Pikes Peak Region Specialized Transportation Plan – 2024 Update: Existing Conditions

Overview of Providers in Pikes Peak Region

Fixed-Route Transit

In the region, there are several public fixed-route transit services, along with public and private intercity services. These are available to the general public and are detailed in the RTP. The extent to which these serve the needs of the focus population groups of the Specialized Transportation Plan (older adults, people with disabilities, and low-income households) depends on their relative accessibility and awareness of these services by those populations.

ADA Complementary Paratransit

ADA Complementary Paratransit exist to fulfill a legal mandate set by the ADA. It is a demand-response public transit service.

Specialized Transportation

Specialized transportation assists older adults and people with disabilities throughout the region who cannot have their needs met by any of the above forms of public transit. For example, people with disabilities in need of transportation but who live outside of the ADA complementary paratransit service area may depend on specialized transportation services. Some, but not all, of these services, are funded through Section 5310. Specialized transportation typically includes demand-response services with operators on behalf of HSPs carrying the responsibilities of coordination and meeting human service needs.

Appendix A contains a detailed inventory of the current specialized transportation resources in the region. This inventory should help enhance knowledge about the transportation resources available in the Pikes Peak region.

The Commercial Transportation Market

There are many visible transportation services that appear similar to specialized transportation by using similar-looking cutaway vehicles and catering to older adults, but they are ancillary services restricted to tenants or dues-paying members of a specific facility.

With such hurdles and protections in place, these services are limited in scope and are perceived as restricted to the populations facing needs in the Specialized Transportation Plan.

Taxis, Uber, and Lyft are technically options open to the general public, but they are not usable by all people. For example, these services do not need to comply with the ADA. Also, the services are priced at a rate that may not be sustainable for regular use by seniors or people with low incomes. These door-to-door services may be among the choices in situations where other options are limited or nonexistent.

Some private commercial providers are certified to provide NEMT to customers, but that option is restricted to those who are eligible and enrolled members of the Medicaid practice (known as Health First Colorado). Such a service is not usable for older adults who are unenrolled and live outside of the MMT transit network.

Section 5310 Funds for the Colorado Springs Urbanized Area

The PPACG currently receives and administers Pikes Peak Area Agency on Aging (PPAAA) funds for older adults and has been designated by the Governor of Colorado as the regional recipient of Section 5310 funds for the Colorado Springs UZA (see Figure 2 for map of boundaries).

Figure 2. Map of Colorado Springs and Pikes Peak MPO Boundaries

Map of the Pikes Peak Area Council of Governments (PPACG) boundary, denoted with red dashed lines. Within the red boundary is the first layer of the study area shaded in blue, which includes the cities of Colorado Springs, Fountain, Monument, and Manitou Springs. This first layer of the study area is called the PPACG MPO Boundary in the map’s legend. The second layer of the study area shaded in grey is contained within the first layer of the study area and is called the Urbanized Area in the legend.
Click here for an accessible version of Figure 2: Map of Colorado Springs and Pikes Peak MPO Boundaries

Section 5310 funds are currently the only dedicated federal source of transportation funding available to both transit agencies and HSPs in this region. Eligible subrecipients for Section 5310 funds include private nonprofit organizations, states or local government authorities, and operators of public transportation.

Section 5310 funds are currently used by PPACG to contract mobility services that provide rides for the populations of older adults and people with disabilities. Section 5310 funds received by PPACG for the past two contract years were allocated to two eligible subrecipients: Silver Key and Envida (Figure 3). However, there are several other providers that are important HSPs in the region. While they do not receive Section 5310 funds, they may receive Older Americans Act funds through the PPAAA. HSPs receive assistance in the programming of funds used for these specialized transportation purposes through PPACG and PPAAA and may also receive funding from other sources (e.g., localities and donations).

Figure 3. Recent Section 5310 Fund Allocations by Subrecipient

Contract yearSilver KeyEnvida
2023-2024$398,472$417,528
2024-2025$395,000$421,000

Needs and Goals Identifies by Stakeholders

Estimated Needs Based on Reported Data

All specialized transportation providers receiving funds through the PPAAA reported additional information relevant to their respective transportation operations and services for this planning process. These findings are detailed in Appendix A. The information on those figures has been compiled from reports that providers voluntarily shared with PPACG in 2024, based on each provider’s unique definitions and perspectives. The data could be subject to discrepancies and changes.

