential land use and development funding opportunities that may complement transportation investments and help advance the Plan’s goals and objectives.
Table 9. Potential Transportation Focused Funding Opportunities
AGENCY LEVEL AGENCY FUNDING PROGRAM
Federal
U.S. Department of Transportation
(USDOT)
• Better Utilizing Investments to Leverage Development (BUILD) • Multimodal Project Discretionary Grant Program (MPDG) • Reconnecting Communities Pilot (RCP)
• Active Transportation Infrastructure Investment Program (ATIIP) U.S. Federal Railroad
Administration (FRA)
• Consolidated Rail Infrastructure and Safety Improvements Program (CRISI)
• Federal–State Partnership for Intercity Passenger Rail Grant Program (FSP)
U.S. Federal Transit Administration
(FTA)
• All Stations Accessibility Program (ASAP)
State California Transportation
Commission (CTC)
• Senate Bill 1 Programs
• Transit and Intercity Rail Capital Program (TIRCP)
• Local Partnership Program (LPP)
• Trade Corridor Enhancement Program (TCEP)
• Active Transportation Program (ATP)
Regional
San Joaquin Council of
Governments (SJCOG)
• Surface Transportation Block Grant (STBG)
• Congestion Mitigation and Air Quality (CMAQ) Program
• Transportation Development Act (TDA) Funds
• Measure K
California Transportation
Commission (CTC)/
Caltrans District Coordination
• State Transportation Improvement Program (STIP)
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Table 10. Potential Land Use and Development Focused Funding Opportunities
AGENCY LEVEL AGENCY FUNDING PROGRAM
Federal
U.S. Department of Housing • Community Development Block Grant • HOME Investment Partnerships Program
U.S. Economic Development
Administration
• Consolidated Rail Infrastructure and Safety Improvements Program (CRISI)
• Federal–State Partnership for Intercity Passenger Rail Grant Program (FSP)
State
Department of Toxic Substances
Control
• Cleanup in Vulnerable Communities Initiative (Equitable Community Revitalization Grant; Technical Assistance Grants;)
California Strategic Growth Council
• Affordable Housing and Sustainable Communities (AHCS) • Transformative Climate Communities (TCC)
Housing and Community
Development
• Permanent Local Housing Allocation
• Infill Infrastructure Grant Program
Office of Historic Preservation • Historic Tax Credit; Certified Local Government Program Local
City of Stockton
• Public Facility Fees
• City-Owned Surplus Land
• Economic Development Department Incentives3
San Joaquin Regional Housing
Fund
• Established in 2024 to support the construction, preservation, and rehabilitation of affordable housing for low-income households throughout San Joaquin County
Downtown Stockton Property Based
Business Improvement District (PBID)
• Hospitality, Maintenance, and Marketing Support programs; Placemaking projects; Downtown Stockton Enterprise Loan Fund Tax Increment Financing and
Assessment Districts (Special District
Formation)
• Enhanced Infrastructure Finance District (EIFD)
• Community Facilities District (CFD)
• Community Revitalization and Investment Authority (CRIA) In addition to securing discretionary grants and local
funding, cost reduction strategies can be leveraged to
bridge gaps in financing. Cost reduction strategies may include the Stockton Economic Stimulus Plan (SESP), which can provide a reduction in certain Public Facility Fees (PFF)
4. Agency Roles
Successful implementation of the Move Downtown projects will require coordinated leadership across multiple local, regional, and State agencies, each bringing distinct
statutory authority, funding responsibilities, and operational expertise. The following roles outline how partner agencies are expected to collaborate during project development, funding, and delivery.
City of Stockton (Lead Implementing Agency)
The City will serve as the primary lead agency for
implementation of projects. As the owner and operator
of the majority of local streets and public spaces within the Plan Area, the City will be responsible for advancing planning, design, environmental clearance, community
engagement, and construction for City led projects.
Key responsibilities include:
• Translating plan recommendations into capital
improvement projects, programs, and policies
• Prioritizing projects through the City’s Capital
Improvement Program (CIP) and budgeting processes
• Leading grant applications and serving as sponsor for State and Federal funding opportunities
• Coordinating interdepartmentally across planning,
public works, economic development, and housing
functions
• Engaging property owners, developers, and community
stakeholders to support project delivery
The City will also play a central role in aligning land use decisions and development review with the multimodal and placemaking objectives established in the Plan.
