2.1 Planning Framework
While the UPWP covers only the activities to be undertaken during the time period covered by the UPWP, the basis of the work program is grounded in the requirements of the metropolitan transportation planning process. The six primary requirements of the metropolitan transportation planning process are:
- Develop and maintain the Unified Planning Work Program (UPWP).
- Develop and maintain the Regional Long Range Transportation Plan (LRTP).
- Develop and maintain the Transportation Improvement Program (TIP).
- Develop and maintain the Congestion Management Process (CMP).
- Coordinate the development of the LRTP with the State’s air quality State Implementation Plan (SIP).
- Involve the public in the transportation decision-making process.
Development of the LRTP has several components under it that can be completed on an as need basis, including but not limited to:
- Regional Active Transportation Plan (Pedestrian and Bicycle Plan)
- Transit Plan (in coordination with MMT)
- Specialized Human Services Plan (in coordination with MMT)
- Congestion Management Process
- Regional Freight Study
The next LRTP is scheduled to be completed in January 2025. The above listed activities are anticipate to be completed in the scope of this UPWP.
2.2 Federal Planning Requirements
2.2.1 Infrastructure Improvement and Jobs Act
The Infrastructure Improvement and Jobs Act (IIJA) became law on November 15, 2021. IIJA continues to promote an efficient and effective Federal surface transportation program by focusing on transportation issues of national significance, while giving regional transportation decision-makers flexibility for solving transportation problems in their communities. Under IIJA, metropolitan and statewide transportation planning processes are continued. While there are several MPO related changes included in the IIJA, below are a couple that are highlighted as they may be addressed in the coming year(s).
Metro planning (Sec. 11201)
- In developing the plan, MPOs may use social media and other web-based tools to drive public participation
- Housing – the bill includes several policy changes to better coordinate transportation planning with housing, including as a planning factor in the scope of planning, as part of optional scenario planning. For TMAs, the transportation planning process may address the integration of housing, transportation, and economic development strategies and may develop a housing coordination plan that includes projects and strategies that may be considered in the metropolitan transportation plan of the metropolitan planning organization
Increasing Safe and Accessible Transportation Options (Sec. 11206)
- MPOs are required to use 2.5% of their PL funds to carry out activities to increase safe and accessible options for multiple travel modes for people of all ages and abilities, including adoption of Complete Street Standards or policies, development of a Complete Streets prioritization plan, and other planning documents that achieve these goals.
- A 100% federal share has been approved for this effort, meaning a non-federal match is not required.
- States and MPOs may opt out of the requirement if they can demonstrate, not later than 30 days after the Secretary apportions funds, that a State or MPO has Complete Streets standards and policies in place and has developed an up-to-date Complete Streets Prioritization Plan.*
- For more details: https://www.fhwa.dot.gov/planning/spr-pl_match_waiver_memo.pdf
*PPACG plans, in coordination with FHWA, FTA, and CDOT, to use FFY23 PPACG CPG funds to obtain a consultant to develop a Regional Complete Street toolbox of model policies, standards and practices for voluntary use by the PPACG jurisdictions as they deem appropriate. This project may be ongoing during FFY24. PPACG feels that the development of these voluntary model standards and polices is the best context-sensitive solution for compliance of this federal requirement. The PPACG region is diverse in both its urban/rural population densities as well as how each individual jurisdiction implements zoning and land use. A one-size-fits-all approach is not appropriate for the Pikes Peak Region, but the development of voluntary guidance will be a welcome resource for the PPACG jurisdictions that don’t already have their own existing Complete Streets ordinances or policies.
2.2.2 Federal Planning Factors
In addition, the IIJA carried forward the federal planning factors modified in the Fixing America’s Surface Transportation Act. These planning factors are listed below.
- Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity, and efficiency.
- Increase the safety of the transportation system for motorized and non-motorized users.
- Increase the security of the transportation system for motorized and non-motorized users.
- Increase accessibility and mobility of people and freight.
- Protect and enhance the environment, promote energy conservation, improve quality of life, and promote consistency between transportation improvements and State and local planned growth and economic development patterns.
- Enhance the integration and connectivity of the transportation system, across and between modes, for people and freight.
- Promote efficient system management and operation.
- Emphasize the preservation of the existing transportation system.
- Improve transportation system resiliency and reliability of the transportation system and reduce (or mitigate) the stormwater impacts of surface transportation
- Enhance travel and tourism.
The linkages between the UPWP Work Elements and the planning framework are summarized in Figure 6. Work elements in Figure 6 will be defined in greater detail later in this document.
In addition, PPACG will consider the principles adopted by the USDOT as a result of its partnership with the U.S. Department of Housing and Urban Development and the Environmental Protection Agency. These principles are:
- Provide more transportation choices.
- Promote equitable, affordable housing.
- Enhance economic competitiveness.
- Support existing communities.
- Coordinate policies and leverage investments.
- Value communities and neighborhoods.
