2022 Regional Transportation Plan - Sustainable Communities Strategies - StanCOG

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3. REGIONAL TRANSPORTATION SYSTEM
The regional transportation system in Stanislaus County consists of a multimodal
network of roads, railways, bicycle and pedestrian routes, airports, and freight hubs. It
facilitates the movement of people and goods through and within the county by
whichever transportation mode works best for an individual. Interstate 5 (I-5) and State
Route 99 (SR 99) serve as the backbones of regional travel, connecting the cities and
the unincorporated parts of the county to other areas of California.
National, regional, and local transit services are available that provide safe, reliable,
affordable, and environmentally friendly alternatives to driving. In rural parts of
Stanislaus County, where land use patterns are more dispersed, commuting by a mode
other than motor vehicle can be challenging; however, the county features a growing
network of bicycle and pedestrian facilities to encourage increased participation in
active transportation options and the newly consolidated StanRTA Transit services is
providing more streamlined and integrated transit service connecting Stanislaus County
communities.
The 2022 RTP/SCS seeks to enhance multimodal travel opportunities throughout the
County by investing more in countywide transit, bicycle and pedestrian systems while
continuing to make more efficient roadway connections and reduce the number of
vehicle miles spent in congestion. It also identifies opportunities to improve the
performance of modal elements through enhancements to infrastructure and services,
as well as better management of travel and transportation resources that address the
future needs of the regional transportation system. For example, improvements to local
roadways can be accompanied by improvements to, or additions of, bicycle facilities
and sidewalks. In addition, rehabilitation of roadway pavement also improves driving
conditions for motorists, transit riders, and bicyclists. As such, it is important to
understand transportation conditions as a first step. This condition information is used to
assess needs after which improvement strategies are identified to address those needs.
The following sections describe the existing conditions for the regional transportation
system for all transportation modes.

Roadway
Highways and streets are major transportation conduits in Stanislaus County. Roads
serve cars, trucks, buses, cyclists, pedestrians, and provide a means of access to rail
stations, airports, and trails. Roadways within the county are maintained by local
agencies, Caltrans, and other state and federal agencies. Each roadway’s role in the
transportation network is defined by its functional classification as shown in Figure 3.1.
More detailed functional classification maps are provided in Appendix W.
In addition to I-5 and SR 99, the county has several rural roadways, including signed
county highways and major county roadways that are vital for inter- and intra-regional
travel. These roadways move people and goods and connect the cities and

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unincorporated towns of the county; however, there is currently a lack of adequate east-
west connectivity. As such, projects like the SR 132 West and North County Corridor
are included as a critical part in this plan to provide necessary east west connections
and improve regional network circulation. The SR-132 project is StanCOG’s highest
priority regional project. Phase 2 of the SR 132 West project will construct the final 2
lanes of an ultimate four-lane freeway from State Route 99 at Needham Street to
Dakota Avenue. An additional segment of SR 132, from Dakota Avenue to Gates Road,
will extend the State Route 132 West project to the west from Dakota Avenue to Gates
Road\Paradise Road. The North County Corridor, Phase 1 will connect Coffee Rd. to
Claus Rd. The North County Corridor Phase 1 includes the construction of a new four-
lane access-controlled expressway, a new interchange at Roselle Avenue, grade
separated structures over the Burlington Northern Santa Fe rail line, Terminal Avenue,
and the Modesto Irrigation District Main Canal, and new frontage roads to maintain
access to adjacent properties.
This plan leverages Measure L sales tax revenue to increase the County’s portion of
other state and federal funding to include over $4 billion in roadway improvements in the
county over the Plan’s lifespan.
Roadway Maintenance and Pavement Management
Roadway maintenance and pavement management are crucial aspects to the future of
the Stanislaus region’s roadway system. In 2021, the League of California Cities
released the California Statewide Local Streets and Roads Needs Assessment, which
surveyed all 58 counties and 480 cities in California. The study assessed the condition
of local roadway systems and determined the cost to bring local facilities to a Best
Management Practice (BMP) condition within 10 years. The report concluded that the
statewide average pavement condition index (PCI) has improved slightly since the last
survey, but is still in the “at risk” category. Figure 3.2 shows how Pavement Condition in
Stanislaus County has varied over the last several years.
Figure 3.2 – Pavement Condition in Stanislaus County

       Stanislaus County Pavement Condition
 100
  80
  60
  40
  20
   0
       2008      2010     2012   2014      2016     2018   2020

        Failed          Poor     At Risk          Good      PCI

Source: California League of Cities 2020 Roadway Needs Assessment

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The roadway conditions in Stanislaus County have been improving over the last
decade, but similar to statewide averages, its pavement quality index is in the “at risk”
category.
Stanislaus County and its cities’ pavement needs are estimated at $1.6 billion (or nearly
2.1 percent of the state’s total), which is higher than Stanislaus County’s percentage of
statewide roadway miles (1.9 percent), but a smaller proportion than in the 2018 study
(2.6%). Additional information from StanCOG’s 2022 Pavement Management Program
is discussed further in Chapter 6 – System Preservation.