3 Broken Windows Grants, Stocked Full of Produce Grants, Façade Improvement Forgivable Loan Programs, Commercial Lien Forgiveness Incentive Program; Office and Industrial Sales Tax Incentive Program; Non-Residential Fee Deferral Program 4 As of the City’s August 26, 2025 City Council Meeting, the SESP program will be amended. All new (future) projects receiving gradually reduced SESP waivers, reduced in 6-month increments, over the next 18 months with a sunset of five years.
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Regional Transit District (RTD)
RTD will serve as the primary transit coordination partner for projects that affect transit service, passenger access, and transit-supportive infrastructure. RTD’s role focuses on service planning, operational coordination, and
ensuring alignment between transit operations and capital improvements led by the appropriate implementing
agencies. RTD’s responsibilities include:
• Coordinating on station access, first/last-mile, and
passenger amenity improvements led by partner agencies
• Coordinating transit service planning, operational
strategies, and service changes in response to capital
investments
• Partnering on funding applications for transit-focused grants, as appropriate
• Supporting planning and coordination efforts for
mobility hubs and multimodal transfer facilities
RTD coordination is particularly critical for projects at the DTC, Cabral Station, and San Joaquin Station, where
transit operations and supporting infrastructure are closely interconnected and require ongoing interagency coordination.
San Joaquin Council of Governments (SJCOG)
SJCOG, as the region’s Metropolitan Planning Organization (MPO) and Regional Transportation Planning Agency (RTPA), will play a key role in programming, funding, and regional coordination. SJCOG responsibilities include:
• Plan and implement the Regional Transportation Plan
and Sustainable Communities Strategy (RTP/SCS)
• Programming projects into the Regional Transportation Plan (RTP), TIP, and STIP
• Administering and allocating regional funding programs (e.g., SB 1, CMAQ, STBG)
• Ensuring consistency with regional policies related to equity, climate, and air quality
• Supporting interjurisdictional coordination for projects with regional significance
• Providing technical assistance and data support for
grant and programming decisions
SJCOG’s involvement ensures that Move Downtown
projects remain competitive within regional and State
funding frameworks.
San Joaquin Regional Rail Commission (SJRRC)
SJRRC will serve as a key partner agency for projects that interact with intercity passenger rail, station facilities, and rail corridors, particularly those affecting the Gold Runner intercity rail service and infrastructure. SJRRC’s role may include:
• Coordinating on rail station access and station area
improvements
• Participating in planning and feasibility studies related to station consolidation or rail operations
• Partnering on rail related funding programs
• Ensuring that proposed improvements are compatible
with rail safety, operations, and long term service plans Caltrans
Caltrans will be a critical partner for projects that affect State highways, State owned facilities, or State right of way, including SR-4 and other State routes within or adjacent to the Project Area. Caltrans’ responsibilities include:
• Reviewing and approving projects affecting State
facilities or access points
• Partnering on projects that improve safety, multimodal access, or barrier crossings
• Serving as a funding partner or co sponsor for eligible State and Federal programs
• Coordinating environmental review, design standards,
and construction requirements
Projects involving SR-4 crossings or State corridors will require early and ongoing coordination with Caltrans to ensure feasibility and timely delivery.
Additional Supporting Partners
Depending on project scope, additional partners may include:
• San Joaquin County (county roads, services, and coordination) • Housing and community development agencies for
projects tied to revitalization or redevelopment
• Downtown Stockton Community Improvement District
(CID) and business organizations for activation,
maintenance, and programming
• Private developers and property owners for projects that rely on joint development or private investment
• Community based organizations to support equitable
engagement and implementation
Implementation Coordination
The City will function as the central convener, using the Move Downtown Plan as a shared framework to:
• Coordinate project sequencing and phasing
• Align funding strategies across agencies
• Track progress toward Plan goals over time
This collaborative structure allows projects to be
implemented incrementally while maintaining consistency with the long term vision established by the Plan.
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PLAN ADOPTION AND NEXT STEPS
Plan Gaps
The Plan is intended to serve as a high level multimodal transportation and land use network framework for
Downtown Stockton. While the Plan identifies priority
strategies and implementation actions to advance mobility, safety, equity, and land use integration, the development process and community and stakeholder engagement also
revealed several issues that extend beyond the scope of this effort and will require further analysis as implementation progresses. These gaps highlight the need for additional, more detailed studies, coordination, and policy actions to fully realize the Plan’s long term vision.
