San Joaquin County Measure K: What It Is, How It Works, and What It Means for Lodi
San Joaquin County Measure K: What It Is, How It Works, and What It Means for Lodi
LodiEye — May 2026
Summary
Measure K is San Joaquin County's dedicated half-cent (0.5%) transportation sales tax, first approved by voters in November 1990 and renewed for a 30-year extension through March 2041 when nearly 78% of county voters approved the renewal in November 2006. Every taxable retail purchase made in Lodi contributes a half-penny per dollar to this fund, which is distributed to local street repair, highway improvements, public transit (including GrapeLine), bicycle and pedestrian infrastructure, and railroad crossing safety. Over the 30-year renewal period, Measure K is projected to generate approximately $2.64 billion in transportation investment for San Joaquin County.
For Lodi specifically, Measure K is the single most important non-federal source of transportation funding. It directly pays for GrapeLine bus service, annual street repaving, the SR 99/Turner Road interchange reconstruction, active transportation trails, and a pipeline of planned highway, arterial, and bike/pedestrian projects. This report explains the program's origins, funding mechanics, expenditure categories, administration, oversight, and Lodi-specific project history and pipeline.
Origins and Legal Framework
The Original 1990 Measure
Measure K was placed on the November 1990 ballot by the San Joaquin County Transportation Authority (SJCTA) as the county's first dedicated local transportation sales tax. The original 20-year program generated approximately $637 million in transportation investment between 1990 and 2011, delivering interchange improvements, arterial widenings, and transit expansion across the county.
The 2006 Renewal
Recognizing the program's success and the region's continued transportation needs, the SJCTA placed a 30-year renewal before voters in November 2006. The measure passed with approximately 78% approval — far exceeding the two-thirds supermajority required under California Public Utilities Code. The renewal, officially titled Measure K Renewal – San Joaquin County Local Transportation Improvement Plan: Traffic Relief, Safety, Transit, and Road Maintenance Program (Ordinance #06-01), took effect April 1, 2011 and runs through March 31, 2041.
Legal Structure
The tax is a retail transactions and use tax on the sale of tangible personal property, administered statewide by the California Department of Tax and Fee Administration on behalf of the SJCTA. Grocery staples, prescription drugs, and certain medical devices are exempt under California law. Administrative costs are capped at no more than 1% of annual revenues in the Ordinance, ensuring the vast majority of every dollar goes directly to transportation.
How Measure K Is Funded
Each year, Measure K collects a half-cent on every taxable retail dollar spent anywhere in San Joaquin County — including every Lodi purchase. Revenue has grown substantially as the county's population and economy have expanded.
Measure K Countywide Annual Revenue (FY 2021–24)
Source: SJCOG annual reports and budget adoption news releases.
FY 2023-24 revenue of approximately $80.2 million represented the largest single-year infusion in program history. To accelerate project delivery, SJCTA is authorized to issue bonds secured by future Measure K revenues, capped at 35% of net sales over the 30-year program. This bonding mechanism has been used to move large capital projects forward ahead of gradual revenue accumulation.
The Expenditure Plan — Where the Money Goes
The Measure K Renewal Expenditure Plan divides net revenues among four fixed categories, codified in the 2006 Ordinance and legally binding on SJCOG.
Measure K Renewal Expenditure Plan Allocations
Source: SJCOG 2022 Measure K Renewal Ordinance and Expenditure Plan.
| Category | Share | 30-Year Estimated Funding |
|---|---|---|
| Local Street Repair & Roadway Safety | 35% | ~$883 million |
| Congestion Relief (Highways & Regional Arteries) | 32.5% | ~$820 million |
| Passenger Rail, Bus, Bike & Pedestrian | 30% | ~$756 million |
| Railroad Crossing Safety | 2.5% | ~$63 million |
Local Street Repair (35%)
This is the largest category and the one most visible to Lodi residents in daily life. It covers pothole repair, street resurfacing, curb and gutter improvements, sidewalk upgrades, median barriers, fog reflectors, and Safe Routes to School infrastructure. Funds are allocated among cities using a population-based formula, with San Joaquin County (unincorporated areas) receiving a minimum 40% of the total pool. To qualify for these funds, Lodi must annually demonstrate Maintenance of Effort (MOE) — proving that City General Fund spending on roads has not been reduced to substitute Measure K dollars. Failure results in a dollar-for-dollar reduction in the following year's allocation.
