Out-of-Service Utility Facilities: Management Throughout the Highway Life Cycle (2026)
Chapter: Front Matter
Long Description.
A view of two new yellow pipes carefully installed in a deep trench for infrastructure development. There is machinery at ground level. Adobe Stock 1936868674, design goodie.
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: Ann M. Brach, 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
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, Distinguished Senior Research Scientist, Rensselaer Polytechnic Institute, Troy, 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
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
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
Jamie Pfister, Administrator, Federal Transit Administration, Washington, DC
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 May 2026.
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
NCHRP RESEARCH REPORT 1185
Out-of-Service Utility Facilities
MANAGEMENT THROUGHOUT THE HIGHWAY LIFE CYCLE
Edgar Kraus
Harshit Shukla
Kristopher Harbin
Jenny Naranjo
Minjie Xu
Texas A&M Transportation Institute
The Texas A&M University System
College Station, TX
Subscriber Categories
Pipelines • Construction • Terminals and Facilities
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 1185
Project 08-148
ISSN 2572-3766 (Print)
ISSN 2572-3774 (Online)
ISBN 978-0-309-60802-2
Library of Congress Control Number 2026945784
© 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.
Cover photo credit: New yellow pipes are carefully installed in a deep trench for infrastructure development. Adobe Stock 1936868674, design goodie.
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
National Academies Press
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Washington, DC 20001
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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 Boardʼs 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 1185
Monique R. Evans, Director, Cooperative Research Programs
Waseem Dekelbab, Deputy Director, Cooperative Research Programs, and Manager, National Cooperative Highway Research Program
Christopher T. McKenney, Senior Program Officer
Sheila A. Moore, Program Associate
Natalie Barnes, Director of Publications
Brian Haefs, Associate Director of Publications
Janet M. McNaughton, Senior Editor
NCHRP PROJECT 08-148 PANEL
Field of Transportation Planning—Area of Planning Methods & Processes
Patrick Overton, Florida Department of Transportation, Tallahassee, FL (Chair)
Eric C. Cimo, Delaware Department of Transportation, Dover, DE
Marvin Gerard Dalla Rosa, Garver, North Little Rock, AR
Jillian Gattuso, Mott MacDonald, LLC, La Jolla, CA
Alexander Hainen, University of Alabama, Tuscaloosa, AL
Scott Evan Lucas, City of Columbus, Columbus, OH
Jennifer H. McCleve, Kentucky Transportation Cabinet, Frankfort, KY
Nikesh S. Patel, City of Sarasota, Sarasota, FL
Thomas G. Swafford, Utility Mapping Services, Inc., Lake Norden, SD
Claudia Valles, Michael Baker International, Inc., San Antonio, TX
Julie A. Johnston, FHWA Liaison
FOREWORD
By Christopher T. McKenney
Staff Officer
Transportation Research Board
NCHRP Research Report 1185 presents a guide for determining applicable processes when out-of-service facilities are encountered within the highway right-of-way during construction projects. An analytical methodology that incorporated stakeholder interviews, case studies, and a peer review workshop was used to develop the guide. Its purpose is to improve project efficiency, reduce construction delays, and facilitate the timely resolution of out-of-service facility occurrence. This guide will be of immediate interest to state departments of transportation (DOTs) and other practitioners involved in utility identification and location, as it helps clarify stakeholder roles, responsibilities, and expectations throughout the entire process.
Aging utility infrastructure, new technologies, and population growth in the United States are increasing the difficulty of maintaining utility systems while meeting rising demand for these systems. Utility companies must balance maintaining existing facilities and expanding new utilities while addressing the costs of the removal of abandoned, retired, or decommissioned utility facilities. As more and more utility facilities occupy public rights-of-way, the impacts of out-of-service (OOS) facilities become significant. These facilities are often undocumented in utility maps, unmarked by 811 locators, and may not be discovered until contractors physically expose them. This can delay construction while the facilityʼs type, owner, and operational status are determined and potential impacts are evaluated. Research was needed to define effective processes to help state DOTs in locating OOS facilities or addressing them during utility coordination.
Under NCHRP Project 08-148, “A Guide for Management of Out-of-Service Facilities,” the Texas A&M Transportation Institute was asked to develop a guide for the management of OOS facilities. The framework of the guide was based on a methodology to (1) improve transportation construction efficiency by identifying OOS utilities and mitigating their impacts during construction; (2) assess current OOS practices among state DOTs and other OOS facility stakeholders; (3) develop case studies on procedures and methods used in the permitting process, project development and construction, and data management; and (4) integrate a readiness assessment of digital technologies and systems to support remote visual inspection activities for highway construction projects with implementation requirements.
NCHRP Research Report 1185 is accompanied by a conduct of research report, NCHRP Web-Only Document 454: Developing a Guide to Manage Out-of-Service Utility Facilities, which is available at nationalacademies.org/publications. The project implementation memorandum and a slide presentation that provides an overview of the project can also be found at nationalacademies.org/publications by searching for NCHRP Research Report 1185: Out-of-Service Utility Facilities: Management Throughout the Highway Life Cycle.
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CONTENTS
Chapter 1 Introduction: Utility Interactions with the Transportation System
Challenges of Managing Utilities in the Public Right-of-Way
Overview of OOS Utility Facilities
Common Terms in Federal Provisions
Common Terms in State Provisions
Chapter 3 Laws, Regulations, and Policies
Chapter 4 Addressing Hazardous Materials When Managing OOS Facilities
Chapter 5 Management of OOS Facility Risks
Common Risks Associated with OOS Facilities
Locating Practices and Root Causes of Underground Damage to Facilities
Trends in Damages to Underground Facilities
Assessment of Risks Associated with OOS Utilities
Chapter 6 Depiction and Management of OOS Facility Data
Federal and National Guidelines
Chapter 7 OOS Facilities During the Project Development Process
Innovative OOS Utility Management Practices in the Project Planning Phase
Innovative OOS Utility Management Practices in the Project Design Phase
Innovative OOS Utility Management Practices in the Project Construction Phase
Innovative OOS Utility Management Practices in the Project Maintenance and Operations Phase
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