Performance-Based Approach
Under the IIJA, the transportation planning process must provide for the establishment and use of a performance-based approach to decision making. Performance-based planning applies performance management principles to transportation system policy and investment decisions. It is a system-level, data-driven process that identifies strategies and investments. Using specific performance measures and agreeing upon desired targets provides an objective, quantified basis for policies and investments, and improves accountability in communicating with the public.
States and MPOs must set specific performance targets and develop plans designed to help reach those targets. The intent is to move toward an objectively accountable system that reflects the effectiveness of investment decisions, allowing federal funding recipients to improve decision-making.
System Performance
Performance measures are used to track and maximize the benefits of the transportation planning decisions, meeting national and regional goals, and link infrastructure investments to the LRTP, TIP, and CMP. Federal regulation requires states and MPOs to establish new targets based on updated data typically every four years or during a mid-cycle update. CDOT has recently updated some of their performance measures.
As the region’s designated MPO, PPACG can either adopt targets set by the state DOT, or set regional targets based on data only within its MPO boundary. Recently the targets that have been approved by PPACG committees are those set by the state in the following categories: Pavement Condition, Bridge Condition, System Reliability, and Safety.
Two other target categories, congestion mitigation and traffic congestion, are not required of PPACG because the region is in attainment for air quality, which is discussed in more detail in Chapter 5.
Each performance measure has a corresponding baseline and target. Baselines are important to establish how much progress is being made on a performance target. Baselines are set when the performance measures and targets are first set. The status is the most recent data the PPACG has and is used to evaluate progress on target achievement. The federal performance measure targets are to be achieved by the end of the corresponding performance period. It is important to note that targets are based on trends and data and are not aspirational in nature.
FHWA assesses targets to determine if states either met targets established or made significant progress. For example, a state is determined to have met or made significant progress toward meeting its safety performance targets when at least four out of the five targets are either met or the actual outcome for the target is better than the baseline performance, which is the 5-year rolling average. As provided by statute, states that did not meet the targets or make significant progress will be required to submit a Highway Safety Improvement Program (HSIP) Implementation Plan and use their funding only for those projects where targets have not been met.
Pavement Condition
Pavement condition is measured using data submitted to the Highway Performance Monitoring System (HPMS), specifically the International Roughness Index (IRI), cracking percent, faulting, and rutting. The IRI is a system used to evaluate and manage the road system, while cracking percent, faulting, and rutting address various aspects of pavement condition. FHWA set certain metric thresholds in the final rule, defining good, fair, and poor conditions for each of these measurements. Table 3-1 shows the metric categories for good, fair, and poor conditions used as part of this performance measure. The following graphics depict these goals.
Table 3-1: Pavement Condition Metric Thresholds
| Metric | Good | Fair | Poor |
|---|---|---|---|
| IRI (inches/mile) | <95 | 95-170 | >170 |
| Rutting (inches) | <0.20 | 0.20-0.40 | >0.40 |
| Faulting (inches) | <0.10 | 0.10-0.15 | >0.15 |
| Cracking (%) | <5 | 5-20 (asphalt) 5-15 (JCP) 5-10 (CRCP) | >20 (asphalt) 0.15 (JCP) >10 (CRCP) |
CRCP: Continuous Reinforced Concrete Pavement
JCP: Jointed Concrete Pavement
The pavement conditions in the Pikes Peak Region are illustrated in Figure 3-1. Areas of poor and fair quality pavement conditions are scattered around the MPO with notable poor quality areas in high traffic areas such as I25 near Fountain, US24 through Woodland Park, and various roads in and around downtown Colorado Springs. Pavement condition is a consideration for CDOT and local agencies as they prioritize projects. It was also one of the elements of the scoring methodology used to select projects for this LRTP.
Figure 3-1: Pavement Conditions
There are four targets related to pavement condition, which are described on the following pages. These targets were set by CDOT for the state as a whole and are not specific to the Pikes Peak Region. The PPACG Board of Directors approved supporting these targets in 2023. These targets will be re-evaluated in early 2025.