Congestion Relief (32.5%)
This category funds highway interchange widening and reconstruction (60% of the 32.5%) as well as regional arterial improvements (40%). Highway projects are large, expensive, and take years to plan, fund, and build — but when Lodi secures one, the investment is transformational. The SR 99/Turner Road Interchange reconstruction, completed in December 2023, is the defining example of Congestion Relief dollars flowing to Lodi.
Passenger Rail, Bus, Bike & Pedestrian (30%)
Within this 30% category, funding is further subdivided: approximately 49% for bus transit, 39% for rail, 5% for bus rapid transit, and 7% for bicycle and pedestrian projects. This is the funding source for Lodi's GrapeLine bus system — fixed routes, Saturday service, restored Sunday routes, and ADA VineLine Dial-A-Ride operations. Countywide bus and rail investment from this category reached approximately $19 million in FY 2023-24 and $18 million in FY 2024-25.
Railroad Crossing Safety (2.5%)
The smallest category funds at-grade crossing improvements and grade separations. For Lodi, the long-planned Harney Lane Grade Separation has been a priority project in this category, though full capital funding remains constrained until after 2030 due to state funding availability.
Smart Growth Incentive Fund
The Expenditure Plan also includes a Smart Growth Incentive Fund with a guaranteed minimum of $65 million over the 30-year program. This competitive fund supports transit-oriented development, walkable community infrastructure, and downtown improvements. Lodi is eligible to compete for these funds through SJCOG's Call for Projects process, which most recently awarded ATP Cycle 7 funds in February 2025.
Who Administers Measure K
SJCOG as the Lead Authority
Measure K is administered by the San Joaquin Council of Governments (SJCOG), the regional joint powers authority serving as the Local Transportation Authority for San Joaquin County. SJCOG acts as fiduciary and programming agency: allocating funds, executing cooperative agreements with each member jurisdiction, monitoring compliance, approving project programming, and overseeing delivery.
SJCOG's Board of Directors governs all Measure K decisions by majority vote. Board members include elected officials from each of the seven cities (Lodi, Stockton, Tracy, Manteca, Ripon, Escalon, Lathrop) and San Joaquin County supervisors. Major decisions — including amendments to the Expenditure Plan — require a two-thirds Board supermajority and a 45-day override window during which any group of cities representing a majority of the incorporated population can challenge an amendment.
Lodi's Voice on the Board
The City of Lodi's seat on the SJCOG Board is held by a City Council representative. The most prominent Lodi advocate in recent years has been Councilmember and former Mayor Doug Kuehne, who has served on the SJCOG Board since his first election in November 2014. Kuehne served as SJCOG Board Chair during the critical engineering and funding phase for the SR 99/Turner Road Interchange, and publicly leveraged his board position to secure state funding on top of Measure K dollars.
"The City of Lodi was able to start engineering work for the Route 99/Turner interchange and Measure K leveraged additional state funding. Helping communities is possible through Measure K." — Doug Kuehne, SJCOG Board Chair
Kuehne also used his dual role as City Council member and SJCOG Board member to champion the Lodi Greenline bicycle trail feasibility study, describing the project publicly as "a beautification project taking an unused rail spur and making it into something beautiful and inviting."
City-Level Administration
Within Lodi, the Public Works Department executes Measure K cooperative agreements with SJCOG, manages project delivery, and ensures MOE compliance. The Finance Department maintains a dedicated, separate Transportation Tax Fund for Measure K receipts — as required by the Ordinance — with distinct sub-accounts for Local Street Repair and Bicycle/Pedestrian funds. At the regional level, Lodi's Public Works Director and planning staff participate in SJCOG's Technical Advisory Committee (TAC), which reviews project decisions before they reach the full Board.
Oversight and Accountability
Measure K includes multiple, layered accountability mechanisms codified directly in the Ordinance.
Independent Annual Audit
SJCOG is required to commission an independent financial audit each year verifying compliance with the Ordinance and Expenditure Plan. These audits are public. Additionally, each city — including Lodi — undergoes a separate Maintenance of Effort audit annually; failure results in a proportional reduction in the following year's local street allocation.
