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A utilidor is a ‘system of systems’ infrastructural solution to the ‘subsurface spaghetti’ problem resulting from direct burial of utility transmission infrastructure beneath the public right of way (PROW). The transition from direct burial to utilidors in older, dense American cities has generally not occurred, despite the potential to increase system performance in a long-term, !nancially and environmentally sustainable manner, because it would require reform of local planning practices and of utility pricing to support !nancing within a complex regulatory system. Utilidor adoption in New York City (NYC) would be a signi!cant local infrastructure transition, amplifying the need for localitybased research, that would occur while each utility sector undergoes its own infrastructure transitions, thereby increasing the level of regulatory complexity. This paper applies transitions analysis, recursive collective action theory, and capacity to act analysis to NYC’s experience with its PROW subsurface spaghetti problem and utilidor implementation to demonstrate a placebased methodology that identi!es speci!c sources of resistance to innovative subsurface design and feasible pathways for resolving them. This methodology would be transferable for application to other American cities or classes of American cities to supplement the limits of generalised subsurface and subsurface resource integration research for practitioner application.