Using their submitted information, one can make a high-level estimate of certain specialized transportation needs in the region, particularly around vehicle replacement and unmet travel demand (Figure 4). This figure includes all specialized transportation providers regardless of funding source.

For service, the current demand going unfulfilled by providers totals 7,272 rejected rides a year. Assuming an average cost of $50.86 per demand-response ride1, that means a backlog of denied rides that would cost approximately $370,000 per year. For vehicles, there are currently 18 nearing the end of their life. If a vehicle costs in the range of $80,000 and $95,000 to replace, that means a backlog of approximately $1,440,000 to $1,710,000.

Figure 4. Summary of Estimated Needs for HSP Transportation

ProviderRides denied annuallyEstimated cost to fund denied rides (based on average cost per demand-response ride of $50.86)Vehicles past useful lifeCost ranges to replace vehicles past useful life (based on $80,000 – $95,000 per unit range)
Fountain Valley Senior Center400$20,344.003$240,000 – $285,000
Silver Key4,229$215,086.946$480,000 – $570,000
Teller Senior Coalition270$13,732.202$160,000 – $190,000
Community Intersections——4$320,000 – $380,000
Envida2,373$120,690.783$240,000 – $285,000
Total7,272$369,853.9218$1,440,000 – $1,710,000

The current allocation of Section 5310 dollars to the region does not meet the combined value of meeting just these two quantitative needs, even on the lower end of the estimated range for replacement vehicles. Additionally, these estimates do not incorporate any other current service gaps, such as gaps created by newly occupied developments located outside of the MMT transit service area.

Stakeholder-Identified Needs

Specialized transportation providers were also asked to provide an account of their needs and interests. Overall, the providers’ responses indicate that public sources of funding are pivotal to their transportation operations (whether they originate from federal, state, or local agencies). Most respondents expressed a goal to grow their dispatch and driver staff, and almost all reported using volunteer drivers to provide transportation services. Aging fleets are of concern, since all respondents mentioned having vehicles currently that are beyond their useful life. Based on responses received, service hours for transportation services are not comprehensive (for example, evening and night transportation are not provided, and weekend transportation options are extremely limited) and the service areas of many respondents are limited to specific parts of the region. Other obstacles to coordination among transportation providers mentioned include geographical barriers, payment method disparities, scheduling coordination challenges, and the types of systems and software for effective reservation and dispatch management.

Stakeholder-Identified Goals

In stakeholder group meetings during the development of this plan, project stakeholders proposed goals tailored to address specific needs and challenges in specialized transportation. These were the goals, suggested verbatim, from those discussions:

  • Build capacity to meet rising demand.
  • Coordinate across agencies and providers to enhance the client’s experience.
  • Utilize other agencies to create a robust transportation system with ways to anticipate and prevent gaps.
  • Include transit as a solution to affordable housing.
  • Remember how important socialization is for all who ride specialized transportation.
  • Incorporate emergency preparedness.
  • Educate potential riders on the multiple transit options, including fixed-route, paratransit, and specialized transportation.
  • Explore additional funding opportunities.

Developments in Specialized Transportation 2019-2024

Since the previous Specialized Transportation Plan was approved, some improvements have been implemented in the Pikes Peak region. The success of these improvements may vary, and for ongoing initiatives, their effectiveness is inconclusive. Some highlights are included below to provide further context for this plan.

Unsuccessful Implementation of One-Call One-Click Center

“ONE-RIDE (663-7433) is a transportation call center operated by the City of Colorado Springs to provide transportation coordination services for seniors age 60+ and people with disability. One Ride contracts with four human service organizations to provide this specialized transportation.” – January 2018

As a recommendation from previous Specialized Transportation Plan updates, a OC/OC center for specialized transportation was initially pursued using shared technology. The aim was for this center to incorporate all services, including scheduling and booking rides, regardless of the end provider. However, the implementation of this strategy, faced major challenges, including:

  • Lack of security around adjusting existing operations. HSPs did not want to give up autonomy or feel forced to conform to a new scheduling system that was different to what was being used at the time. Thus, the region continued to have different incompatible software used for scheduling.
  • Limited financial resources. Non-profit HSPs noted limitations in their ability to be directly leading or heavily involved in the operation of a call center.
  • Limited conversations or coordination between MMT and HSPs, despite MMT assuming responsibilities of the most recent iteration of OC/OC.

