The following information was developed by the FHWA Central Federal Lands team.
The Federal Highway Administration & Federal Lands Highways
The FHWA recognizes the vital role transportation plays in the lives of the traveling public, influencing economic growth, public safety, and many other aspects of daily life.
Federal Lands Highways, a division of the FHWA, provides financial resources, planning, transportation engineering, and project delivery for mobility networks that service the transportation needs of U.S. federal and tribal lands partners. These include the National Park Service, the U.S. Forest Service, the U.S. Fish and Wildlife Service, the Bureau of Indian Affairs and Tribal Governments, the Bureau of Land Management, the Department of Defense, the U.S. Army Corps of Engineers, and the Bureau of Reclamation.
Its mission is to deliver effective, efficient, and reliable transportation systems while protecting and enhancing natural resources and providing recreational access for the traveling public. These essential services are delivered in all 50 states, the District of Columbia, Puerto Rico, and U.S. Territories through the Headquarters, Eastern, Central, and Western Federal Lands Highway Division offices.
Federal Lands Highways (FLH) prioritizes projects, infrastructure, and services that seamlessly integrate with the landscape, fostering a deeper connection with the natural world and enriching the outdoor recreational experience. This ensures that all Americans can continue to explore and appreciate the splendor of our shared natural heritage.
Enhanced FLMA Coordination: Legislative Basis & Approach
State DOTs, MPOs, and local transportation agencies are responsible for considering Federal Land Management Agency (FLMA) transportation access needs in their planning and capital improvement processes per 23 U.S.C. Sections 134 and 135.
However, recreational and FLMA access needs are qualitatively different from transportation needs on the urban, suburban, and inter-urban networks. Whereas the latter systems are built on high-volume, paved facilities, recreational travel tends to occur on low-volume, typically unpaved systems in rural or remote contexts. Furthermore, recreational travel patterns are less predictable than typical “rush hour” pulses of activity and can be dependent on external factors such as weather and special events.
As such, determining the relative priority of projects on discretionary (or recreational) systems versus non-discretionary systems (commute, school, and other daily transportation needs) can be challenging.
The Federal Lands Access Program (FLAP) was created to plan, design, and fund projects in this unique discretionary travel niche, however lack of consistent coordination between federal, state, and local agencies can hinder the development of a broad, multi-agency consensus for enhanced recreational travel. This limits chances for partnerships and funds-leveraging and can lead to missed opportunities where shared needs could be addressed in the planning or design processes.
Led by FLH, enhanced FLMA coordination attempts to solve this challenge through the identification of shared needs through cross-sector, multi-agency workshops (see Figure F-1). Multi-agency workshops can reveal and elevate projects and opportunities that are:
- Beneficial to multiple agencies and supported by the general public
- Most likely to receive (or have received) state or local investment
- Projects of mutual interest where planning and design can be aligned before final programming and funding decisions are made
- Eligible and competitive for a broad set of state and federal grant funding opportunities (like FLAP, or other discretionary sources at the state or federal levels)
Enhanced coordination can help FLMAs, along with state and local agencies, better align improvement programs, seek partnerships, leverage resources, and advance shared goals.
Needs identification through the enhanced FLMA coordination process is mostly an exercise with a long-range (10-20 year) time horizon where agencies have flexibility in determining priorities and identifying projects (the top tier of Figure F-2 below). Sometimes referred to as “blue sky” strategy, the IP process is a financially unconstrained assessment of current and future need such that capital investments can be identified before safety, congestion, state of good repair, or other concerns become acute. Most needs identified in this study are within this top “Long Range” tier.
Figure F-1
Some projects require additional planning, studies, scope refinement, or risk mitigation (e.g., through a public engagement process) before capital investments or programming decisions can be made. Concept planning, in the forms of corridor plans, site plans, modal plans, and other planning projects/studies can ready projects for implementation by reducing risk, refining scope, and/or determining relative priority. A small number of needs identified in this study are in this “Mid-Range” tier. Step-down planning efforts, initiated based on the needs identified in the process, can transition a project from conceptual phases to shovel readiness, as depicted in the implementation, or “Programming,” bottom tier of the pyramid. This study is intended to help guide the best projects toward implementation, by highlighting the projects of greatest need and broadest benefit while aligning prioritization and funding streams.
