TRANSPORTATION RESEARCH BOARD 2026 EXECUTIVE COMMITTEE^*

OFFICERS

Chair: Joel M. Jundt, Secretary of Transportation, South Dakota Department of Transportation, Pierre

Vice Chair: Randell Iwasaki, President and CEO, Iwasaki Consulting Services, Walnut Creek, CA

Executive Director: Victoria Sheehan, Transportation Research Board, Washington, DC

MEMBERS

James F. Albaugh,President and CEO, The Boeing Company (retired), Scottsdale, AZ

Marsha Anderson Bomar,Strategic Transportation Advisor, GHD, Duluth, GA

Douglas C. Ceva,Vice President, Customer Lead Solutions, Prologis, Inc., Jupiter, FL

Nancy Daubenberger,Commissioner of Transportation, Minnesota Department of Transportation, St. Paul

Garrett Eucalitto,Commissioner, Connecticut Department of Transportation, Newington

Andrew Fremier,Executive Director, Metropolitan Transportation Commission, San Francisco, CA

Martha Grabowski,Professor Emerita, Information Systems, Le Moyne College, Madden College of Business and Economics, Cazenovia, NY

Edward Hassinger,Director, Missouri Department of Transportation, Jefferson City

Shante Hastings,Cabinet Secretary, Delaware Department of Transportation, Dover

Carol A. Lewis,Professor, Transportation Studies, Texas Southern University, Houston

Ricardo Martinez,Adjunct Professor of Emergency Medicine, Emory University School of Medicine, Decatur, GA

Russell McMurry,Commissioner, Georgia Department of Transportation, Atlanta

Craig E. Philip,Research Professor and Director, VECTOR, Department of Civil and Environmental Engineering, Vanderbilt University, Nashville, TN

Steward T.A. Pickett,Distinguished Senior Scientist, Cary Institute of Ecosystem Studies, Millbrook, NY

Leslie S. Richards,Professor of Practice, University of Pennsylvania, Philadelphia

Tracy Larkin Thomason,Director, Nevada Department of Transportation, Carson City

Marc Williams,Executive Director, Texas Department of Transportation, Austin

EX OFFICIO MEMBERS

Derek Barrs,Administrator, Federal Motor Carrier Safety Administration, Washington, DC

Steven G. Bradbury,Deputy Secretary, U.S. Department of Transportation, Washington, DC

Stephen Carmel,Administrator, U.S. Maritime Administration, Washington, DC

Tara Cavalline,Professor, University of North Carolina, Charlotte, and Chair, TRB Technical Activities Council

David Fink,Administrator, Federal Railroad Administration, Washington, DC

Firas Ibrahim,Director, Office of Research, Development, and Technology, Office of the Assistant Secretary for Research and Technology, Washington, DC

Jason Kelly,Deputy Commanding General for Civil Works and Emergency Operations, U.S. Army Corps of Engineers, Washington, DC

Sandra Knight,President, WaterWonks, LLC, Washington, DC, and Chair, TRB Marine Board

Sean McMaster,Administrator, Federal Highway Administration, Washington, DC

Marcus J. Molinaro,Administrator, Federal Transit Administration, Washington, DC

Jonathan Morrison,Administrator, National Highway Traffic Safety Administration, Washington, DC

Seval Oz,Senior Advisor, Office of the Assistant Secretary for Research and Technology, Washington, DC

Niloo Parvinashtiani,Engineer, Mobility Consultant Solutions, Iteris Inc., Fairfax, VA, and Chair, TRB Young Participants Council

Paul Roberti,Administrator, Pipeline and Hazardous Materials Safety Administration, Washington, DC

Paul P. Skoutelas,President and CEO, American Public Transportation Association, Washington, DC

Jim Tymon,Executive Director, American Association of State Highway and Transportation Officials, Washington, DC

__________________________

^*Membership as of February 2026.

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

NCHRP RESEARCH REPORT 1169

Data Ontologies for Data-Driven Decision-Making

DEVELOPMENT AND USE

Richard Boadi

Connor Bruce

WSP

Herndon, VA

Subscriber Categories

Administration and Management • Data and Information Technology

Research sponsored by the American Association of State Highway and Transportation Officials in cooperation with the Federal Highway Administration

2026

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

Systematic, well-designed, and implementable research is the most effective way to solve many problems facing state department of transportation (DOT) administrators and engineers. Often, highway problems are of local or regional interest and can best be studied by state DOTs individually or in cooperation with their state universities and others. However, the accelerating growth of highway transportation results in increasingly complex problems of wide interest to highway authorities. These problems are best studied through a coordinated program of cooperative research.

