There are a bunch of utility code only used by non-library code/tools in ICU4J repository.
These utility classes are also used by CLDR tooling. For now, ones used by CLDR are packaged as utilities.jar.
Most of these classes are in com.ibm.icu.dev.test.util package. Unfortunately, this package is used with two different semantics -
1) test classes for com.ibm.icu.util package APIs
2) common utility code used by test code
To avoid future confusion, I'd like to sort out packaging of utility classes out of core icu4j.jar used by other projects including CLDR. This also allow us to package src.jar along with binaries.