Where Roads and Utilities Meet: Effectively managing utilities in complex highway projects

By Andrew Mansfield and Andrew Wittig 

The effective management of existing and proposed utilities is a critical success factor for large-scale highway expansion initiatives.

Highway expansion programs, particularly those valued in the billions of dollars, present complex challenges in utility management. These projects often intersect with major energy transmission lines, multiple utility corridors, and diverse stakeholder interests.

When there are additional project complexities present, including federally regulated pipelines and high-voltage transmission lines, this dictates the need for structured coordination and robust contingency planning, while inspiring technical innovations

By implementing best practices for utility coordination, stakeholder engagement, and risk mitigation, we can create a set of actionable recommendations for designers, builders, utility operators, and property owners to ensure timely, cost-effective, and compliant project delivery.

Through early identification of the key issues, time and space is created for development of innovative solutions. Leveraging this opportunity to add value through increased capacity, redundancy, and lifespans, we can enhance utility coordination using a future ready mindset.

Appreciating the Challenges

Managing utilities is a challenge on any roadway project, however this is exacerbated when dealing with projects at a larger scale.  Appreciating the challenges that utilities within the impact area can create, from the early stages of project development, can reduce the risk of cost and schedule implications:

• Technical Complexity: High-voltage transmission lines (e.g., Hydro One’s 500 kV and 230 kV) require precise clearance heights and design considerations. Utility conflicts can escalate project scope and costs.
• Logistical Constraints: Lead times for utility relocation, limited outage windows (spring or fall), and the necessity to maintain service during construction complicate scheduling. Missing an outage window can result in delays of six months or more.
• Cascading Conflicts: With overlapping or adjacent utilities, mitigation measures and relocations can quickly escalate to new or increased levels of conflict with other facilities or future considerations.
• Regulatory and Legal Requirements: Compliance with Canada Energy Regulator (CER) mandates, alongside provincial requirements (e.g., Build Highways Faster Act), introduces additional complexity in legal agreements and procedures for utility relocations.
• Information Management: The risk of information overload is present as utility data is mapped and shared online for stakeholders, municipalities, and the public.

Successful utility management requires active collaboration among designers, builders, utility operators, and property owners. There are key actions that can be taken to create this essential level of teamwork and data management, including early relationship-building, regular biweekly meetings, and transparent information flow. In Ontario specifically, the Ministry of Transportation’s push for early assessments and design work, though more demanding, has been effective in reducing risks and accelerating project timelines.

When Municipalities are Involved

When projects enter municipal jurisdiction, an additional layer of complexity is added to the project. Similar to what’s needed when working within provincial and federal needs and considerations, municipal coordination and consideration of complementary projects (e.g., road widening) are vital to avoid future conflicts and optimize shared infrastructure investments.

There are tools that should be developed to help support understanding of, and track actions on, municipal considerations for utilities management:

• Utility Conflict Matrix: Develop a comprehensive matrix listing all utilities—existing, abandoned, proposed, crossing, adjacent, and conflicting—by owner, type, lead time, construction time, and importance. This tool enables prioritization and risk assessment.
• GIS Mapping: Utilize Geographic Information Systems (GIS) to layer utility data by type, improve accessibility, and enhance decision-making. Accuracy and data management remain key considerations.
• Early Assessments and Contingency Planning: Initiate assessments and design work at the preliminary stage. Incorporate elevation and plan contingencies (e.g., a meter of buffer elevation in highway design) to accommodate potential changes and minimize downstream conflicts and subsequent schedule impacts.
• Focus on Critical Utilities: Prioritize resolution of major conflicts affecting the project schedule, while deferring minor issues to detailed design.

By addressing these considerations at the early stages of the project, we minimize the complications that can emerge throughout the design, engineering, and construction phases.  

Developing a Plan for Success

It’s also important to appreciate that utility relocations must adhere to Canada Energy Regulator (CER) regulations, which require legal agreements beyond standard ministry procedures.

Early engagement with regulatory bodies and compliance planning is essential to avoid delays and ensure all statutory requirements are met.

Plan ahead for the needed coordination and collaboration, using transparent tools and resources that keep information flowing throughout the project:

• Establish Early and Regular Coordination: Initiate biweekly stakeholder meetings and relationship-building activities to facilitate information sharing and collaborative problem-solving. Utilizing targeted brainstorming sessions for complex issues will foster outside the box thinking and provide opportunities for technical innovation.
• Develop a Utility Conflict Matrix: Maintain a detailed inventory of all utilities, updated through preliminary and detailed design phases, to support risk mitigation and schedule management.
• Leverage GIS Mapping: Make utility data accessible to stakeholders and municipalities through GIS platforms, while managing information overload and ensuring data accuracy.
• Plan for Outage Windows and Lead Times: Build sufficient float into schedules  to account for missed outage windows and unexpected delays.
• Engage Municipalities and Address Complementary Projects: Identify and plan for related infrastructure needs to prevent future conflicts and streamline delivery.
• Ensure Regulatory Compliance: Secure legal agreements early and maintain alignment with CER and provincial requirements.
• Incorporate Contingency in Design: Integrate elevation buffers and other contingencies to reduce the risk of late-stage changes.

Utility management in large-scale highway expansion programs demands technical rigor, proactive stakeholder engagement, and comprehensive risk mitigation strategies. By adopting best practices—such as early coordination, conflict matrix development, GIS mapping, and regulatory compliance—project teams can minimize conflicts, optimize schedules, and deliver infrastructure that meets both current and future needs.

With the adoption and implementation of the recommendations presented, successful project outcomes and sustainable project development will be accomplished.

Andrew Mansfield is a Manager of Transportation, Ontario, for WSP in Canada.

Andrew Wittig is a Senior Director for Highways & Roads, Ontario, for WSP in Canada.