The 2023 and 2025 state targets for the percentage of interstate system (National Highway System [NHS]) pavement in good condition are greater than or equal to 45% and 47%, respectively. In 2023, percentage of interstate system pavement in good condition was 45.10% statewide and 57.8% in the Pikes Peak Region. Per the FHWA, the NHS “consists of roadways important to the nation’s economy, defense, and mobility.” More information about these roadways is included in Chapter 4.
The 2023 and 2025 state targets for the percentage of interstate system pavement in poor condition are less than or equal to 4% and 3.5%, respectively. In 2023, percentage of interstate system pavement in poor condition was 3.3% statewide and 0.8% in the Pikes Peak Region.
Meanwhile, the 2023 and 2025 state targets for the percentage of non-interstate system pavement in good condition are 42% and 43%, respectively. In 2023, percentage of interstate system pavement in good condition was 41.2% statewide but only 29.6% in the Pikes Peak Region.
The 2023 and 2025 state targets for the percentage of non-interstate system pavement in poor condition are 3.5% for each target year. In 2023, percentage of non-interstate system pavement in poor condition was 3.4% statewide, but 5.8% in the Pikes Peak Region.
Figures 3-2 through 3-5 depict the statewide and Pikes Peak Region trends for 2017 through 2023 compared with these targets.
Figure 3-2: Percentage of Interstate System Pavement in Good Condition
Figure 3-3: Percentage of Interstate System Pavement in Poor Condition
Figure 3-4: Percentage of Non-interstate System Pavement in Good Condition
Figure 3-5: Percentage of Non-interstate System Pavement in Poor Condition
Bridge Condition
Bridge condition is measured using data reported to the National Bridge Inventory (NBI). The NBI is a rating scale from zero to nine, rated good, fair, and poor. Deck, superstructure, and culvert condition are graded and FHWA set the following thresholds.
The bridge conditions in the Pikes Peak Region are illustrated in a map on the following page, Figure 3-6. The vast majority of bridges are in fair to good condition, with only a handful of poor condition bridges in the region. As with pavement condition, bridge condition is used by CDOT and local agencies to prioritize projects and was a consideration during the LRTP project selection process.
Figure 3-6: Bridge Conditions
There are two targets related to bridge condition. These targets were set by CDOT for the state as a whole and are not specific to the Pikes Peak Region. The PPACG Board of Directors approved supporting these targets in 2023. These targets will be re-evaluated in early 2025.
The 2023 and 2025 statewide target for the percentage of NHS bridges in good condition is 36% and 38.5%, respectively. Meanwhile in 2023, the percentage of bridges in good condition was 37.3% statewide and 36.1% in the Pikes Peak Region. This percentage has been declining in the region recently.
The 2023 and 2025 targets for the percentage of NHS bridges in poor condition was 4% for each target year. In 2023, 3.5% of bridges were in poor condition statewide and 2.7% of bridges in the Pikes Peak Region were in poor condition.
Table 3-2 shows the thresholds for Bridge Condition Metrics. Figures 3-7 and 3-8 depict the statewide and Pikes Peak Region trends for 2017 through 2023 compared with these targets.
Table 3-2: Bridge Condition Metric Thresholds
| Bridge Part | Good | Fair | Poor |
|---|---|---|---|
| Deck | ≥7 | 5 or 6 | ≤4 |
| Superstructure | ≥7 | 5 or 6 | ≤4 |
| Substructure | ≥7 | 5 or 6 | ≤4 |
| Culvert | ≥7 | 5 or 6 | ≤4 |
Figure 3-7: Percentage of NHS Bridges, by Deck Area, in Good Condition
Figure 3-8: Percentage of NHS Bridges, by Deck Area, in Poor Condition
System Reliability
Travel time reliability indexing (TTRI) is a multi-stepped process to determine the ratio of peak travel periods to normal travel periods. Travel time reliability is a measure of the consistency, timeliness, predictability, and dependability of a trip. Travel time reliability is a comparison, expressed as a ratio, of the 80th percentile travel time of a reporting segment to the “normal” (50th percentile) travel time of a reporting segment occurring throughout a full calendar year.