Figure F-2
Physical and Economic Geography
Land Management
With 24 million acres, constituting 36.3% of the state’s total landmass, federal lands play a significant role in the Colorado’s environmental, recreational, and economic landscape.
The CFR TPR encompasses Park, Fremont, and Custer counties as well as portions of Teller and El Paso counties, while the urbanized area within is served by the PPACG MPO. This region features diverse federally managed lands and natural resources. These resources play a vital role in supporting recreation, conservation, and local economies.
- U.S. Forest Service (USFS): This region is home to portions of the Pike-San Isabel National Forest, offering extensive opportunities for outdoor recreation, including hiking, camping, and off-highway vehicle use. Iconic destinations such as Pikes Peak and Eleven Mile Canyon Reservoir are located here, drawing thousands of visitors annually.
- Bureau of Land Management (BLM): While BLM lands are more concentrated in western Colorado, small tracts in Fremont County support activities such as hiking, rock climbing (notably in areas like Shelf Road), and wildlife observation. These lands also contribute to grazing and mineral resource management.
- National Park Service (NPS): The Florissant Fossil Beds National Monument, located in Teller County, is a key NPS site. It preserves fossilized redwood stumps and thousands of plant and insect fossils, offering both recreational and educational opportunities.
- Bureau of Reclamation (BOR): The BOR oversees infrastructure related to water management in the Arkansas River Basin, which impacts Fremont County. This includes the Pueblo Reservoir and upstream water storage projects crucial for municipal and agricultural use.
- Department of Defense (DoD): The U.S. Air Force Academy, located in northern Colorado Springs, is not only a military installation but also a site of significant natural beauty and recreational opportunities. While public access to the academy is restricted due to its operational role, it does allow for limited public entry to certain areas, particularly for outdoor recreation. Academy grounds are integrated into the local trail system, including the popular New Santa Fe Regional Trail, which traverses part of the base grounds. This multiuse trail is accessible to the public and provides a scenic route for hiking, biking, and running, connecting to other regional trails.
The region’s mix of mountainous terrain, river valleys, and plains supports activities ranging from backcountry exploration to conservation research, making it an integral part of Colorado’s public lands system.
Colorado’s Outdoor Recreation Economy
Driven in large part by the vast amounts of federal public lands, the state’s outdoor recreation industry is a major contributor to Colorado’s economy. Colorado ranks 12th in the nation for outdoor recreational economic activity with $5.77 billion in value-add contribution to the state’s gross domestic product (GDP) while also supporting 129,800 direct employment jobs (2022, see Figure F-3 ).
Non-local travel, defined as greater than 50 miles, alone contributes $5 billion to this figure and is driven largely by the internationally renowned ski destinations on USFS lands throughout the state.
Figure F-3
Transportation Systems and Funding
Colorado’s Recreational Transportation Network
Access to the outdoor recreational opportunities on federal lands is dependent on safe and reliable mobility on local, state, and federally owned roadway and trail systems. From major highways to rural roads, from developed campsites to backcountry trails, the traveling public expects to be able to move seamlessly between systems and modes, regardless of ownership, to reach their destination.
Each system, and its underlying ownership structure, dictates which programs and funding sources can be used for planning and improvements.