Figure 6: UPWP Work Elements Consistency with Planning Framework and Law
| Planning Framework | Work Element 610 | Work Element 611 | Work Element 612 | Work Element 613 | Work Element 614 | Work Element 615 | Work Element 616 |
|---|---|---|---|---|---|---|---|
| Requirements of the Metropolitan Transportation Planning Process | |||||||
| Develop and maintain the UPWP | X | ||||||
| Develop and maintain the LRTP | X | X | X | X | X | X | |
| Develop and maintain the TIP | X | X | X | X | X | X | |
| Develop and maintain the CMP | X | X | X | X | X | X | X |
| Coordinate the development of the RTP with the State’s air quality SIP | X | X | X | X | X | X | |
| Involve the public in the transportation decision-making process | X | X | X | X | X | X | X |
| Federal Planning Factors | |||||||
| Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity and efficiency | X | X | X | X | X | X | X |
| Increase the safety of the transportation system for motorized and non-motorized users | X | X | X | X | X | X | X |
| Increase the security of the transportation system for motorized and non-motorized users | X | X | X | X | X | X | |
| Increase accessibility and mobility of people and freight | X | X | X | X | X | X | X |
| Protect and enhance the environment, promote energy conservation, improve quality of life, and promote consistency between transportation improvements and State and local planned growth and economic development patterns | X | X | X | X | X | X | |
| Enhance the integration and connectivity of the transportation system, across and between modes, for people and freight | X | X | X | X | X | X | X |
| Promote efficient system management and operation | X | X | X | X | X | X | X |
| Emphasize the preservation of the existing transportation system | X | X | X | X | X | X | X |
| Improve transportation system resiliency and reliability | X | X | X | X | X | X | X |
| Reduce (or mitigate) the stormwater impacts of surface transportation | X | X | X | X | X | X | |
| Enhance travel and tourism | X | X | X | X | X | X | X |
WE 610 – Program Administration and Coordination
WE 611 – Data Development and Information Management
WE 612 – Transportation Improvement Program
WE 613 – Regional Transportation Planning
WE 614 – Regional Transportation Related Environmental Planning
WE 615 – Regional Specialized Mobility Services
WE 616 – Regional Safety Activities
2.2.3 Federal Planning Emphasis Areas
On December 30, 2021, FTA and FHWA released a joint letter on additional/revised planning emphasis areas (PEAs). As additional guidance is received on these emphasis areas, they will be incorporated in the PPACG planning process as appropriate. The following provides the PEAs and how PPACG will address them
- Transition to Clean Energy, Resilient Future – Planning and programming of the new Carbon Reduction Program federal funding source, as well as the State of Colorado funds created by Senate Bill (SB) 21-260. PPACG will also comply with CDOT greenhouse gas (GHG) rules aimed at reducing GHGs and participate in future electric vehicle (EV) corridor nomination.
- Equity and Justice40 in Transportation Planning – Use of State Multimodal Transportation and Mitigation Options Fund (MMOF) to provide greater travel choices in Disproportionally Impacted Communities. Disproportionally Impacted Communities are also taken into account during the scoring process for LRTP project selection.
- Complete Streets – Develop a Regional Complete Street toolbox of model policies, standards, and practices.
- Virtual Public Involvement – PPACG plans to continue hybrid meetings as well as provide for online comment opportunities for plans and studies.
- Strategic Highway Network (STRAHNET)/Department of Defense (DOD) Coordination – There are several military installations in the Pikes Peak area and PPACG has a Military Planning section, funded through a DOD grant. PPACG will continue to coordinate planning efforts with the region’s military planners. Representatives from the DOD installations in the vicinity are included in PPACG’s committee process. STRAHNET routes are will be discussed as part of the LRTP development.
- Federal Land Management Agency (FLMA) Coordination – PPACG will coordinate with FLMA during development of the 2050 LRTP and future TIPs.
- Planning and Environmental Linkages (PEL) – PPACG member organizations make the determination regarding when to undertake a PEL process; when they decide to do so, PPACG participates in the process and provides assistance when appropriate. For example, PPACG staff currently sit on the technical team for the South Powers Extension PEL being developed by the City of Colorado Springs.
- Data in Transportation Planning – PPACG continues to work with our jurisdictional partners to obtain and utilize good data as budgets and procurement contracts allow. For example, PPACG has recently worked with our local jurisdictions to fulfill their desire to purchase regional traffic volume data to assist with planning and decision making, and these types of efforts will continue in the future.
2.2.4 PPACG Planning Priorities and Challenges
In October 2020, the PPACG Board of Directors adopted an update to the Strategic Plan for the region, which is available online at https://www.ppacg.org/wp-content/uploads/2020/10/Strategic-Plan-2020-Update-1.pdf.
That strategic plan was for the COG boundary (El Paso, Park, and Teller Counties), which is bigger than the MPO boundary, but this plan helps articulate priorities of the Board.
“Strategic Plan Goals
- Develop an effective advocacy voice for common ground issues.
- Become a significant resource for PPACG members to share and collect information with regional partners.
- Provide access, awareness, education, and connectivity so individuals can age wherever they want.
- Develop and maintain a coordinated, validated plan for transportation needs across the PPACG region.”
It is a priority of the region to become more efficient by sharing resources/information and coordinating between jurisdictions to maximize efficiencies. The strategic plan contains the following transportation objectives.
- Objective 1: Ensure coordinated transportation planning among entities within the PPACG MPO and between the MPO and Central Front Range TPR.
- Objective 2: Utilize performance-based measurements to develop regional long-range plan and TIP project priority lists.
- Objective 3: Explore and pursue all funding mechanisms to serve all modes of transportation in the PPACG region.
While the Strategic Plan did not specifically call out the challenges of the region, like most other regions in Colorado the lack of transportation funding is a key issue. Additionally, the PPACG region has some unique challenges with:
- Having the region split into an MPO and TPR creates some challenges in coordinating a seamless transportation network.
- Military coordination and land use
- Air quality and population growth