Travel time is reported using the National Performance Management Research Data Set (NPMRDS) and is collected in 15-minute segments during all time periods between 6:00 a.m. and 8:00 p.m. local time. The 80th Percentile Travel Time represents congested periods, while the 50th Percentile Travel Time represents the average travel time. “Reliable” is considering a TTRI below 1.5.
The system performance targets were set by CDOT for the state as a whole and are not specific to the Pikes Peak Region. The PPACG Board of Directors approved supporting these targets in 2023. These targets will be re-evaluated in early 2025.
The 2023 and 2025 state targets for the percent of person-miles traveled on the interstate system that are reliable are 81% and 79%, respectively. In 2023, the percent of person-miles traveled on the interstate system that are reliable was 80.01% statewide and 90.6% in the Pikes Peak Region.
The 2023 and 2025 state targets for the percent of person-miles traveled on the non-interstate system that are reliable are 93% and 94%, respectively. In 2023, the percent of person-miles traveled on the non-interstate system that are reliable was 92.5% statewide and 91% in the Pikes Peak Region.
Figures 3-9 and 3-10 depict the statewide and Pikes Peak Region trends for 2017-2023 as well as the targets.
Figure 3-9: Percent of Person-miles Traveled on the Interstate System that are Reliable
Figure 3-10: Percent of Person-miles Traveled on the Non-interstate System that are Reliable
Truck Travel Time Reliability
Freight movement is assessed by the Truck Travel Time Reliability (TTTR) Index. The TTTR ratio is generated by dividing the 95th percentile time by the normal time (50th percentile) for each segment. The TTTR is calculated for each of the following five time periods for each segment of Interstate:
- Morning peak Monday through Friday (6-10 a.m.)
- Midday Monday through Friday (10 a.m.-4 p.m.)
- Afternoon peak Monday through Friday (4-8 p.m.)
- Weekends (6 a.m.-8 p.m.)
- Overnight for all days (8 p.m.- 6 a.m.)
The maximum TTTR for each segment of Interstate is multiplied by the length of the segment, then the sum of length-weighted segments is divided by the total length of Interstate will generate the TTTR Index.
The 2023 and 2025 state targets for TTTR Index are 1.46 for both target years. In 2023, the TTTR Index was 1.42 statewide and 1.48 in the Pikes Peak Region. Figure 3-11 depicts the statewide and Pikes Peak Region trends for 2017-2023 as well as the targets.
Figure 3-11: TTTR Index
Safety
There are five performance measures in the highway safety category related to the number of crashes, both resulting in fatal and/or serious injury, on the entire roadway network within the PPACG boundary. Data is collected from the Colorado Department of Revenue, refined by CDOT, and analyzed by PPACG staff.
The goal for PPACG and the State of Colorado regarding fatalities and injuries is to have none. Realistically that is not likely to happen, therefore targets are set to measure progress. Where targets are not met, funding received must be used toward those areas that need improvement.
Targets for the highway safety category are established annually. The safety targets in this document were set by CDOT in November 2023. The targets were supported by the Board in 2024 and will be re-evaluated in early 2025. Targets identified are a five year average from 2019-2023.
Chapter 5 provides additional detail regarding transportation safety and crashes in the Pikes Peak Region as well as steps being taken to address safety.
Fatal Crashes
Figure 3-12 shows the number fatalities in Colorado and the Pikes Peak Region numbers from 2017-2023. There was an increase in fatalities in 2020 following decreases in 2018 and 2019. Between 2019 and 2022, the number of traffic fatalities in Colorado increased by 17% and declined again in 2023.