Colorado’s Recreational Transportation Systems
- Federally Owned Roadway Miles (all FLMAs, paved & unpaved) = 7,672 Miles
- State Owned FLMA Access Routes = 3,897 Miles
- Locally Owned FLMA Access Routes = 7,154 Miles
- Trails & Multiuse Paths, all Ownership = Between 40,000 and 45,000 Miles
Central Front Range TPR and PPACG Recreational Roadway Systems
- Federally Owned Roadway Miles (all FLMAs, paved & unpaved) = 536 Miles
- State Owned FLMA Access Routes = 306 Miles
- Locally Owned FLMA Access Routes = 710 Miles
Figure F-4
Federally Owned System
The federally owned high-use transportation system (and associated facilities, like bridges, trails, trailheads, etc.) is funded by U.S. Congress under the current surface transportation act (the Bipartisan Infrastructure Law, or BIL, 2022-2026). Federal Lands Highways is responsible for improvements to this system under the Federal Lands Transportation Program (FLTP).
The National Park Service, the U.S. Fish & Wildlife Service, and the USFS all receive a fixed yearly amount (set-aside) to program as agency needs dictate. The Bureau of Land Management, U.S. Army Corps of Engineers, and the Bureau of Reclamation compete for the remainder of the yearly funding (see Figure F-5).
All other federally owned transportation facilities (such as administrative or low volume public roads) are managed by the various FLMAs with departmental or agency specific funds.
In Colorado, 7,672 miles of federally owned roadways are eligible for FLTP investment. Within the CFR TPR and PPACG planning area, 536 miles of roadway qualify (gray routes in Figure F-4). This total excludes trails, trailheads, bridges, and other federally owned transportation systems also eligible for FLTP funding. Note that federally owned transportation assets are eligible for funding under the Access Program (FLAP, see next section) with an agreement whereby a state or local agency agrees to assume operations and maintenance costs of the facility.
State Owned Access System
The state owned access system, which includes U.S. routes, interstate routes, and some local roads that are crucial to freight transport and airport access, falls under the jurisdiction of state DOTs to maintain and improve as needs dictate. State DOTs receive formulaic funding under the Federal Aid system, and are eligible for a variety of discretionary (competitive grant) programs under BIL.
Figure F-5
| Category | 2022 | 2023 | 2024 | 2025 | 2026 |
|---|---|---|---|---|---|
| FLTP Total Funding | $422 M | $430 M | $439 M | $448 M | $456 M |
| Set-aside for National Park Service | $332 M | $339 M | $346 M | $354 M | $360 M |
| Set-aside for Fish and Wildlife Service | $36 M | $36 M | $36 M | $36 M | $36 M |
| Set-aside for Forest Service | $24 M | $25 M | $26 M | $27 M | $28 M |
| Remaining Amount for Bureau of Land Management, US Army Corps of Engineers, Bureau of Reclamation | $30 M | $30 M | $31 M | $31 M | $32 M |
Given the prevalence of federal lands in Colorado, many state routes are also eligible for funding from the Federal Lands Access Program or FLAP. FLAP is a formulaic program administered by FLH to improve and expand access to public federal lands that support high-use recreation or economic generation.
By legislative formula, every U.S. state receives a yearly allocation under FLAP. Due to the abundance of federal lands and federal public roadway in Colorado, the state receives one of the largest yearly allocations in the country (see Figure F-6).
In Colorado, there are 3,897 miles of CDOT roadway that provide primary access to various FLMA units (gold routes in Figure F-4). In the Central Front Range TPR, there are 306 miles of CDOT roadway that provide FLMA access.
Locally Owned Access System
The locally owned system is comprised of various county and municipal facilities (such as roads, streets, bridges, sidewalks, and public transit systems) that provide urban, inter-urban, and rural mobility. Counties and municipalities play a crucial role in the planning, development, and maintenance of these transportation systems. Local governments are responsible for tailoring transportation solutions to meet the unique needs and demands of their communities. They must address issues such as traffic congestion, road safety, public transit accessibility, and infrastructure resilience.
To fund projects, local governments often rely on a combination of revenue sources, including property taxes, sales taxes, vehicle registration fees, and grants from state and federal agencies. While MPOs do not own transportation assets, they play a crucial role in planning and funding transportation systems in urbanized regions. MPOs can bring multiple jurisdictions together, develop funding strategies for projects of regional significance, and provide an excellent forum to discuss shared needs across federal, state, and local systems. In Colorado, there are 7,154 miles of roadway that provide primary access to federal lands and are owned and maintained by counties and incorporated municipalities (red routes in Figure F-4). These routes are also eligible for funding under FLAP.