Recognizing this need, the leadership of the American Association of State Highway and Transportation Officials (AASHTO) in 1962 initiated an objective national highway research program using modern scientific techniques—the National Cooperative Highway Research Program (NCHRP). NCHRP is supported on a continuing basis by funds from participating member states of AASHTO and receives the full cooperation and support of the Federal Highway Administration (FHWA), United States Department of Transportation.

The Transportation Research Board (TRB) of the National Academies of Sciences, Engineering, and Medicine was requested by AASHTO to administer the research program because of TRBʼs recognized objectivity and understanding of modern research practices. TRB is uniquely suited for this purpose for many reasons: TRB maintains an extensive committee structure from which authorities on any highway transportation subject may be drawn; TRB possesses avenues of communications and cooperation with federal, state, and local governmental agencies, universities, and industry; TRBʼs relationship to the National Academies is an insurance of objectivity; and TRB maintains a full-time staff of specialists in highway transportation matters to bring the findings of research directly to those in a position to use them.

The program is developed on the basis of research needs identified by chief administrators and other staff of the highway and transportation departments, by committees of AASHTO, and by the FHWA. Topics of the highest merit are selected by the AASHTO Special Committee on Research and Innovation (R&I), and each year R&Iʼs recommendations are proposed to the AASHTO Board of Directors, the FHWA, and the National Academies. Research projects to address these topics are defined by NCHRP, and qualified research agencies are selected from submitted proposals. Administration and oversight of research contracts are the responsibilities of NCHRP.

The needs for highway research are many, and NCHRP can make significant contributions to solving highway transportation problems of mutual concern to many responsible groups. The program, however, is intended to complement, rather than to substitute for or duplicate, other highway research programs.

NCHRP RESEARCH REPORT 1169

Project 23-27
ISSN 2572-3766 (Print)
ISSN 2572-3774 (Online)
ISBN 978-0-309-60370-6
Library of Congress Control Number 2026935616

© 2026 by the National Academy of Sciences. National Academies of Sciences, Engineering, and Medicine and the graphical logo are trademarks of the National Academy of Sciences. All rights reserved.

COPYRIGHT INFORMATION

Authors herein are responsible for the originality and accuracy of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein.

The National Academy of Sciences (NAS) grants permission to reproduce written material in this publication for classroom and non-commercial purposes subject to the rights of any third parties and appropriate attribution. Permission is given with the understanding that none of the material will be used to imply NAS, TRB, AASHTO, APTA, FAA, FHWA, FTA, GHSA, or NHTSA endorsement of a particular product, method, or practice. For other uses of the written material, users must request permission from the National Academies Press.

NOTICE

The research report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the National Academies of Sciences, Engineering, and Medicine.

This material is based upon work supported by the FHWA under Agreement No. 693JJ32350025. Any opinions, findings, and conclusions or recommendations expressed or implied in this document are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; the FHWA; or the program sponsors.

The Transportation Research Board does not develop, issue, or publish standards or specifications. The Transportation Research Board manages applied research projects which provide the scientific foundation that may be used by Transportation Research Board sponsors, industry associations, or other organizations as the basis for revised practices, procedures, or specifications.

The Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; and the sponsors of the National Cooperative Highway Research Program do not endorse products or manufacturers. Trade or manufacturersʼ names or logos appear herein solely because they are considered essential to the object of the report.

Published research reports of the

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

are available from

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and can be ordered through the internet by going to

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Printed in the United States of America

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, nongovernmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president.

The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. Tsu-Jae Liu is president.

The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president.

The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine.

Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org.

The Transportation Research Board is one of four centers of the National Academies of Sciences, Engineering, and Medicine. The mission of the Transportation Research Board is to mobilize expertise, experience, and knowledge to anticipate and solve complex transportation-related challenges. The Board’s varied activities annually engage more than 5,500 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state departments of transportation, federal agencies including component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation.

Learn more about the Transportation Research Board at www.TRB.org.

