Major infrastructure projects offer valuable insights that extend beyond their immediate objectives. Decisions made throughout the design and construction stages can have a significant impact on a project’s cost, programme, quality and long-term performance.

Edinburgh Trams provides an important example for Scotland’s construction industry. While the original network experienced considerable challenges during delivery, the subsequent extension to Newhaven demonstrated how lessons from earlier stages can be applied to improve future projects. These experiences highlight the need for more effective risk management throughout infrastructure development.

For construction professionals, the central lesson is clear: effective risk management is not simply about anticipating problems. It is about creating the conditions in which projects can respond to uncertainty, make informed decisions and deliver lasting benefits.

Understanding technical risk in infrastructure projects

Technical risks arise from factors such as design development, construction methods, site conditions, incomplete information and coordination between engineering disciplines. When these risks are not adequately understood or managed, they can lead to redesign, additional work, delays and increased costs.

The first phase of Edinburgh Trams illustrates the importance of considering these factors alongside wider commercial and organisational risks. Passenger services began in May 2014, later than originally planned. The Edinburgh Tram Inquiry, which published its findings in September 2023, examined the project’s delivery and identified issues relating to procurement, design management, collaboration, governance and cost estimation.

These findings demonstrate that construction challenges rarely occur in isolation. A technical issue can become more difficult to resolve when contractual responsibilities are unclear, design information is delayed or decisions are not communicated effectively between the organisations involved.

For project managers, understanding these relationships is essential. Risk management must consider not only what might happen on site, but also how decisions are made, responsibilities are assigned and information is shared across the wider project team.

Identifying and assessing risks early

A structured risk management process typically involves four connected activities: identification, assessment, mitigation and monitoring. These activities provide a practical framework for understanding uncertainty and determining how best to respond.

Risk identification begins with a detailed understanding of the project. For infrastructure schemes, this may include reviewing existing utilities, investigating ground conditions, coordinating design information and identifying interfaces between contractors and specialist systems.

Although not every underground obstruction or site condition can be anticipated, appropriate investigations can reduce uncertainty and help teams prepare for potential disruption. Where information remains incomplete, the uncertainty should be recorded and considered in the project programme and cost plan.

Risk assessment then considers the likelihood of each event and its potential consequences. A problem that appears manageable at an early stage may have wider implications if it affects several construction activities or delays a critical part of the programme.

Project teams should therefore assess risks against agreed criteria, including cost, time, quality, safety and the intended benefits of the project. This provides a clearer basis for prioritising resources and determining which risks require immediate action.

The experience of Edinburgh Trams reinforces the importance of this early-stage work. Realistic cost estimates, clearly defined responsibilities and informed procurement decisions can help establish a stronger foundation before construction begins.

Managing change through collaboration

Design development and change are normal aspects of construction. As projects progress, new information may require modifications to the original proposals. The aim should not be to prevent every change, but to manage it in a controlled and transparent manner.

An effective change control process should establish the reasons for a change, identify who is responsible for approving it and assess its impact on cost, programme and other design disciplines. Decisions should be documented and communicated promptly to ensure that contractors and consultants are working with coordinated information.

Collaboration is equally important. Clients, designers, contractors and project managers each contribute different expertise to a project, and their ability to work effectively together can influence how quickly issues are resolved.

The subsequent Trams to Newhaven project provides a positive example. Passenger services began on 7 June 2023, and the extension was delivered within its reported £207.3 million budget, meeting the scheduled completion date of spring 2023. The project also included measures designed to address risks associated with the earlier phase, such as carrying out advance work to identify and clear underground obstructions.

These outcomes highlight the value of learning from previous experience, completing preparatory work and establishing appropriate arrangements to manage interfaces and uncertainty.

Keeping risk management active throughout delivery

Risk management should continue from initial planning through design, construction, commissioning and operation. A risk register is useful only when it informs decisions and is updated as circumstances change.

Each significant risk should have a clearly identified owner, agreed mitigation measures and a process for reviewing progress. Where a risk cannot be eliminated, contingency arrangements should be developed to enable the project team to respond without unnecessary disruption.

Regular reviews also help teams identify emerging risks before they develop into major problems. This is particularly important on complex projects, where changes to one activity can affect several others.

For project managers, the objective is to move beyond simply recording risks towards actively managing them. This requires clear communication, timely decision-making and a shared understanding of the project’s priorities.

Applying the lessons to future Scottish projects

The Edinburgh Trams experience offers lessons that are relevant to transport infrastructure, housing, commercial development and other complex construction schemes across Scotland.

Clients should establish realistic budgets, clear governance arrangements and appropriate procurement strategies. Design teams should prioritise coordinated information and early investigation, while contractors and project managers should maintain effective processes for managing change and monitoring emerging risks.

These measures cannot remove every uncertainty. However, they can help reduce avoidable disruption, improve decision-making and provide greater confidence in project delivery.

Ultimately, successful construction depends on more than completing an asset. It requires a considered approach to planning, collaboration, risk and the benefits a project is intended to deliver.

Edinburgh Trams demonstrates why lessons from completed projects should inform the next generation of infrastructure development. By applying those lessons consistently, Scotland’s construction industry can strengthen its approach to risk management and support the delivery of projects that serve communities effectively for years to come.

References and further reading

1. Edinburgh Tram Inquiry (2023). Report of the Edinburgh Tram Inquiry. 
2. Scottish Construction Now (2023). Edinburgh Tram Inquiry highlights ‘poor management and abdication of responsibility’ on large scale.
3. Scottish Construction Now (2022). Feature: The culture of collaboration driving the trams line to Newhaven.
4. Edinburgh Trams (2023). Trams to Newhaven passenger services to launch this June.