Figure F-6
| FLAG Funding | 2022 | 2023 | 2024 | 2025 | 2026 |
|---|---|---|---|---|---|
| Total FLAP Funding | $286 M | $292 M | $297 M | $304 M | $309 M |
| Colorado FLAP Funding | $15 M | $15.5 M | $16 M | $16.5 M | $16.99 M |
Trails and Multiuse Paths
The vast array of natural surface trails, paved trails, and multiuse paths are integral components of Colorado’s transportation and recreation infrastructure. Trails and multiuse paths can connect neighborhoods, schools, parks, and commercial areas, fostering a sense of community and reducing dependency on vehicles. More than merely providing non-motorized access to recreational and other destinations, very often these systems are the destination in and of themselves.
The expansive systems of trails and paths throughout the United States are owned and maintained by a wide variety of local, state, and federal agencies, and can also include some non-governmental agencies as well. Trails are also eligible for a wide variety of formulaic and discretionary funding sources from local, state, and federal agencies. State and locally owned trails are eligible for funding under FLAP. The National Park Service manages the Scenic, Historic, and Recreational trail systems, with many state and local trail systems feeding into these world-class routes.
In Colorado, there is between 40,000 and 45,000 miles of trails and multiuse paths, both on and off federal lands (not pictured in Figure F-4). While official, designated trails make up the majority of this system, the state’s abundant remote lands have engendered the development of informal and undesignated trail networks, posing a challenge for land managers.
Identified Needs
Colorado Springs is at the heart of a region grappling with surging travel demand, particularly for recreational access to federal lands like Pike National Forest and the Arkansas River Corridor. This growth has created significant challenges for transportation infrastructure, including congestion, increasing demands for recreational access, and the need for coordinated federal, state, and local solutions. High recreational demand, particularly along corridors like US285, Old Stage Road, and Rampart Range Road, has strained rural and semi-urban roads. Park County residents, for instance, report significant detours and increased traffic from visitors bypassing congested highways.
Workshops and one-on-one public agency meetings in the CFR TPR and PPACG led to identification of 18 transportation needs in the planning area. These workshops emphasized the importance of strategic planning, funding alignment, and innovative approaches to address transportation infrastructure challenges. Participants included representatives from USFS, BLM, USAFA, CDOT, and PPACG, among others. The discussions focused on enhancing connectivity to public lands, supporting recreational travel, and balancing growth with sustainability and security concerns. At USAFA, recreational access must be carefully managed to balance public use with operational security. This includes projects like the Santa Fe Trail and Enhanced Use Lease (EUL) Visitor Center.
Where appropriate, project needs should be integrated into state and local planning processes to ensure their consideration for inclusion in improvement programs or implementation through discretionary funding sources, such as grants. Simultaneously, FLAP planners and programmers will explore opportunities for joint funding and partnerships with state and local entities to advance projects that align with shared priorities.
Project Needs: Colorado Springs and PPACG Planning Area
- MPO: Yes (PPACG)
- Total Number of Projects: 7
- Total Estimated Planning Need: $100,000 – $500,000
- Total Estimated Capital Need: $12,100,000 – $27,700,000
Overview of Key Projects
Old Stage Road Rehabilitation (Project No. 158)
The rehabilitation of Old Stage Road addresses critical safety and accessibility needs for a high-use recreational corridor linking Colorado Springs with USFS lands. This county-owned and federally accessed gravel road faces increasing demand from urban growth and recreational use. Improvements will enhance the road’s surface and geometry, reduce maintenance costs, and support safer travel for both residents and visitors.
