The third decade of the 21st century has brought numerous challenges in the area of infrastructure projects. This is not only about the natural development of road and rail infrastructure, which increases the country's attractiveness as a destination for foreign investment and often acts as a driving force for other sectors of the economy. It is also about investments aimed at enhancing the country's energy security, as well as those connected to the energy transition.
Among the completed, ongoing, and planned investments is the Solidarity Transport Hub. Other examples include projects implemented under the National Road Construction Program and investments carried out as part of the National Railway Program. Notable initiatives also involve the Baltic Pipe and the DCT Gdańsk container terminal. We can also mention the Vistula Spit canal and the construction of nuclear power plants. Further investments include the development and expansion of the electricity transmission network and the expansion of seaports. Additionally, there are numerous renewable energy projects, such as the construction of offshore and onshore wind farms, as well as the development of photovoltaic farms.
Stakeholder management in infrastructure projects – key challenges and best practices
One of the greatest challenges in implementing infrastructure projects is the effective management of stakeholders. This complex and demanding area of project management involves several key aspects that deserve particular attention:
- Identification and categorization of stakeholders – defining all entities affected by the project or those that can influence its course (local authorities, communities, investors, contractors, environmental organizations).
- Analysis of stakeholder needs and expectations – understanding the different perspectives and priorities of various groups.
- Communication strategy – developing tailored communication plans for each stakeholder group.
- Managing conflicts of interest – resolving conflicting expectations between stakeholder groups.
- Public consultations – engaging local communities and taking their opinions into account.
- Legal and administrative aspects – cooperating with public administration bodies and meeting regulatory requirements.
- Stakeholder-related risk management – identifying potential problems and developing response plans.
- Building long-term relationships – maintaining positive relations throughout the entire project lifecycle.
- Environmental impact – taking ecological and sustainability issues into consideration.
- Documentation and monitoring of stakeholder engagement – tracking interactions and evaluating the effectiveness of stakeholder-related activities.
- Intercultural and social aspects.
- Participatory strategies and co-governance.
Identifying and categorizing stakeholders in infrastructure projects – where to begin?
In this article, I would like to explore the first of the previously mentioned areas: stakeholder identification and categorization.
The process of stakeholder identification should be comprehensive and systematic. This means that the initial efforts to identify the project's key stakeholders should begin as early as possible - ideally even before the formal approval of the project. These efforts should then be deepened during the initiation phase and continued throughout the subsequent phases of the project lifecycle.
In infrastructure projects, we can distinguish several basic types (categories) of stakeholders. These include:
- Direct stakeholders (e.g. landowners, infrastructure users),
- Indirect stakeholders (e.g. nearby residents, local businesses),
- Institutional stakeholders (e.g. public authorities, regulators),
- Interest groups (e.g. environmental organizations, industry associations),
- Investors and funding institutions,
- Contractors and subcontractors.
The above categories can be divided into narrower subcategories, provided such a division is justified and contributes to more effective management of stakeholder engagement in the project.
Stakeholder map – a practical tool for identifying and analyzing project influence
One of the most universal tools for stakeholder identification and analysis is the stakeholder map. It is a visual analytical tool that enables:
- Identification of all entities connected to the project,
- Understanding their mutual relationships,
- Visualization of their level of interest and influence on the project,
- Categorization of stakeholders based on various criteria.
The process of creating a stakeholder map usually consists of four steps:
- Identifying stakeholders,
- Gathering information about stakeholders,
- Classifying stakeholders,
- Visualizing the map.
The first step is a comprehensive identification of all potential project stakeholders. Techniques that can be used include:
- Brainstorming within the project team,
- Analysis of project documentation,
- Consultations with industry experts,
- Reviewing similar past projects,
- Interviews with representatives of different social groups.
The resulting list of stakeholders becomes a key input for one of the most important project documents – the stakeholder register. This is a "living" document that should be continuously updated throughout the life of the project.
Step-by-step stakeholder analysis – from data collection to visualizing influence
The second step in creating the stakeholder map is gathering detailed information about each stakeholder. For every identified stakeholder, the following should be defined:
- Level of interest in the project (low/high or low/medium/high),
- Level of influence on the project (low/high or low/medium/high),
- Attitude toward the project (positive/neutral/negative),
- Key interests and concerns,
- Preferred communication channels,
- Potential conflicts with other stakeholders.
This information enriches the stakeholder register.
The third step is stakeholder classification. The most common approach involves creating a Power (influence) - Interest Grid, which divides stakeholders into four categories:
- Key players – critical stakeholders (high influence and high interest) who require close collaboration and constant engagement.
- Keep satisfied – high influence, low interest stakeholders who require efforts to maintain their satisfaction.
- Keep informed – low influence, high interest stakeholders who should be kept regularly informed.
- Monitor – low influence, low interest stakeholders who need occasional monitoring.
The Power Interest Grid is often presented in a graphical format.
The fourth step is visualizing the stakeholder map. The map can take many different graphic forms, such as:
- A 2×2 matrix (influence(power)/interest) as described above,
- A concentric circle diagram (the closer to the center, the greater the influence),
- A heat map with colors indicating levels of influence or attitude,
- A network diagram showing relationships among stakeholders.
Advanced stakeholder mapping techniques in complex infrastructure projects
The stakeholder analyses and mapping techniques described above may prove insufficient in complex projects - such as infrastructure projects. In such cases, more advanced stakeholder mapping methods are often employed. These include:
Dynamic analysis, which takes into account changes in stakeholder positions over the course of the project, such as:
- How their level of interest changes in different phases of the project,
- When their influence is strongest,
- How their attitude toward the project evolves.
Relationship mapping, meaning the analysis of interconnections between stakeholders, including:
- Who influences whom,
- Potential alliances and conflicts,
- Informal ties and dependencies,
- Identification of “gatekeeper stakeholders” who control access to other groups.
Stakeholder empathy maps, which provide a deeper understanding of stakeholders' perspectives, including:
- What they think and feel about the project,
- What they say publicly vs. privately,
- What actions they take,
- What their concerns and aspirations are.
How to translate a stakeholder map into practical project actions
At this point, one may ask how the stakeholder map can be used not just as a descriptive tool, but as a foundation for meaningful action. The answer lies in developing differentiated strategies tailored to each stakeholder group. For example:
- Key players: require partnership and co-decision-making,
- High-influence stakeholders: require consultation and negotiation,
- High-interest stakeholders: require information and education,
- Low-influence and low-interest stakeholders: require monitoring.
The stakeholder map also serves as the foundation for prioritizing stakeholder engagement actions, including:
- Defining the sequence of engaging particular groups,
- Allocating appropriate resources for managing different stakeholder categories.
In conclusion, accurate identification and analysis of project stakeholders lay a strong foundation for all subsequent engagement efforts. A stakeholder map - representing the collective effort of the project team and involved experts - can provide a full picture of the stakeholder landscape, their positions, and interrelationships. However, it is important to remember that this is only the first step toward effective stakeholder management in infrastructure projects.
Article written by:
Arkadiusz Urbański PMP® (Project Manager, Senior Expert)