Citizens Advisory Committee (CAC)
Established in 1991, one year after the original passage, the CAC provides formal public input on Measure K programming. It consists of 16 members including one appointee from each member jurisdiction (Lodi among them), plus representatives from the League of Women Voters, Sierra Club, business, trucking, agriculture, the NAACP, and University of the Pacific. Meetings are held the third Wednesday of every month at 6 p.m. and are open to the public.
Technical and Management Committees
- Technical Advisory Committee: Public works directors and planning heads (including Lodi's) review technical project decisions.
- Management and Financial Advisory Committee: City managers, the county administrator, and transit district leadership guide financial and administrative oversight.
- Project Delivery Committee: Addresses policy and procedural issues affecting project management across jurisdictions.
Annual Report and Public Signage
SJCOG must publish an annual Moving the Region report within 180 days of fiscal year-end, identifying all actions taken toward the Expenditure Plan — broken down by category and jurisdiction. Additionally, every Measure K-funded project or program exceeding $250,000 must be labeled with signage identifying it as Measure K-funded during construction or implementation, so residents can see exactly where their sales tax dollars are being spent.
Measure K in Lodi: Completed Projects
SR 99/Turner Road Interchange Improvement (2022–2023)
The signature Lodi Measure K project of the current 30-year program period, completed December 14, 2023.
| Detail | Value |
|---|---|
| Total project cost | $11.2 million |
| Groundbreaking | November 2022 |
| Completion | December 14, 2023 |
| SB 1 funds included | $4.7 million |
| Funding blend | Measure K, Local Partnership Program, Highway Improvement Program, STIP, SB 1 |
The project built a new roundabout at South Cherokee Lane, lengthened the SR 99 southbound off-ramp, added a new traffic signal at Pioneer/Cherokee, installed overhead and in-pavement lighting, and added bike lanes and sidewalks. Critically, the redesign redirected diverted traffic away from a residential neighborhood near Reynolds Elementary School — a key community safety objective.
Local Street Repair — FY 2020/21 Audited Actuals
Lodi's Measure K non-transit financial statements show the city's formula-based annual receipts and fund balance.
| Fund | FY 2021 Actual | FY 2020 Actual |
|---|---|---|
| Local Street Repair revenue received | $1,423,214 | $1,184,685 |
| Pedestrian & Bicycle revenue received | $800,105 | $8,264 |
| Restricted fund balance (street/road) | $3,334,327 | $3,262,266 |
These funds were applied to mill-and-overlay repaving, crackfill and sealcoat programs, and reconstruction of specific corridors including Gay Street, Sauk Street, and Fair Street infrastructure improvements.
Harney Lane Grade Separation — Right-of-Way Acquisition (2015)
In February 2015, the City Council accepted a Measure K Renewal allocation of $829,782 toward right-of-way acquisitions for a Harney Lane Grade Separation project. Separating rail from road at-grade crossings on Harney Lane has been a long-standing Lodi priority, though full capital funding remains constrained until after 2030.
Lodi GrapeLine Transit Operations
Measure K has been funding GrapeLine operations continuously since the original 1990 measure. Sunday fixed-route service was restored in January 2024 with direct Measure K support, running four routes from 7:30 a.m. to 3:30 p.m.
Lodi GrapeLine Fixed-Route Ridership (FY 2023–25)
Source: SJCOG Local Transit annual performance data.
Ridership grew from 186,184 fixed-route riders in FY 2023-24 to 207,951 in FY 2024-25 — an 11.7% year-over-year increase, attributable in part to the restored Sunday service. ADA VineLine Dial-A-Ride carried an additional 16,808 riders in FY 2024-25.
Measure K in Lodi: Active and Planned Projects
Active (FY 2024-25 and FY 2025-26)
- Lodi Citywide Bicycle and Pedestrian Enhancement Project, Phase 1A: Active FY 2024-25 Measure K Bicycle and Pedestrian project drawing from the ~$3.5 million countywide active transportation pool.
- Ham/Turner Signal Improvements: Included in Lodi's FY 2025-26 $16.9 million capital infrastructure budget, adopted June 4, 2025. Signalization at one of Lodi's busiest arterial intersections.
- Transit Facility Repairs and Upgrades: GrapeLine operations and maintenance facility improvements, included in the FY 2025-26 capital package.
- GrapeLine Operations: Ongoing Measure K operating support for weekday, Saturday, Sunday, and Dial-A-Ride service.