COOPERATIVE RESEARCH PROGRAMS

CRP STAFF FOR NCHRP RESEARCH REPORT 1169

Monique R. Evans,Director, Cooperative Research Programs

Waseem Dekelbab,Deputy Director, Cooperative Research Programs, and Manager, National Cooperative Highway Research Program

Michael Brooks,Senior Program Officer (former)

Trey Joseph Wadsworth,Senior Program Officer

Dajaih Bias-Johnson,Senior Program Assistant

Natalie Barnes,Director of Publications

Brian Haefs,Associate Director of Publications

Dominique Williams,Editor

NCHRP PROJECT 23-27 PANEL
Field of Administration—Area of Agency Administration

Richard Scott,Vermont Agency of Transportation, Barre, VT (Chair)

Majed N. Al-Ghandour,North Carolina State University, Raleigh, NC

Austin Baysinger,Utah Department of Transportation, Salt Lake City, UT

Moses Garcia,Austin, TX

Jane Frances Macfarlane,Lawrence Berkeley National Laboratory, Berkeley, CA

Hunter Owens,California Department of Transportation, Los Angeles, CA

Michael Pipp,Helena, MT

Brittany Voll,Virginia Department of Transportation, Richmond, VA

Matt James Spiel,FHWA Liaison

Penelope Z. Weinberger,AASHTO Liaison

FOREWORD

By Trey Joseph Wadsworth
Staff Officer
Transportation Research Board

NCHRP Research Report 1169: Data Ontologies for Data-Driven Decision-Making: Development and Use presents an advanced data representation and knowledge management guide, providing state departments of transportation (DOTs) with tools and techniques to treat data as a business asset. The guide also provides state DOTs with essential resources to develop and implement data ontologies that support data-driven decision-making. It was developed through a literature review, survey, case studies, and use cases. The information contained in the guide will be of immediate interest to transportation data practitioners and managers. The findings will serve as a valuable resource for state DOTs and other public transportation agencies.

State DOTs collect and use data to both inform decisions and manage assets and programs. Much of the data are managed using legacy systems that are not interoperable and are difficult to update. These systems are used because they are relevant and understood by their users. However, the systems are less useful for decision-making across functional areas or modes and require integration with modern data technologies.

Using legacy systems for cross-functional decisions requires a “data warehouse,” moving all agency data to an enterprise-level platform. While this approach does provide agencywide access, it does not address differences in data models or provide a shared understanding of the data. Data governance is required with a management approach that treats data as an asset, such as traditional transportation assets. This approach also requires data representations that include data ontologies, glossaries, taxonomies, registries, catalogs, metadata, and models.

Under NCHRP Project 23-27, “Strategies for Developing and Using Data Ontologies for Data-Driven Decision-Making,” WSP was tasked with developing a guide for state DOTs on strategies for implementing data ontologies that support nimble and efficient data-driven decision-making.

In addition to NCHRP Research Report 1169, the following deliverables are available on the National Academies Press website (nationalacademies.org/publications) by searching for NCHRP Research Report 1169: Data Ontologies for Data-Driven Decision-Making: Development and Use:

• NCHRP Web-Only Document 441: Data Ontologies for Data-Driven Decision-Making: Research Approach and Findings, which is the research agencyʼs conduct of research report documenting the development of the guide and entire research effort
• A memorandum on the implementation of the final research findings and products
• A PowerPoint presentation summarizing NCHRP 23-27

CONTENTS

Summary

Chapter 1 Introduction

1.1 Overview

1.2 Purpose of the Guide

1.3 Intended Audience

1.4 Tips for Guide Use

1.5 Organization of the Guide

Chapter 2 Understanding Data Ontologies

2.1 Business-Driven Data Representation

2.2 Key Terms and Definitions

2.3 Relationship with Data Governance and Management

2.4 Why Develop Data Ontologies?

2.5 Existing Practices

2.6 Integrating Ontologies with Legacy System Transition

Chapter 3 Creating and Deploying Data Ontologies

3.1 General Description of the DATA Framework

3.2 Essential Attributes of the DATA Framework

Chapter 4 Methodology for Creating a Data Ontology

4.1 Pillar D: Designing a Plan

4.2 Pillar A1: Assembling the Ontology

4.3 Pillar T: Testing the Ontology

4.4 Pillar A2: Adapting to Change

4.5 Implementation Barriers

Chapter 5 Integrating Data Ontologies

5.1 Integrating into an Agency

5.2 Integration Requirements

5.3 Summary of Integration

Chapter 6 Case Studies

6.1 Case Study 1: Indiana DOT – Digital Highway Construction Inspection Ontology

6.2 Case Study 2: Washington State DOT – Transportation Manuals and Data Catalog

6.3 Case Study 3: National Institutes of Health – National Human Genome Research Institute – The Disease Ontology

References

Glossary