Construction Management and Technology Program

When the American Society of Civil Engineers (ASCE) developed a utility as-built standard specification, the Iowa Department of Transportation (DOT) sponsored a series of projects to help the agency modernize its practices as it relates to utility infrastructure.

The first project, completed in 2023, led by Utility Mapping Services, P.C. and Construction Management and Technology (CMAT) program Construction Engineer Roy Sturgill developed a road map for the modernization. Two more recently concluded projects led by Sturgill used that road map as a guide and had the following titles and goals:

• Best Practices for Utility Management in the Public Right of Way developed a comprehensive utility management approach by compiling best practices to help control the planning and installation of utilities within the public right of way (ROW), document utility as-built plans and location information, and manage this information for the benefit of future construction efforts.
• Project Development and Utility Coordination as a Partnership developed and proposed procedures for incorporating partnerships with utility stakeholders into the early stages of the project development process at the Iowa DOT, with the broader goal of streamlining workflows to reduce utility-related delays and cost overruns.

“Both construction projects and utility systems are much more complex today,” Sturgill said. “Moving utilities out of the way for Iowa DOT projects is often no longer a simple matter or the best option when it comes to scheduling, costs, and public interest. Thus, the Iowa DOT’s policies, procedures, and technologies regarding utilities needed updating.”

That work by the Iowa DOT has been ongoing since the initial project and will continue with the completion of these two more recent projects, particularly as the agency works to implement the recommendations for developing training programs and updating the Iowa DOT’s guidance manuals and policies to foster cohesion and collaboration that are included in the final report for the utility coordination project.

“By implementing these recommendations, the Iowa DOT can streamline its project development processes, reduce utility-related delays, and foster a more collaborative environment with utility stakeholders,” Sturgill said. “This will ultimately benefit project managers, designers, utility coordinators, and the public by ensuring more efficient and cost-effective highway projects.”

However, the survey conducted as part of best practices for utility management project identified challenges that remain, specifically as it relates Iowa’s local agencies’ public ROW. Some of the findings include the following:

• More than 40% of respondents did not have a standard utility accommodation policy, and a third of respondents felt their existing policies were inadequate or ineffective.
• Nearly 90% of agencies’ accommodation policies for primary roads do not align with the state’s recently updated policy.
• Three-quarters of the respondents do not require utility providers to survey or record locations after project completion.
• Nearly 85% do not mandate the submission of as-builts after installation, and a concerning 92% do not typically receive as-built documents from utility providers when mandated.

In addition to those gaps, the amount of utilities in the ROW, both underground and above ground, has been increasing during the past two decades with little immediate response to the changes. It can be even more challenging in larger Iowa cities, where public space may be limited to allow new utilities or expansion of existing ones.

“So, we’re still dealing with utilities the same way that we dealt with them 20, 30, 40, 50 years ago, and we need to really consider increases in staff, uses of technology to support these installations, and what kind of budget we need to allocate to managing these practices,” Sturgill said.

He added, “Consistency would allow municipalities to improve the efficiency of their interactions with one another and lower the burden on utility companies seeking utility permits because these companies would be able to count on more consistency across Iowa municipalities.”

These gaps and challenges are not only an issue for local agencies but they can have an impact on the public when there are delays to and additional costs associated with roadway projects because of previous poor utility management and current lack of utility coordination.

To help improve utility management practices in Iowa, Sturgill recommends agencies take the three C approach: coordination, cooperation, and communication.

Specifically, the best practices report had seven recommendations: implement statewide policies and practices; mandate statewide digital as-built documentation standards; encourage the use of designated utility corridors to consolidate infrastructure, reduce congestion, and optimize ROW utilization; improve congestion management through streamlined coordination protocols; strengthen enforcement of permitting and installation guidelines; establish rigorous procedures and warranty requirement for utility work on state highways; and develop clear policies and procedures to regulate abandoned utilities.

“By adopting the integrated strategies outlined in the recommendations, Iowa can move toward a more efficient, coordinated, and sustainable approach to utility management, ultimately reducing project costs and delays, enhancing safety, and protecting vital ROW space for future infrastructure needs,” Sturgill said.

In addition to the final reports and technical summaries available on their respective project pages for the ROW best practices and utility coordination as a partnership research, Sturgill also conducted a webinar on ROW best practices that is also available on that project page.