Planned and Pipeline Projects
Ham Lane Widening (2024–2030): SJCOG's Project Appendix identifies the widening of Ham Lane from Lodi Avenue to Elm Street from 2/3 lanes to 4 lanes, at an estimated cost of $16,164,463. Measure K Congestion Relief and Regional Arterial funds are the primary expected funding source.
SR 99/Harney Lane Interchange Reconstruction: A future full interchange reconstruction providing 6 through lanes on SR 99 and 4 lanes on Harney with modified on-ramps. Long-horizon Congestion Relief project contingent on SJCOG programming priorities.
Lodi Greenline Trail: Feasibility study complete. Construction funding would involve a future Measure K Bicycle/Pedestrian formula claim or competitive ATP grant application. Multi-use trail along an unused Union Pacific rail spur connecting Lodi to Woodbridge.
FY 2026–35 Capital Improvements Plan: The City Council held a work session on March 19, 2026 to review the 10-year CIP — the framework within which Lodi programs Measure K-eligible projects year by year.
Measure K vs. Lodi's Measure L
Lodi has its own separate city-level sales tax measure — Measure L — which is a general-purpose retail transactions and use tax administered by the City of Lodi, with its own Citizens' Oversight Committee that meets three times per year. Residents sometimes conflate the two; they are entirely separate instruments.
| Feature | Measure K | Measure L |
|---|---|---|
| Geographic scope | Countywide (all of San Joaquin County) | City of Lodi only |
| Administering agency | SJCOG | City of Lodi City Council |
| Purpose | Transportation only (restricted by Ordinance) | General purpose — any city priority |
| Rate | 0.5 cents (half-cent) | Separate rate set by City |
| Oversight | CAC + independent audit + SJCTA Board | City Citizens' Oversight Committee |
| Renewal cycle | 30 years (2011–2041) | Set by city ballot measure |
Both measures are embedded in Lodi's total combined sales tax rate of 8.25%. When a Lodi resident buys a $50 item, both Measure K and Measure L contribute fractions of the total tax collected — but they flow to entirely different accounts managed by different agencies for different purposes.
Strategic Significance for Lodi
The Leverage Effect
Measure K's most powerful civic function may be its ability to attract matching state and federal funding. When Lodi can show committed Measure K dollars on a project, the city becomes eligible for — and competitive in — STIP, SB 1, Highway Improvement Program, and Active Transportation Program grant competitions. The Turner Road interchange's $11.2M total investment was only possible because Measure K provided the local match that unlocked state dollars. Each Measure K dollar committed can attract multiples in outside funding for major capital projects.
Fiscal Pressure Warning
The FY 2026-27 operating budget has revealed structural fiscal pressure in Lodi city government — 37 deferred General Fund positions, a $1.5 million cut to fire vehicle replacement, and $2.8 million in department-wide reductions. This matters for Measure K because Maintenance of Effort compliance depends on the city maintaining its historical General Fund baseline spending on transportation. If General Fund street spending is cut to bridge a budget deficit, Lodi risks a dollar-for-dollar reduction in its Measure K local street allocation the following year — creating a potential feedback loop in which budget cuts reduce future Measure K receipts, worsening the infrastructure maintenance backlog.
Post-2041 Planning
SJCOG has begun work on a 2025 Measure K Strategic Plan and early outreach for a potential post-2041 Measure K renewal. The current program expires March 31, 2041 — only 15 years away — and a ballot measure renewal would require voter approval and significant lead time. SJCOG's forward planning activities are directly relevant to Lodi's long-term transportation investment horizon. A failed renewal would eliminate Lodi's most significant dedicated transportation revenue source, with cascading effects on GrapeLine service, street repair, and the leveraged federal/state funding pipeline.