Rampart Range Road Rehabilitation (Project No. 159)
Rampart Range Road (different segments owned and managed separately by Teller County, El Paso County and the USFS), connects high-use outdoor recreation areas and serves as an essential link for tourism and local economic activity. The planned rehabilitation will address erosion, wear, and connectivity challenges, aligning with the area’s growing role as a gateway to public lands.
USAFA Trails Management Plan (Project No. 181)
USAFA plays a unique dual role as a federal military installation and a regional recreational hub. This project will develop a comprehensive Trails Management Plan, balancing public access with security needs. The plan will address signage, maintenance, and access restrictions while ensuring sustainable recreational opportunities for activities like hiking and biking. This initiative aligns with USAFA’s evolving development priorities, including the new EUL Visitor Center at the North Gate, slated for completion in 2025.
Santa Fe Trail Improvements (Project No. 182)
Running through the USAFA grounds, the Santa Fe Regional Trail provides critical multimodal connectivity from Colorado Springs to Monument and Palmer Lake. Planned upgrades include interpretive signage highlighting cultural and natural resources, improved security, and enhanced trail management to address issues like homelessness and unauthorized access. These improvements reflect a collaborative effort between USAFA, El Paso County, and regional stakeholders.
La-Foret Trail Improvements (Project No. 183)
Similar to the Santa Fe Trail, the La-Foret Trail improvements focus on signage, fencing, and access control. As the trail lies on the eastern side of USAFA, upgrades will enhance public safety while maintaining operational security for the base. Collaboration with local jurisdictions will ensure effective trail management and accessibility.
Ice Lake Parking Lot Enhancements (Project No. 184)
USAFA’s Ice Lake parking lot is a heavily used facility supporting both recreational users and nearby trails. Upgrades will address flooding, drainage, and safety concerns, particularly around the train crossing. Improved signage and stormwater management are priorities to ensure safe and efficient access.
EUL Trailhead and Parking (Project No. 185)
The planned trailhead near USAFA’s North Gate is part of the Enhanced Use Lease development. This public-private partnership aims to support the new Visitor Center and provide better access to trails and recreational facilities. Improved wayfinding signage will make the trailhead more user-friendly and integrated with regional recreation networks.
Figure F-7
| Project Number | Project Name | Project Type | Ownership | FLMA Access | Estimated Project Cost | Fund Source | Next Investment Needed | FLMA Goal Area | CDOT Goal Areas: Mobility / Safety / Asset Management |
|---|---|---|---|---|---|---|---|---|---|
| 158 | Old Stage Road | Roadway | Federal, County | USFS | $5,000,000 – $10,000,000 | FLAP & Fed Aid / Local | Design Engineering | Asset Management | Mobility / Safety |
| 159 | Rampart Range Road Rehabilitation | Roadway | Federal | USFS | $5,000,000 – $10,000,000 | FLTP | Design Engineering | Asset Management | Mobility / Asset Management |
| 181 | USAFA Trails Management Plan | Planning, Trail, Multi-Use Path | Federal, Municipal | DoD | $100,000 – $500,000 | FLAP & Fed Aid / Local | Planning Study | Outdoor Recreation | Mobility |
| 182 | Santa Fe Trail Improvements | Multi-Use Path | Federal | DoD | $500,000 – $1,000,000 | FLAP & Fed Aid / Local | Design Engineering | Outdoor Recreation | Mobility / Asset Management |
| 183 | La-Foret Trail Improvements | Trail | Federal | DoD | $500,000 – $1,000,000 | FLAP & Fed Aid / Local | Design Engineering | Outdoor Recreation | Mobility / Asset Management |
| 184 | Ice Lake Parking Lot | Parking / Trailhead | Federal | DoD | $1,000,000 – $5,000,000 | FLAP & Fed Aid / Local | Design Engineering | Outdoor Recreation | Safety / Asset Management |
| 185 | EUL Trailhead & Parking | Parking / Trailhead | Federal | DoD | $100,000 – $500,000 | FLAP & Fed Aid / Local | Design Engineering | Outdoor Recreation | Mobility |
Figure F-8