Ultimately, One Ride fell short of objectives. Today, there remains limited coordination between MMT’s ADA complementary paratransit service and eligible subrecipients and other providers. These fractures and inconsistencies amongst all providers make for a very challenging client experience. The difficulty experienced by riders navigating the specialized transportation system remains, and the desire for a new OC/OC program still surfaces in public meetings and stakeholder meetings for this Specialized Transportation Plan update.

Scheduling Software and On-Demand Pilot

In 2024, a partnership of Envida, Silver Key, and Fountain Valley Senior Center collaborated on using the same ride scheduling software with the aim of increasing convenience and access for riders. The platform includes an on-demand app in which riders can request trips, track rides, and receive notification.

Vouchers for Regional Healthcare Travel

In 2024, PPACG will start a four-year program to help provide vouchers to people travelling to the Denver region or elsewhere for a specialized medical appointment. These vouchers will help cover transportation costs for accessing in-person medical visits. In doing so, the program can aim to support those without Medicaid coverage, because they lack access to the NEMT program.

Regional Demographic Locations and Observations

As required by Section 5310, this plan identifies the needs of older adults and people with disabilities in the region. Additionally, this plan identifies the needs of low-income households. Using maps that show home locations for each population group, there are additional observations about how the current transportation system serves each group. These additional observations, when paired with objective demographic data, are collectively crucial for a more complete understanding of existing conditions.

These population groups, among others, are also highlighted in the context of MMT service in the 2050 RTP.

Older Adults 

Most areas with high concentrations of older adults (age 65 and up) are located near existing transit service (Figure 5). There are some areas with higher concentrations of older adults living in neighborhoods on the outskirts of the City of Colorado Springs that lack MMT fixed-route service.

Figure 5. Density of Older Adults

Map of the residents who are aged 65 years and older per acre. The lightest pink color denotes less than 0.4 older residents per acre, the light orange denotes 0.4 to 1, the orange denotes 1 to 2, the red denotes 2 to 3, and the darkest red denotes 3 to 5 older residents per acre. Notably, there is a higher concentration of older adults in the outskirts of the City Colorado Springs (near Manitou Springs) that lack MMT fixed-route service.
Click here for an accessible version of Figure 5: Density of Older Adults

Additional Observations

  • Typically, older adults are not a primary fixed-route service ridership market. However, as also noted in the RTP, older adults may no longer be comfortable driving or are no longer able to drive. Transit and specialized transportation can help older adults continue to live independently, access healthcare, and meet essential needs.
  • There is an anticipated growth in older adults for the next few decades, implying there could be an uptick in future demand for specialized transportation (or ADA complementary paratransit in the case of older adults with disabilities who live within the service area).
  • As the population ages, transportation needs become intertwined with housing choices. Often, the choice for individuals is to either relocate to areas with better accessibility or opt to age in place in current residences. This choice can significantly impact transportation options for older adults, especially in areas lacking fixed-route services.
  • In the absence of fixed-route services, isolated individuals without access to a vehicle must navigate and secure transportation through other options, including their social networks and community groups.

People with Disabilities 

Figure 6 shows the density of people with disabilities overlaid with the ADA complementary paratransit service area. People with disabilities live across the region, with some more dense clusters in central and south Colorado Springs. While most people with disabilities have access to MMT fixed-route and/or ADA service, there is a portion of northeastern Colorado Springs that is outside the Mountain Metro Mobility service area and lacks ADA complementary paratransit service. 

Figure 6. Density of People with Disabilities

Map of the density of people with disabilities per acre overlaid on top of the MMT paratransit service area (denoted in light blue). The lightest pink color denotes less than 0.3 people with disabilities per acre, the light orange denotes 0.3 to 0.8, the orange denotes 0.8 to 1.6, the red denotes 1.6 to 3.5, and the darkest red denotes 3.5 to 7 people with disabilities per acre. There are some more dense clusters in central and south Colorado Springs where people with disabilities live.
Click here for an accessible version of Figure 6: Density of People with Disabilities

Additional Observations

  • As noted in the RTP, people with disabilities may be more likely to rely on transit and ADA complementary paratransit services to meet their transportation needs and maintain an independent lifestyle.
  • Beyond medical and educational transportation, a significant portion of specialized transportation trips for people with disabilities cater to varied purposes, including adult day programs. Ensuring accessibility to these diverse needs remains a challenge for people with disabilities.
  • Through assessments and education, the Independence Center provides reduced fixed-route fare ID cards (on behalf of MMT) specifically for people with disabilities.

