This paper proposes a scenario based, multi-stakeholder, adaptive pathway approach, with an application for city logistics policies in 2025. The context of our application is the problem of limited sustainability of current freight transport practices in cities towards the long term future. We develop a multi-stakeholder roadmapping approach for this problem, that can deal with contextual uncertainties, framed in scenarios of the future. With this approach, problems identified by stakeholders can be translated into effective policies. The different perspectives of stakeholders and the time sensitivity and interdependence of their actions are accounted for explicitly in this approach. The roadmap includes a graphical representation that can be used for communication and policy design purposes.