I thank Members of the House for the opportunity to provide an update on the Government’s work to accelerate infrastructure delivery, and to discuss my Department’s role in the management and delivery of capital projects and programmes. In particular, I will outline some of the recent and ongoing developments in my Department, as we implement the actions contained in the accelerating infrastructure action plan which the Government published in December.
As we look back on recent weeks and the rupture in the global international order, the case for fundamental reform has never been stronger. The need for high quality, modern infrastructure has never been clearer. The choices we now set in motion on infrastructure delivery will determine our economic competitiveness, our climate resilience, the protection and creation of jobs, and, ultimately, the quality of life enjoyed by people in communities across the country.
I am acutely aware of the multifaceted and interconnected challenges the Government faces in infrastructure deficits and the need to prioritise investment in major housing, water, energy and transport projects. In the programme for Government, published one year ago, we made five key commitments for infrastructure delivery. They were: to create a Cabinet committee on infrastructure to drive delivery; to undertake an early review of the national development plan; to review and reform the prioritisation of capital projects in key agencies; to broaden the remit of the National Development Finance Agency, NDFA, to provide expert advice for major infrastructure; and to create a dedicated infrastructure division in my Department, including formation of an accelerating infrastructure task force to assess the implementation of measures to accelerate infrastructure delivery.
In the past 12 months, we have delivered on each of these commitments. The Cabinet committee on infrastructure to drive delivery was established in April last year. The review of the national development plan was published in July. Sectoral plans setting out the projects and programmes to be prioritised by each Department over the next five years have been published. The NDFA is broadening its remit for the provision of expert advice on major infrastructure; and the dedicated infrastructure division in my Department was established with a new deputy secretary general appointed last December.
Moving beyond the programme for Government commitments and towards the concrete actions that will be taken over the lifetime of this Government, we published the NDP review and the report on engagement and barriers to infrastructure in July and the subsequent Accelerating Infrastructure Report and Action Plan in December. These three documents represent an unprecedented increase in investment, a realistic outline of the barriers to infrastructure delivery and a time-bound plan to remove those barriers.
The Government has set out annual sectoral allocations for 2026 to 2030, and overall Government capital expenditure ceilings to 2035, leading to a total public capital investment of €275.4 billion over the period to 2035. This includes €202.4 billion in Exchequer voted capital expenditure from 2026 to 2035. Of this, €102.4 billion is being allocated over the five-year period 2026 to 2030, which represents a 30% increase over the previously agreed capital ceilings for the same period. This is an additional €23.9 billion over and above the previous allocation and is further complemented by an investment of €10 billion in equity and fund releases, which is specifically being provided for investment to expansively improve and upgrade infrastructure mega-projects in the water, energy and transport sectors over the period to 2030.
Some €3.5 billion in equity funding was provided to ESB Networks and EirGrid in 2025 to fund enhanced energy grid capacity to support the Government's housing and competitiveness objectives. Some €2 billion in equity funding has been provided to Uisce Éireann to enable the delivery of 300,000 additional homes. A further €2.5 billion in funding is being provided to commence the greater Dublin drainage and water supply project over the period to 2030, and €2 billion from the Infrastructure, Climate and Nature Fund will fund and support low-carbon transportation, such as MetroLink.
The review prioritised increased investment in critical infrastructure for water, energy, transport and housing to allow us to enable the delivery of hundreds of thousands of additional homes; provide greater opportunities for our enterprise economy and support our international competitiveness; and support all other necessary economic and social development, such as schools, hospitals and further and higher education. Total capital investment in 2025 was €16.6 billion. This will be increased to an allocation of €19.1 billion for 2026, as outlined in the Estimates published in December. It represents the highest annual spend on capital investment in this country. Capital expenditure has increased by almost €9.5 billion or 97% over the period 2021 to 2026. This increased investment has seen its share rise from 11% of overall current and capital expenditure in 2021 to 16% in 2026.
Following the publication of the review last July, Departments began to develop their sectoral investment plans to provide specific details on projects they intend to deliver and progress between 2026 and 2030. These plans have provided the construction and built environment sector with a clear and structured pipeline of projects to be delivered over the next five years. I was pleased to participate in the launch of the education sectoral investment plan earlier today with the Minister, Deputy Naughton, which will provide hundreds of new buildings and school extensions, with a particular emphasis on special education over the next two years.
By outlining the scale, scope, and timing of upcoming infrastructure projects, the sectoral plans provide greater certainty for industry to be able to plan and scale capacity through investment in hiring, technology and innovation to deliver on the NDP. Considering sectoral needs and ministerial decisions, these plans reflect Government priorities, including the national planning framework commitment to balanced regional development. The plans published to date include planned investment and projects, including a range of projects across transport, health, education, justice and utility services. These sectoral plans are available online and provide further detail on a sectoral basis.