Low-Income Households 

Low-income households throughout Colorado Springs are well served by existing transit service, except for some neighborhoods outside of the MMT service area in the northeast, northwest, and southwest outskirts of the City of Colorado Springs (Figure 7). 

Figure 7. Density of Low-Income Households

Map of the households earning less than $25,000 per year per acre. The lightest pink color denotes less than 0.2 households earning less than $25,000 per year per acre, the light orange denotes 0.2 to 0.6, the orange denotes 0.6 to 1.1, the red denotes 1.1 to 2.4, and the darkest red denotes 2.4 to 5 low-income households per acre. The highest concentration of low-income households tends to be in the east and central areas of Colorado Springs.
Click here for an accessible version of Figure 7: Density of Low-Income Households

 Additional Observations

  • While Medicaid NEMT transportation offers versatility in service providers, its applicability is limited to specific situations and trip types for low-income communities.
  • The absence of a specific source of specialized transportation information following the OC/OC center’s closure can lead to disparities in accessibility and service awareness.
  • Transportation for people with low incomes is available for other sustainable modes, such as bicycle leasing programs sponsored by the Colorado Energy Office.

Summary of Key Needs in the Pikes Peak Region

There is currently not enough specialized transportation service to meet community demand. Specialized transportation providers have limited resources and a great amount of current demand. Thus, people must make reservations far in advance and availability is limited on these services. If somebody who lives outside the transit service area needs to get to the grocery store or an important appointment but has not made a reservation, they may need to find a willing and able friend or family member, pay extra delivery fees, or take expensive rides via taxi, Uber, or Lyft. 

Future demand will only increase the burden on specialized transportation. Anticipated growth in the region’s aging population equates to increased transportation demand. Some of these high-growth areas are in locations currently unserved by the MMT transit service, which, if not covered by a fixed-route expansion, will increases the burden placed on specialized transportation, volunteer drivers, and expensive ridehailing services.

People have difficulty navigating the existing specialized transportation system. With multiple providers, eligibility requirements, and funding sources tied to each ride and geography served, there is a complicated and bureaucratic system to navigate. Without the resources of a centralized information center or platform, the burden is forced on the rider to contact each specialized provider and figure out their service.

Past attempts to provide unified information and booking services in the Pikes Peak region have been unsuccessful. In addition to the call center ceasing, providers lack resources to deal with certain situations and challenges shared amongst all providers, such as Medicaid reimbursements and rejections.

Although consolidating systems is challenging due to different standards set by grants and compliance, there is still a need for coordination. Recent efforts led by specialized transportation providers demonstrate the interest and commitment towards finding ways to improve efficiency. In 2024, Envida, Silver Key, and Fountain Valley Senior Center collaborated on using the EcoLane software with the goal of increasing efficiencies and riders.

The existing transit system (MMT) is perceived by some potential riders as inaccessible due to inadequate and unsafe walking experiences. Public feedback for this planning process was supportive of riding transit, but on the condition that it is safer for them to access by sidewalks and other multimodal amenities. With El Paso County leading the State in traffic fatalities2 and third place3 for pedestrian fatalities in 2023, the region has much work to do to improve conditions for people travelling outside of vehicles. When fixed-route transit stops and the routes leading to them are made safer and universally accessible, the need and burden on ADA complementary paratransit and the specialized transportation system may decrease or shift to other underserved locations.

  1. $40.69 (80% reimbursement as reported by PPACG) + $10.17 (calculated 20% match) = $50.86
  2. B. Finley, “Colorado saw 6% dip in overall traffic deaths in 2023 — but a record-high 131 pedestrian fatalities,” The Denver Post, 27 January 2024
  3. O. Prentzel, “Colorado is getting deadlier for pedestrians and cyclists, despite overall drop in traffic deaths,” The Colorado Sun, 2 February 2024