Key Facts at a Glance
| Topic | Data Point |
|---|---|
| Tax rate | 0.5 cents per dollar of retail sales |
| Original approval | November 1990 |
| Renewal approval | November 2006, ~78% yes vote |
| Current program dates | April 1, 2011 – March 31, 2041 |
| Administering agency | San Joaquin Council of Governments (SJCOG) |
| FY 2023-24 countywide revenue | ~$80.2 million (record high) |
| 30-year projected total | $2.64 billion |
| Lodi LSR annual allocation (FY 2021) | $1,423,214 |
| Turner Road interchange cost | $11.2 million (completed Dec. 2023) |
| GrapeLine ridership FY 2024-25 | 207,951 fixed-route riders |
| Lodi SJCOG Board voice | Councilmember Doug Kuehne (former Board Chair) |
| Public oversight body | Citizens Advisory Committee (16 members, monthly meetings) |
LodiEye is the investigative research arm of Lodi411.com, a citizen-run civic data and transparency platform serving Lodi, California and San Joaquin County. LodiEye is not a traditional news outlet. It does not employ professional journalists or reporters, and the people behind it do not hold journalism degrees or have professional newsroom experience. LodiEye is best understood as civic research and analysis — not peer journalism — and is not a substitute for the local and regional news organizations that do this work professionally. For traditional reporting on Lodi, San Joaquin County, and the broader region, readers are encouraged to consult the Lodi News-Sentinel, Stocktonia, The Sacramento Bee, CalMatters, and other established news outlets staffed by credentialed journalists.
This LodiEye civic research report was produced using artificial intelligence tools under the direction and review of the founder. Lodi411 uses multiple AI platforms in its research and publication workflow, including Anthropic's Claude (primarily Opus and Sonnet models) and Perplexity AI across a variety of large language models offered by each. These tools were used in the following capacities:
Source Discovery: AI-assisted search and retrieval identified more than 100 primary and secondary sources across SJCOG official documents (ordinance, expenditure plan, annual reports, strategic plans), City of Lodi budget adoptions and Council records, Caltrans project pages, San Joaquin County election archives, and regional news coverage. Perplexity AI was used for initial source discovery and real-time data retrieval; Claude was used for deeper analysis of identified SJCOG and City of Lodi documents.
Credibility Validation: AI cross-referenced claims across multiple independent sources, prioritizing SJCOG primary documents, City of Lodi official records, Caltrans project pages, and established news reporting. Multiple AI models independently verified key data points — revenue figures, allocation percentages, project costs, and ridership numbers — and flagged inconsistencies between preliminary and audited figures.
Analysis and Synthesis: Claude Opus and Sonnet assisted in reconstructing the historical arc of Measure K from 1990 through the 2006 renewal to current operations, mapping the expenditure plan's four-category structure to Lodi-specific projects, and developing the Measure K vs. Measure L comparison framework for reader clarity. The Maintenance of Effort feedback-loop analysis was developed collaboratively.
Presentation: Claude assisted in drafting, structuring, and formatting the report for clarity and readability, including the Kendo UI data visualizations (revenue trend, allocation breakdown, GrapeLine ridership), the case-study treatment of the Turner Road interchange, and the Key Facts at a Glance reference table.
Final Review: Multiple AI models reviewed the completed draft for factual consistency, source attribution accuracy, logical coherence, and balanced presentation. Multi-tool cross-checking is the primary error-reduction mechanism in this workflow.
Lodi411/LodiEye believes transparency about AI use serves both readers and the broader information ecosystem. Readers who spot errors are encouraged to write editor@lodi411.com so corrections can be made.
References
- SJCOG — About Measure K
- SJCOG — 2022 Measure K Renewal Ordinance and Expenditure Plan (PDF)
- SJCOG — 2025 Measure K Strategic Plan (PDF)
- SJCOG — Moving the Region Annual Reports
- SJCOG — Local Transit Program (GrapeLine data)
- SJCOG — Congestion Relief Program
- SJCOG — Bicycle and Pedestrian Program
- SJCOG — Citizens Advisory Committee
- SJCOG — Board of Directors
- SJCOG — Lodi Greenline Feasibility Study
- SJCOG — City of Lodi TDA and Measure K Non-Transit Financial Statements (PDF)
- City of Lodi — FY 2025-2026 Balanced Budget
- City of Lodi — 2024-2025 Annual Budget
- City of Lodi — Councilmember Doug Kuehne
- City of Lodi — Measure L Citizens' Oversight Committee
- City of Lodi — SR 99/Turner Road Groundbreaking
- Local News Matters — Caltrans and Lodi Celebrate SR 99/Turner Road Completion
- Caltrans — SR 99/Turner Road Project Page
- League of Women Voters — 2006 Measure K Renewal
- CDTFA — California City and County Sales and Use Tax Rates
- Corrections or questions: editor@lodi411.com