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Figure 3.1 - Roadway Functional Classifications

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Active Transportation
The 2022 RTP/SCS commits significant investment to the bicycle and pedestrian
network for Stanislaus County. Availability of viable alternative and active transportation
options, including bicycle and pedestrian options, is integral to achieving a successful
regional transportation network in Stanislaus County. Transportation improvements that
encourage biking and walking help to meet emissions reduction standards by reducing
the number of motor vehicle trips and vehicle miles traveled, resulting in reduced
congestion and improved air quality, health, and quality of life. In addition, Stanislaus
County is classified by the Federal government as a non- attainment area for ozone and
particulate matter (PM2.5) pollutants. As such, the region is actively pursuing alternative
transportation projects designed to reduce traffic congestion and improve air quality.
Active transportation has important environmental, health and economic benefits. This
combined with other programs such as StanCOG’s transportation demand management
(TDM) program, called “Dibs”, is making it easier for residents of Stanislaus County to
travel locally and to adjacent counties by maximizing their travel choices and improving
travel reliability. The Dibs program works directly with commuters, employers, member
agencies, and community organizations to promote smart travel options such as
carpooling, vanpooling, transit, biking and walking. Program elements include a
comprehensive on-line trip planning tool, community outreach and presentations,
vanpool subsidies, an Emergency Ride Home (ERH) program, San Joaquin Valley Air
Pollution Control District Rule 9410 implementation assistance, and coordination of
employer and community events such as Dibs bike to work month activities.
Stanislaus County’s alternative transportation network consists of trails and on-street
bicycle routes. Most major streets have sidewalks and local agencies have developed,
or are developing, active transportation plans to identify and close gaps in the active
transportation network. There are many challenges to active transportation in Stanislaus
County including:
•   Historical reliance on automobiles
•   The high proportion of rural and small communities that contributes to long trip
    distances
•   Safety challenges related to roadway speeds and limited bicycle and pedestrian
    infrastructure
•   Poor driver understanding of pedestrian and bicycle right-of-way rules
•   Pedestrian and cyclist compliance with road rules and safe crossing procedures
•   Hot weather during the summer season with limited shade and refuge opportunities
•   Disconnected recreational facilities.
In 2021, StanCOG completed an update of its non-motorized transportation
plan. StanCOG’s 2021 Non-Motorized Transportation Master Plan was
developed in consultation with key stakeholders and members of the
community, including underrepresented/disadvantaged communities, to obtain
input on current transportation challenges. As part of this effort, StanCOG staff

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collaborated with the Stanislaus region’s nine cities and Stanislaus County,
community-based organizations, and advocacy groups to ensure that the 2021
Non-Motorized Transportation Master Plan fits within the context of each
community and addresses the unique needs of the region. StanCOG's Non-
Motorized Transportation Plan recommended a total of 224 bikeway projects
and 1,215 pedestrian projects. The 2022 RTP/SCS includes bike and
pedestrian projects identified by its local member agencies as well as 127
additional projects developed as part of the Non-Motorized Transportation
Master update.

The proposed bicycle and pedestrian improvements presented in the 2022 RTP/SCS
project include over $640 million in investment to support bike and walking in the
StanCOG region. With further accommodations for bicyclists and pedestrians, biking
and walking will become a more viable option in a region that enjoys many months of
mild weather and beautiful scenery.

Transit
In 2021, with the support of StanCOG, the Stanislaus Regional Transit Authority
(StanRTA), a joint powers agency, was created to consolidate all countywide transit
service with the exception of those operated by the City of Turlock. The services
previously provided by Stanislaus County START, Modesto MAX, and Ceres CAT are
now provided by StanRTA. In addition to allowing for easier collaboration, this reduces
the management costs associated with transit delivery, allowing more resources to be
spent on the direct provision of services.
Reliable and convenient public and private transit services are key considerations of the
Stanislaus region’s overall transportation system. A clean and safe transit system
directly benefits those who are dependent on transit due to lack of access to a vehicle,
and those who choose to use transit as a more cost effective and hassle-free alternative
to driving. Efficient transit service can serve as a viable option for commuting for many
workers in the region both through local circulation services in Stanislaus County
communities and regional connections to adjacent counties, Sacramento, and the Bay
area. Transit service also provides much needed mobility options for individuals who do
not own or choose not to use a vehicle, including the elderly, disabled populations, and
persons of limited means. According to the most recent 2020 American Community
Survey (ACS), approximately 0.8 percent of Stanislaus commuters use transit. In
Modesto where the most transit options are available, over 1.0% commute by transit.
The COVID-19 pandemic has and continues to impact transit ridership, particularly in
instances where riders have access to a personal vehicle.
Paratransit and Non-Fixed Route Services
Currently, StanRTA offers complementary dial-a-ride services for qualifying seniors and
residents with disabilities allowing them to move around more freely than they could
with privately offered transportation options. Medivan, a paratransit service, connects