The core functions of my Department are expenditure management and reform and this dual remit underpins the Government’s approach to accelerating and expanding our delivery of infrastructure to maximise the impact for Ireland. The investment under the NDP is to ensure that we are equipped for the future and that we are making lasting sustainable change to the country. Record levels of expenditure provide us with a generational opportunity to transform our built environment and deliver the homes needed for our growing and changing demographics. However, to maximise this investment, reform is equally important. We are clear we cannot properly tackle infrastructure deficits through increased investment alone. Unprecedented funding allocations must be matched with unprecedented reform to deliver value for money and the projects required.
In April 2025, I established the infrastructure division in my Department and convened the accelerating infrastructure task force with a single mandate, that is, to identify the key barriers to infrastructure delivery and develop a comprehensive action plan to overcome them. The accelerating infrastructure task force brought together experts and stakeholders from across the infrastructure delivery system with the aim of tackling the most significant barriers to infrastructure delivery.
I chaired this task force, which met monthly, and ensured that the work and recommendations of the group were evidence based, practical, targeted and, crucially, capable of delivering measurable improvements in infrastructure timelines and outcomes.
The first report of the task force identified 12 barriers to infrastructure delivery in key areas, namely: the regulatory environment in particularly complex, overlapping consenting processes for submission and review and risk aversion in the system; the planning and legal systems, in particular judicial reviews, causing uncertainty and delay; and internal systems across the public and civil service, noting fragmented governance, procurement challenges and capacity constraints. The final report was published in December last year and focused on how we address these issues. It highlighted five key objective: to accelerate delivery of critical infrastructure, particularly in the areas of electricity, water and transport; to accelerate the delivery of all infrastructure by simplifying, streamlining and rebalancing the regulatory and consenting processes for infrastructure in general; to reduce delays caused by judicial reviews, regulatory complexity and fragmented approvals; to enhance co-ordination across Government, utilities and local authorities; and to build public and political support for infrastructure projects.
The report also sets out 30 targeted actions across four pillars to deliver on these objectives. Each of the actions outlined is explicitly linked to the barriers identified in July and how they interact with each other. These actions are not stand alone, and the total impact will be greater than the sum of the individual actions. There needs to be a complete mindset shift across our public services to ensure delivery is prioritised. This means a much greater risk appetite, much better regulatory balance and a decision-making culture which ensures that the public and national interest come first.
This is not a report of recommendations. The report is a statement of intent, and the Government is committed to implementing this action plan in full and on time. This is evident with clear deadlines for implementation included - which are concentrated, and the majority of which are in 2026 - clear responsibility for each action and defined measures of success and accountability. The Government is focused on making the step change necessary to have real impact on our infrastructure delivery.
The action plan spans four pillars. First, there is legal reform. This is designed to tackle excessive complexity in the regulatory and infrastructure development environment at the source. These legal reforms are specific and carefully considered to improve infrastructure delivery without compromising on environmental standards, individual rights or good governance. These reforms will work within the bounds of existing EU legislation to reduce disproportionate delays in the infrastructure development process and will create legal frameworks for critical and emergency infrastructure, ensuring that projects of high strategic importance or that are urgently needed can be prioritised by all State bodies and delivered quickly. The key actions under this pillar include: several measures to reform the judicial review process; enacting a critical infrastructure Bill; giving statutory designation for critical projects, thereby allowing them to be expedited through processes; and bringing forward emergency powers legislation to enable accelerated delivery in urgent situations consistent with EU law.
The second pillar is regulatory reform. Our current regulatory landscape is fragmented and overly complex. It is composed of numerous agencies, consents, assessments and licences. However, the system has developed over decades and each of these processes may serve an important function. This reform pillar is not just about removing regulation or lowering standards, and accelerating infrastructure delivery must not come at the cost of good governance or environmental standards. We will focus on simplifying and standardising processes in order that approvals run in parallel, where possible, with clearly stated expectations and statutory timelines for decisions. This goal is to align procedures across agencies, remove duplication and create processes that have predictable timelines and outcomes and that ultimately strike a better balance in the context of regulatory requirements. Some of the key actions under this pillar include the establishment of a regulatory simplification unit to proactively identify opportunities to simplify, create parallel systems and streamline regulatory processes. The legislation underpinning regulatory processes will also be rationalised. We will publish national planning statements to create legally binding guidance for planning authorities. This will create consistency, transparency and accountability in decision-making on infrastructure projects. We will change how we approach infrastructure in the context of EU law.