Key gaps identified through this planning effort include complex issues related to homelessness and conditions
along Mormon Slough, which present interconnected
equity, environmental, and public health challenges that will require dedicated planning, environmental assessment, and interagency collaboration. Additional constraints associated with specific project locations, such as right of way
limitations, physical barriers, and potential environmental contamination or utility capacity constraints, may affect the feasibility, design, and timing of future improvements and will need to be evaluated during project development, including through environmental review and, where
applicable, site remediation efforts.
Stakeholders also identified regional considerations
outside the Plan’s scope, including potential rail station consolidation initiatives, transit service adjustments, and the need for detailed transit service evaluations to better align routes and service levels with future land use patterns.
Finally, certain regional transit conditions and system level issues raised through engagement could not be fully addressed within the Plan’s analysis and should be explored through future corridor level, operational, or regional planning efforts. Addressing these gaps through subsequent studies and implementation phase evaluations will be
critical to advancing the Plan and should be considered as part of future planning, funding, environmental review, and implementation activities.
Plan Integration
Relationship to City Policies
and Capital Pr
ograms
The Plan is intended to complement and build upon
existing City policies, adopted plans, and active capital programs to ensure consistency across Downtown Stockton planning and investment efforts. Rather than functioning as a standalone document, the Plan establishes a unifying multimodal and land use framework that can guide and
inform the implementation of current projects while shaping future initiatives. By aligning recommended strategies
with ongoing efforts, the Plan supports coordinated
decision making and maximizes the effectiveness of public investments.
Several projects currently underway or in development are expected to advance elements of the Move Downtown
vision. These include the Downtown Stockton Master
Plan, the City’s Vision Zero Plan, planned improvements along Weber Avenue, and the Stockton Diamond Grade
Separation Project. The Plan is designed to reinforce
these efforts by identifying complementary multimodal
connections, land use strategies, and corridor priorities that enhance their outcomes and ensure consistency with broader Downtown goals. As these projects progress, the Plan can be used as a reference to align design decisions, phasing, and implementation approaches with the City’s
long term multimodal and land use objectives.
Looking ahead, the Plan provides a policy consistent
foundation for future capital programming, grant applications, and interagency coordination. By establishing shared priorities and a common vision, the Plan supports alignment between City initiatives, regional transportation investments, and future development activity, helping ensure that Downtown’s transportation and land use investments move forward in a coordinated and mutually reinforcing manner.
Use of the Plan for Grants
and Pr
oject Development
The Plan is designed to directly support grant applications and advance projects from concept to implementation.
By clearly identifying priority corridors, multimodal
safety needs, and equity focused strategies, the Plan
provides ready made justification for funding programs
such as the California Active Transportation Program
(ATP) and the Federal Safe Streets and Roads for All
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(SS4A) program. The Plan documents safety challenges,
disadvantaged community priorities, and community
support, key requirements for competitive safety and active transportation grants.
Transit access, station area improvements, and first and last mile strategies identified in the Plan can be advanced to support applications to the Transit and Intercity Rail Capital Program (TIRCP) and applicable SB 1 programs
by demonstrating how proposed projects improve access,
increase ridership, and reduce vehicle miles traveled and greenhouse gas emissions. The Plan’s implementation
framework, performance measures, and phasing
strategy also support SB 1 accountability and readiness expectations.
Beyond grant pursuits, the Plan provides City staff and partner agencies with a clear framework to advance project development. The Plan can be used to scope project level studies, initiate environmental review and preliminary
engineering, coordinate investments across departments
and agencies, and ensure individual projects align with downtown-wide goals. As projects are implemented, the
Plan strengthens future funding applications by documenting progress, outcomes, and continued readiness for investment.
Plan Monitoring
The City and regional partners will shift from plan
development to implementation and evaluation. Through
regular monitoring and well-defined measures, the City and partners can track progress toward the Plan’s vision and goals, and can take corrective action, if needed.
The City will implement policies, programs, and
infrastructure projects that promote the six Move Downtown goals – safety, mobility, economic vitality, social equity, improved land use, air quality, health, and sustainability throughout the Study Area. Since the City does not own or maintain all multimodal transportation infrastructure, the City cannot implement projects on its own.
This section identifies recommendations for the City
and partners to support plan evaluation. These
recommendations include a framework to measure
plan progress, including a timeline for implementation, performance metrics to measure progress, and partners
who can lead the evaluation and monitoring.
Based on the goals, existing conditions, and opportunities identified in the Plan, this section identifies performance evaluation categories and metrics that the City and its multimodal transportation and land use partners can
monitor and evaluate to support the Plan’s implementation.