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Stanislaus County residents with medical facilities in the Bay Area. Also, implemented
by StanCOG in 2009, the Stanislaus region’s Consolidated Transportation Services
Agency (CTSA), now referred to as MOVE Stanislaus, administers transportation
programs that provide transportation services for transit-dependent individuals who are
unable to use public transit due to physical or cognitive disabilities. MOVE links both
public transit and private social service agency services together to address service
gaps that public transit may not be able to address. MOVE’s Mobility Training and
BRIDGES Volunteer Driver programs provide opportunities for elderly and disabled
individuals to learn how to use the public bus system, or, if they cannot use public
transit, use a volunteer driver program that can provide transportation for their daily
activities (e.g., medical appointments, grocery shopping, etc.). In addition, MOVE
operates a Veterans Van Program called VetsVan, which recruits and trains volunteer
drivers to provide rides to homebound Veterans and other disabled Veterans who are
unable to ride the Veterans Affairs Shuttle to their medical appointments. MOVE also
operates a Stanislaus Eligibility Center which conducts in-person assessments for
evaluating applicant's ADA eligibility for using paratransit service. The services provided
by MOVE in cooperation with other social service agencies are vital for ensuring that all
residents have access to transportation options to meet their daily needs.
In addition to these transit services, other mobility services available to Stanislaus
County residents include Dibs and CalVans. Dibs, StanCOG’s Transportation Demand
Management Program, provides a trip planning tool and transportation option
information, including carpooling, vanpooling, riding transit, biking, and walking, to
maximize travel choices and improve travel reliability in the region, improving air quality,
and reducing VMT and traffic congestion. In 2021, StanCOG increased its
Transportation Demand Management vanpool subsidy from $150 to $250 to promote
greater use of vanpools. Vanpools that originate in or are destined for Stanislaus
County receive a subsidy of $250 per vanpool per month. StanCOG provides riders with
this monthly subsidy to help offset the cost of leasing vans, incentivize the use of the
vanpool program, and reduce greenhouse gas (GHG) emissions. Vanpool use has
increased significantly going from 31 Vanpools in FY 19/20 to 143 Vanpools in FY
21/22.
CalVans is a program offered by the California Vanpool Authority that provides van-
share options for qualified California residents. CalVans allows individuals to use
available vehicles for their personal or commute needs. CalVans has grown to include
more than 200 vanpools tailored to meet the needs of commuters, plus nearly 150 vans
especially designed for farm workers.
Interregional Transit Services
Several transit operators provide interregional services to neighboring counties and
regions. For example, The S commuter express service operated by StanRTA provides
a connection from Modesto to the Lathrop/Manteca Altamont Corridor Express (ACE)
train and the Pleasanton/Dublin Bay Area Rapid Transit (BART) stations, as well as to
the Modesto Amtrak station. StanRTA’s Commuter route to BART provides service

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between Turlock, Patterson, and Dublin. Other interregional services provided by
outside transit agencies include the City of Escalon’s eTrans, the City of Ripon’s
Blossom Express, and Merced County’s THE BUS. Both Amtrak and the ACE also
provide interregional rail service to the County, connecting the Stanislaus region to the
Bay Area for commuter service as well as to the state and national passenger rail
network operated by Amtrak. The San Joaquin Regional Rail Commission (SJRRC)
currently plans to extend ACE from its current terminus in Lathrop to Ceres (Phase I)
and Merced (Phase II), with several additional stations also planned in Stanislaus and
Merced Counties. Greyhound provides northbound and southbound daily bus trips
throughout the state with stations in Modesto and Turlock.

Rail
Altamont Corridor Express (ACE) Expansion
The SJRRC is the owner, operator, and policy-making body for the ACE that connects
northern San Joaquin County, the Tri-Valley (Pleasanton, Livermore, Dublin), and the
Silicon Valley with daily train service from Stockton to San Jose.
The SJRRC has approved a project to expand ACE service to enhance commuter and
intercity rail service and to promote greater transit connectivity between the San
Joaquin Valley, the San Francisco Bay Area, and Sacramento. SJRRC is working on a
phased improvement plan (known as ACE-forward) for service expansion, station
enhancements and track improvements that will extend ACE service to the cities of
Manteca, Modesto, Ceres, Turlock and Merced (see Figure 3.2).

