Stormont watchdog blames worsening NI road conditions on 55,000 road openings a year by utilities

Tens of thousands of road openings carried out by utility companies each year are contributing to the deterioration of Northern Ireland’s road network, Stormont’s Public Accounts Committee has warned — raising concerns that taxpayers may be footing the bill.

In a critical report, MLAs said the Department for Infrastructure (DfI) cannot currently determine how much of the growing maintenance burden is linked to utility reinstatements, nor confirm that companies are covering the full cost of the damage.

With more than 50,000 road openings annually — rising to around 55,000 in 2023–24 — the scale of disruption beneath Northern Ireland’s streets is now under intense scrutiny.

Watchdog raises concerns over hidden structural damage

Utility companies are required to reinstate roads after carrying out essential works for gas, electricity, water and telecommunications. While the majority of these repairs pass visual inspection, the Committee found evidence that deeper structural issues are being missed.

More rigorous “core tests” — which examine the integrity of reinstated road layers — have shown failure rates exceeding 10%, despite over 90% of visual checks passing.

The report warns that such defects can accelerate long-term deterioration, shortening the lifespan of roads and increasing the likelihood of potholes and cracking.

Chair of the Committee, Daniel McCrossan MLA, said officials were unable to quantify the impact of these reinstatements.

“When we spoke to officials they couldn’t set out a reliable way of calculating how much of that burden arose from deterioration of the road network linked specifically to utility reinstatements.

“As a result, they couldn’t reassure us that taxpayers were not subsidising repairs that should be properly funded by utility companies.”

£3.3 billion maintenance backlog and rising defects

The findings come amid mounting pressure on Northern Ireland’s roads.

The Committee highlighted that more than £3.3 billion worth of maintenance work remains outstanding, with the network described as being in an “entirely unacceptable state of disrepair”.

Despite total road spending reaching £466 million in 2024–25 — including £136 million on structural maintenance — the scale of deterioration remains significant.

Inspectors identified 91,715 surface defects in the same period, equating to around 250 new issues every day.

Taxpayer burden and outdated cost recovery

A central concern raised by MLAs is whether the public is absorbing costs that should be borne by utility providers.

The Committee found that the Department currently lacks a clear methodology to calculate how much maintenance expenditure is directly attributable to utility reinstatements.

It also noted that inspection fees charged to utilities have not been formally reviewed since 2011, raising questions about whether the Department is even recovering its administrative costs.

The PAC has recommended that a new cost assessment model be developed by early autumn, alongside a review of whether current charging arrangements deliver value for money.

Warranty gap leaves long-term damage uncovered

The report also highlights a significant gap in how long utilities remain responsible for their work.

Reinstatements are typically covered by warranties of:

• Two years for shallow excavations

• Three years for deeper works

However, the Committee warned that structural failures often take four to five years to become visible — meaning defects can emerge after warranties have expired, leaving repair costs to fall on the public purse.

An urgent review of warranty periods has been recommended within the next six months.

Calls for stronger enforcement and transparency

MLAs have called for a significant strengthening of oversight and enforcement.

Deputy Chair Tom Buchanan MLA warned that inspection targets have been missed for seven consecutive years, while the suspension of core testing programmes presents a “serious risk”.

He said:

“Effective inspections are essential in ensuring reinstatement works are completed to the required standard and defects identified early.”

The Committee also raised concerns about inconsistent contractor behaviour, poor communication with communities, and unclear lines of responsibility during works.

Among its recommendations are:

• The introduction of performance-related financial penalties

• Greater transparency through published utility performance data

• Simpler, more accessible reporting systems for the public

Staffing pressures limiting oversight

The Department’s ability to regulate road openings has also been constrained by recruitment and retention challenges, particularly in technical roles.

The shortage of skilled staff has reduced the number of in-depth inspections that can be carried out, increasing reliance on visual checks that may fail to identify underlying problems.

The Committee said these issues reflect wider system pressures and require coordinated, cross-departmental action.

What it means for Ballymena and local communities

For Ballymena residents, the findings reflect a familiar pattern — roads that are opened, repaired, and then deteriorate again within a relatively short timeframe.

With over 61% of Northern Ireland’s roads classified as smaller local routes — where utility openings are most frequent — the cumulative impact is felt most acutely at community level.

Each excavation weakens the structural integrity of the road. Where reinstatement standards fall short, that damage accelerates, reducing the lifespan of entire stretches of roadway.

What the watchdog wants to change

Stormont’s Public Accounts Committee has set out 11 key actions to overhaul how utility roadworks are managed:

• Track the true cost

  Measure exactly how much road damage is caused by utility works

• Make utilities pay their share

  Ensure companies — not taxpayers — cover repair costs

• Introduce financial penalties

  Fine repeat offenders for poor-quality reinstatements

• Fix the inspection system

  Restore proper checks and meet long-missed inspection targets

• Bring back deep testing

  Reintroduce “core tests” to detect hidden structural faults

• Target poor performers

  Focus enforcement on companies with the worst track records

• Publish performance data

  Name and track how utilities are performing

• Set out a clear action plan

  Deliver a detailed roadmap for reform within 12 months

• Extend warranty periods

  Review whether current 2–3 year guarantees are too short

• Make it easier to report problems

  Improve systems for the public to flag issues

• Fix staffing shortages

  Address gaps in skilled inspectors and technical staff

While the report welcomed emerging innovations such as digital mapping and AI-led monitoring, it made clear that fundamental reforms are now required.

With tens of thousands of road openings continuing each year, MLAs have signalled that without decisive action, the cycle of disruption, deterioration and rising costs will persist — with the public continuing to bear the consequences.

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At a glance

• Over 50,000 road openings take place annually in Northern Ireland

• Around 55,000 openings recorded in 2023–24

• PAC warns utility works are contributing to road deterioration

• More than £3.3 billion in maintenance backlog remains

• 91,715 road defects identified in 2024–25

• Concerns taxpayers may be subsidising repair costs

• Current warranties (2–3 years) may not cover long-term damage

• Inspection targets missed for seven consecutive years

• Calls for penalties, better inspections, and clearer cost tracking

• Action plan expected within the next 12 months