Figure 3-12: Number of Fatalities
The safety targets identified in the figure represent five year averages, in this case 2019-2023 and 2020-2024.
Dividing the number of motor vehicle fatalities by the number of vehicle miles traveled (VMT) provides another perspective on the number of fatalities that may be more useful, particularly in areas with population changes or changes in driving habits. Fatalities per 100 million VMT can be compared over time and between different geographic areas. Figure 3-13 shows the rate of fatalities per 100 million VMT for Colorado. Colorado’s fatality rate increased sharply (21%) in 2020 after a decrease in 2019. Colorado’s fatality rate was slightly lower than the average fatality rate in the United States in 2020. However, in 2023, Colorado’s fatality rate was slightly above the U.S. average (1.31 vs. 1.26).
Figure 3-13: Fatalities per 100 million VMT
The safety targets identified in the figure represent five year averages, in this case 2019-2023 and 2020-2024.
Serious Injuries
In this report, a suspected serious injury as defined by the Officer’s Crash Reporting Manual is any injury other than fatal which presents one or more of the following symptoms:
- Severe laceration resulting in exposure of underlying tissues/muscle/organs or resulting in significant loss of blood.
- Broken or distorted extremity (arm or leg).
- Crush injuries.
- Suspected skull, chest or abdominal injury other than bruises or minor lacerations.
- Significant burns (second and third degree burns over 10% or more of the body).
- Unconsciousness when taken from the crash scene.
- Paralysis.
This definition matches the Model Minimum Uniform Crash Criteria (MMUCC) 4th edition manual.
Figure 3-14 shows the number of serious injuries, while Figure 3-15 shows the rate if serious injuries per 100 million VMT.
Figure 3-14: Number of Serious Injuries
Figure 3-15: Serious Injuries per 100 million VMT
The safety targets identified in these figures represent five year averages, in this case 2019-2023 and 2020-2024.
Non-Motorized Fatalities and Serious Injuries
Non-motorized refers to bicyclists, pedestrians, and other active transportation modes. This measure combines both fatalities and serious injuries. Figure 3-16 shows the number of non-motorized fatalities and serious injuries.
Figure 3-16: Non-motorized Fatalities and Serious Injuries
The safety targets identified in the figure represent five year averages, in this case 2019-2023 and 2020-2024.
Transit Safety
Table 3-3 contains 2023 transit safety event data and 2024 targets by mode of service. Targeted rates represent at least a 10% decrease from 2023’s data. Targets are updated annually using the previous year’s data. This data is reported in the 2024 Public Transportation Agency Safety Plan done by MMT as the direct recipient of FTA Section 2307 funds for transit capital and operating assistance and transportation-related planning in urbanized areas.
Table 3-3: Transit Safety Performance
| Category | Motor Bus or Fixed Route | Demand Response ADA Complementary Paratransit | Vanpool | |||
|---|---|---|---|---|---|---|
| 2023 Actual | 2024 Target | 2023 Actual | 2024 Target | 2023 Actual | 2024 Target | |
| Total Accidents | 258 | 232 | 26 | 23 | 1 | 1 |
| Per 100k RM* | 8.71 | 7.84 | 2.81 | 2.53 | 0.77 | 0.69 |
| Total Incidents | 41 | 37 | 2 | 2 | 0 | 0 |
| Per 100k RM | 1.38 | 1.25 | 0.22 | 0.19 | 0 | 0 |
| Total Occurrences | 17 | 15 | 8 | 7 | 0 | 0 |
| Per 100k RM | 0.57 | 0.52 | 0.86 | 0.78 | 0 | 0 |
| Total Safety Events | 316 | 284 | 36 | 3.50 | 1 | 1 |
| Per 100k RM | 10.67 | 9.60 | 3.89 | 2 | 0.77 | 0.69 |
| Injuries | 29 | 26 | 2 | 0.19 | 0 | 0 |
| Per 100k RM | 0.98 | 0.88 | 0.22 | 0 | 0 | 0 |
| Fatalities | 0 | 0 | 0 | 0 | 0 | 0 |
| Per 100k RM | 0 | 0 | 0 | 0 | 0 | 0 |
| Minor NTD Reportable (S&S-50) | 28 | 25 | 0 | 0 | 0 | 0 |
| Per 100k RM | 0.95 | 0.85 | 0 | 0 | 0 | 0 |
| Major NTD Reportable (S&S-40) | 14 | 13 | 4 | 4 | 0 | 0 |
| Per 100k RM | 0.47 | 0.43 | 0.43 | 0.39 | 0 | 0 |
NTD: National Transit Database
*Per 100,000 vehicle revenue miles. Revenue miles (RM) are those miles driven when the vehicle is providing public transportation and is available to carry passengers.