The first phase of the project will be an extension of ACE service to the cities of
Modesto and Ceres. The 2022 RTP/SCS has nearly $1.9 billion in funding allocated to
ACE improvements.
ACE expansion is anticipated to improve connectivity with other modes, increase transit
ridership, reduce congestion, improve air quality (by reducing GHG emissions through
the replacement of 300 million vehicle miles traveled per year), and further regional land
use/transportation planning goals under SB 375. It will support walkable communities
and the revitalization of core urban areas within Stanislaus County. StanCOG is

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partnered with the City of Modesto to renovate the Downtown Modesto Multimodal
Transportation Station and with the City of Turlock to construct a multimodal station
there.
Valley Rail Project
The Valley Rail Project is a joint proposal by the San Joaquin Joint Powers Authority
(SJJPA) and the SJRRC to improve passenger rail service to the Sacramento region
using both the Amtrak San Joaquins and ACE service. StanCOG is one of the 10
Member Agencies that make up the SJJPA. The SJRRC is the managing agency for the
SJJPA.
The Ceres extension of the Valley Rail project is in the final engineering phase and will
implement track improvements on the existing Union Pacific Railroad Sacramento
Subdivision freight corridor that runs just east of Interstate 5 so that it can be used for
passenger service and build new shared San Joaquins and ACE stations in Lodi, Elk
Grove, Sacramento City College, Sacramento Midtown, Old North Sacramento, and
Natomas, with a shuttle connection to the Sacramento International Airport. New
stations will also be constructed along the ACE and San Joaquins routes. Along the
ACE route, the new stations will be constructed in the cities of Ceres, Modesto, Ripon,
Manteca, and North Lathrop (see Figure 3.3). In addition, Valley Rail will help convert
the entire fleet, including the thruway bus network, to renewable diesel fuel, providing
GHG benefits across the entire existing 449 track miles and proposed expanded San
Joaquins and ACE services which include an additional 119 track miles.

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Figure 3.2: Ace Extension Project Map– Lathrop to Ceres to Merced

Valley Rail plans to begin a new service between Ceres and Sacramento in 2023. Four
trains leaving from Ceres are included in the proposal, with three heading to
Sacramento (with a transfer to San Jose in Lathrop) and one direct route to San Jose.
Interim electric feeder bus service are planned to connect to Ceres from Merced. Valley
Rail also plans to add two new San Joaquins round-trips between Fresno and
Sacramento on top of the two round-trips currently available. Rail service between
Stockton and Sacramento is planned to consist of nine round-trips across all available
routes and service providers, including one Sacramento to Stockton only round trip
(which connects to a San Joaquins train between Oakland and Bakersfield).

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Figure 3.3: Valley Rail Project Map

Source: the San Joaquin Regional Rail Commission, November 2021

Source: the San Joaquin Regional Rail Commission, November 2021

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Amtrak San Joaquins Expansion
Amtrak provides the San Joaquins rail service
between Bakersfield and Sacramento. The Valley
Rail project is upgrading and adjusting the alignment
of the San Joaquins route to take advantage of the
new rail line being constructed for the ACE line. The
environmental review process has been completed
and this project is currently in the final engineering
phase.

Aviation
Airports are classified into two broad categories, commercial airports and general
aviation airports. The Stanislaus County region has one commercial and two general
aviation airports. The Modesto City-County Airport is classified as a commercial airport,
while both the Oakdale Airport and the Turlock Municipal Airport are classified as
general aviation airports. The Oakdale and Turlock Municipal Airports are primarily used
for private aviation. Table 3.1 shows daily operations by trip purpose for the commercial
and general airports in the StanCOG region.
There are also six privately owned airports in the County: Crows Landing (Crows
Landing), Flying Bull (Modesto), Mapes Ranch (Modesto), Peterson (Riverbank),
Emanuel Medical Center (Turlock), and Valley Crop Dusters, Inc. (Westley). The
location of each airport is shown in Figure 3.4.
The 2022 RTP/SCS includes projects to enhance and maintain the Modesto City-
County Airport, the Oakdale Municipal Airport, the Turlock Municipal Airport and Crows
Landing.
Table 3.1: Airport Statistics (2019)
 Airport        Daily           Local         Transient     Air Taxi       Military
                Operations      General       General
                                Aviation      Aviation
 Modesto      122               26%           52%           21%

Figure 3.4 - Stanislaus County Airports

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