The third pillar is focused on reform of co-ordination and delivery. In order to deliver on the commitments in the national development plan and sectoral investment plans, Ireland must be able to deliver infrastructure at scale, year after year. The funding has been committed and delivery is now a real a priority. This can only be achieved with strong, whole-of-government co-ordination and a strong construction sector. The Government has already made significant efforts to orient itself towards infrastructure co-ordination and delivery through the funding allocations and reform plan. The infrastructure division will take on a proactive oversight and monitoring role for this plan. This role will allow my Department to take early action where barriers arise in the delivery of critical infrastructure programmes. These commitments to strengthening the construction sector are supported by other actions in the plan. Shortened delivery timelines, reduced regulatory complexity and a reliable project pipeline will all enable the construction sector to build and maintain the workforce and expertise needed to deliver on Ireland’s ambitious capital plans.
Some of the key actions under this pillar include the prioritisation of Government investment in capital, which has already been achieved through the recent national development plan review and continues to be actioned with the publication of sectoral investment plans for critical infrastructure sectors. My Department will take on an expanded infrastructure co-ordination role. The Department will be proactive and will ensure that the action plan is implemented, its effectiveness measured and issues identified and resolved early.
We have created a joint utilities and transport clearing house to co-ordinate road openings, diversions and standards. We will increase construction sector capacity through streamlined permits and visas, expanded training and greater use of modern methods of construction and digitalisation and procurement reform through sharing expertise through the National Development Finance Agency, standardising procurement processes and enabling the use of international forms of contract where appropriate. These actions will create greater co-operation between State bodies, ensuring that all bodies are aligned with Government strategies to deliver critical infrastructure.
The fourth pillar of the report focuses on public acceptance and civic engagement. Infrastructure must earn societal support. We will accelerate infrastructure delivery by reducing land access delays and building public trust and accountability. We will also improve public engagement processes to communicate the real-world value of infrastructure and the improvements it brings to the quality of life of ordinary people. All these actions mean we are fundamentally reforming how we deliver high quality infrastructure in our country. We are not simply adjusting one lever; we are changing the system entirely, reforming our legal and regulatory processes, how we co-ordinate and deliver across the public service and how we engage with the public, because only a whole-of-government effort will convert record investment into outcomes at pace.
Regulation has its place, but it needs to be balanced against delivery. We do not have that balance currently. Our regulatory regime is fragmented, often sequential and overly conservative in its application of EU law, creating delay and uncertainty. Even with increased resourcing, major wastewater plants still face consenting cycles measured in years. Ireland’s renewables projects have among the slowest development timelines in the EU.
This carries a real cost, namely higher energy prices and higher emissions, and the threat of judicial review that drives further risk aversion. We will fix it by simplifying legislation, standardising processes, aligning statutory timelines and driving proportionality and parallel processing across consents in order protection of people and nature will be delivered with efficiency, not delay.
Reforming regulation alone is not enough, however. We must reform how Government and the public service work. That means clear risk appetite statements approved by the Government in order that sponsors can commence well-scoped early works, run safe, concurrent steps and forward order critical components where the public benefit justifies it. This is a commitment and a clear programme of action. We will remove duplication, confront risk aversion and build a delivery-first culture while safeguarding the environment and access to justice. The expected combined impact of all the actions in this plan will be faster approvals and reduced litigation, significantly shorter delivery timelines, improved co-ordination and resource allocation, greater public trust and reduced opposition, and ultimately, increased infrastructure output to support our housing, climate and economic goals.
Since it came to office, the Government has taken clear strides to move at pace to address Ireland’s infrastructural needs and secure our future, economically and socially.
My Department has taken clear ownership of driving delivery and embodying the strategic leadership that is required for this critical step change for Ireland. Senior officials have been appointed, a newly composed infrastructure division has been confirmed and timelines and responsibilities for actions and sub-measures have been committed and agreed to. The regulatory reform team has been appointed and has commenced its first stage of assessments. Senior managers have been deployed to expand the team for construction sector capacity and procurement and work on external assurance reports to support the major projects advisory group has commenced. Infrastructure delivery and monitoring structures are bedding in, including strategic-level monitoring of implementation, functions for reporting to Government, risk appetite reviews and public-facing communications and project tracking and delivery.
The task force will continue to meet regularly to support the delivery of this plan. My Department has demonstrably committed to driving delivery of these 30 actions. The decisions we have already taken and are implementing show that we are moving at pace. I am confident that we will deliver the respective actions across this year.
This programme of reform, coupled with the expenditure committed to, paves the way for Ireland's continued economic development, achieving climate targets, unlocking housing delivery, creating opportunities across Ireland, enhancing our competitiveness as a place to invest in and to do business and building abundance in our economy and society such that our people and communities will benefit from high-quality services that drive improved living standards. I thank my fellow Government colleagues and Members from right across the House who are engaging positively and constructively on this journey to transform infrastructure delivery in our country. We have a generational opportunity to shape Ireland's future. Now is the time to get infrastructure delivery right by reforming the system outside of us and the culture within. The people of Ireland deserve no less and this Government will deliver it.