A timeline for each action is assigned. Short-term actions can be implemented within 0-5 years, and long-term
actions will be implemented within 5-1 5 years.
Performance Tracking Considerations
Performance tracking provides actions and measures of
success to evaluate the implementation and success of
multimodal and land use programs identified in the Plan.
These actions target non-infrastructure activities throughout the study area. Table 10 outlines the actions, measure(s) of success, timeline, and lead and supporting parties.
Future Plan Updates
The Move Downtown Plan is intended to be a flexible,
living document that can evolve over time as conditions, priorities, and funding opportunities change. While the Plan establishes a long term multimodal transportation and land use framework for Downtown Stockton, future updates may be warranted to reflect progress on implementation, emerging data, new community priorities, or changes
to City, regional, or State policy. Performance tracking results, project delivery outcomes, and lessons learned during implementation should inform future refinements to strategies, phasing, and prioritization.
Future plan updates may also be needed to incorporate
additional analysis completed after adoption of the Plan, such as project level environmental review, utility and infrastructure assessments, or corridor specific studies. As new development occurs, transit services evolve, or major capital projects are delivered, the Plan can be updated to ensure continued alignment with Downtown conditions and implementation realities. Periodic updates will help ensure the Plan remains relevant, responsive, and effective in guiding investment and decision making over time.
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Table 1 1. Performance Measures
GOAL ACTION AND PERFORMANCE MEASURE TIMELINE LEAD AGENCY SUPPORTING AGENCIES i Agency
• Review crash history: Collect fatal and severe (KSI) crashes overall for multimodal users
• High injury network progress: Number of corridors and intersections treated • Conduct before and after analysis of implemented projects: Operating speeds on priority corridors (e.g., 85th percentile speed)
• Conduct before and after analysis of implemented projects: Driver yielding compliance at key crossings
Short to
long-term City of Stockton
• San Joaquin Regional Rail Commission
• San Joaquin Council of Governments
• San Joaquin Regional Transit District
• Caltrans District 10
Mobility
• Infrastructure enhancements: Miles of bikeway delivered by facility type (e.g., low-stress/comfort level)
• Network closure: Linear feet of sidewalk gaps closed and number of ADA curb ramps upgraded
• Station access: Percentage of residents and jobs within ½-mile of stations via safe connections (GIS)
• Transit service enhancements: Transit reliability metrics where available (e.g., on-time performance, headways)
Short to
long-term City of Stockton
• San Joaquin Regional Rail Commission
• San Joaquin Council of Governments
• San Joaquin Regional Transit District
Economic
Vitality
• Downtown development activity in priority areas
(e.g., units, commercial square feet, permits)
• Number of vacant lot activation events or uses
• Streetscape and public realm improvements delivered
(e.g., linear feet or number of blocks)
• Business access and curb management changes implemented (where applicable)
Short to
long-term City of Stockton
• Downtown PBID
• Chamber of commerce
• Development partners
Social Equity
• Share of projects and investment benefiting disadvantaged and priority areas • Safety outcomes in priority areas (KSI)
• Access to low-cost mobility options near key destinations (e.g., proxy measures such as station access, ADA upgrades)
• Conduct community perception surveys of safety and comfort Long-term City of Stockton
• San Joaquin Regional Rail Commission
• San Joaquin Council of Governments
• San Joaquin Regional Transit District
• San Joaquin County Public Health
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Table 1 1. Performance Measures
GOAL ACTION AND PERFORMANCE MEASURE TIMELINE LEAD AGENCY SUPPORTING AGENCIES i Improved Land
Use
• Infill and transit -oriented development readiness indicators: Number of sites advanced and z
oning consistency checkpoints
• Utility capacity and upgrade needs tracked for priority development corridors • Parking management implementation: utilization and occupancy snapshots, shar
ed parking agreements
Long-term City of Stockton • San Joaquin Council of Governments • Development partners
Air Quality,
Health, and
Sustainability
• Evaluate mode shift: bike/ped counts on priority corridors; transit ridership tr
ends where available)
• VMT/GHG proxy reporting for grant-funded projects (when required) • Tree canopy/shade/heat mitigation elements delivered
Long-term City of Stockton
• San Joaquin Council of Governments
• San Joaquin Regional Transit District
• San Joaquin County Public Health
• Valley Air District
i The identified supporting agencies are for illustrative purposes and additional supporting agencies may be identified as implementation takes place.
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Prepared by
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