System Performance Report
Performance targets are a way to review the region’s progress in achieving its transportation goals. Table 3-4 shows the correlation between LRTP goals, federally required performance measures, and federal planning factors as listed in Chapter 1.
Table 3-4: 2050 LRTP Goals and Performance Measures
- LRTP Goals
- Preserve and enhance the function of and access to the existing regional transportation system.
- Provide efficient, improved, and fully connected multimodal and intermodal transportation for people, goods, information, technology, and freight to employment hubs, military installations, and other key destinations throughout the region.
- Increase the safety, security, redundancy, and resiliency of the multimodal transportation system.
- Maintain a robust, equitable, and healthy regional transportation system that enhances economic vitality of the Pikes Peak region.
- Implement responsible transportation solutions.
- Performance Measures
- Infrastructure Condition
- Transit Asset Management*
- System Reliability
- Safety
- Transit Safety*
- System Reliability
- Infrastructure Condition
- System Performance
- Federal Planning Factors
- Efficient system management and operation
- Existing system preservation
- Economic vitability
- Accessibility and mobility of people and freight
- Integration and connectivity of modes
- Travel and tourism
- Motorized and non-motorized user safety
- Motorized and non-motorized user security
- Resiliency and reliability
- Economic vitability
- Travel and tourism
- Existing system preservation
- Efficient system management and operation
- Environment protection, energy conservation, and quality of life
- Stormwater impact mitigation
See Appendices B and C, 2050 Regional Transit Plan and 2050 Specialized Transportation Plan for details.
Measuring Performance
The following summary of the region’s system performance was developed by comparing the targets, system performance metrics, and goals as well as considering information gathered through the public survey, a review of local plans, and discussions with local jurisdictions.
What are we doing well?
- Interstate pavement condition and NHS bridge conditions meet targets and are better than the state average.
- System reliability for the interstate system and truck travel exceed targets.
- The region is in attainment for air quality standards as set by the EPA.
- Traffic-related fatalities are starting to decline in the region, although they remain high.
- Multimodal options are increasing.
- Transit safety, accessibility, and options have increased.
- There are multiple dedicated services and options for specialized transportation.
What do we need to improve?
- Non-interstate road pavement condition and reliability are below statewide targets.
- Serious injury crashes are on the rise.
- Crash rates indicate a need to focus on safety for drivers, bicyclists, and pedestrians.
- There are opportunities to improve mode share and connectivity.
- Recurring congestion is problematic.
- There are opportunities to make transit a more competitive travel option.
- Specialized transportation is inadequate to meet current demand and can be confusing for users.
Next steps
While this chapter includes the performance targets as adopted most recently by the PPACG Board of Directors, targets are in the process of being updated. In addition, Chapters 4 and 5 document existing conditions and planning considerations related to these targets specific to the Pikes Peak Region.
Further, the scoring system used to determine the projects included in this LRTP integrated all of these performance measure concepts to support moving the region toward the targets in future years.
System performance will continue to be measured and adjustments made as needed to support regional goals and needs.