UAE construction consolidates
10 October 2024

With an abundance of tower cranes on the horizon, labour buses and ready-mix concrete trucks clogging streets, it is evident that construction in the UAE is in the midst of yet another boom.
While that may appear to be business as usual for a market that has become known around the world for delivering daring projects, behind the scenes, there have been sweeping changes that will affect how the market operates for the coming decades.
In Dubai and Abu Dhabi, major property developers that the government owns or controls have been reshuffled and consolidated. At the same time, the government has taken control of major contracting companies to help it deliver on its project ambitions.
In Dubai, the most significant move came in March this year when Sheikh Mohammed Bin Rashid Al-Maktoum, the Prime Minister and Ruler of Dubai, announced the incorporation of local real estate bodies Nakheel and Meydan into Dubai Holding Group. Under the directive, the board of directors of both Nakheel and Meydan will be abolished.
The consolidated Dubai Holding Real Estate (DHRE) entity is a major player in Dubai’s construction market. By 4 October 2024, the company and its subsidiaries accounted for 9% of construction contract awards in Dubai. Importantly, the percentage share has been increasing over time. The entities – although not merged at the time – represented 6.5% of contract awards in 2019.
The largest contract signed by a DHRE entity this year was the $490m contract to construct the 75-storey Como Residences tower on the Palm Jumeirah awarded to local contractor Alec by Nakheel.
Master developer
While the combined entity will remain important for contract awards, its significance is even greater when its role as a master developer is considered. Dubai Holding had a large land bank, and the addition of Nakheel, which also has a vast portfolio of lands to develop, has created an entity that will shape the future development of Dubai for the coming decades.
One of the Nakheel projects that will move forward in the next few years is the development of Palm Jebel Ali. In late August, Nakheel awarded a $220m contract to complete the reclamation works for the artificial island to Belgium’s Jan de Nul.
Abu Dhabi activity
Abu Dhabi has also been consolidating its real estate companies. In September, Aldar Properties and Mubadala Investment Company signed a partnership agreement to establish several joint ventures to own and manage assets in Abu Dhabi.
The partnership will be owned 60:40 by Aldar and Mubadala, respectively. It includes a $2.45bn retail platform, $816bn-worth of real estate assets in Masdar City, two undeveloped islands off Saadiyat Island and Yas Island, and an industrial logistics park.
Earlier, in February this year, Q Holding completed a transaction with ADQ Real Estate and Hospitality IHC Capital Holding to acquire control over 100% of the share capital for companies including Modon Properties and Abu Dhabi National Exhibitions Company (Adnec). The merged company was rebranded as Modon Holding and is an ADQ portfolio company.
Abu Dhabi has a long track record of mergers and acquisitions with its government-related property development companies. In 2013, it merged Aldar properties with Sorouh Real Estate, two of the emirate’s largest property developers at the time.
Like in Dubai, while the entities that make up these combined development bodies have been responsible for a significant share of contract awards in Abu Dhabi and will continue to do so in the future, their real importance is shown when considering their role as master developers. These consolidated players have vast land banks to develop and will help shape property development in the capital.
Fewer customers
For contractors, the consolidation of leading real estate players reduces the number of potential customers active in the market. Further complicating the matter is the growing importance of government-controlled contracting entities, which some contractors fear will mean fewer opportunities for privately owned contracting companies.
In Dubai, the Investment Corporation of Dubai owns Alec. The contractor has won contracts for several key projects in recent years, including the recently awarded Como Tower. It has also worked extensively at Dubai International airport over the past 15 years. It is widely expected to play a leading role in the construction of the recently reinvigorated $35bn Al-Maktoum International airport project.
The contracting landscape is more complex in Abu Dhabi. In early October, ADQ acquired a 49% stake in Alpha Dhabi Construction Holding, the construction subsidiary of local investment company Alpha Dhabi Holding (ADH). In 2022, ADH increased its stake in Aldar Properties and became the single largest shareholder, then becoming the real estate developer’s parent company. ADQ also has NMDC as a portfolio company. NMDC is a dredging and marine works contractor with capabilities in the construction and energy sectors.
These contracting companies already command a dominant position in the market, and their common ownership structures with Abu Dhabi’s leading project clients will effectively guarantee that this trend will continue into the future.
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Saudi Arabia’s private sector picks up the baton2 March 2026

Ten years of ambitious construction project launches ended on 25 January 2026, when the Olympic Council of Asia and the Saudi Olympic & Paralympic Committee released a joint statement saying that they had agreed to indefinitely postpone the 2029 Asian Winter Games. In early February, it was announced that Almaty in Kazakhstan will host the event.
The Trojena mountain resort at Neom in northwest Saudi Arabia was selected in 2022 as the venue for the games, and despite significant construction work on the project, rumours had been circulating throughout most of 2025 that the greenfield venue would not be ready by the 2029 deadline.
Project reprioritisation
Trojena is not the only project in the kingdom that has been subject to scrutiny. There have been reports of other projects, including The Line and the Mukaab, either being scaled back, delayed or put on hold as Riyadh reassesses its priorities. This has created an air of uncertainty over Saudi Arabia’s upcoming project pipeline.
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Al-Falih, who also sits on the Public Investment Fund’s (PIF’s) board of directors, said that with Saudi Arabia having been chosen to host football’s Fifa World Cup in 2034 and Expo 2030 Riyadh – and as the global economy is evolving rapidly with the rise of artificial intelligence (AI) – some projects such as The Line at Neom have slowed down. However, other projects related to the World Cup, Expo 2030, technology and AI have accelerated.
PIF strategy
In his speech at the PSF, Yasir Al-Rumayyan, governor of the PIF, also alluded to changing priorities and said that this is a pivotal moment for Saudi Arabia’s economy.
Launched in 2016, Saudi Arabia’s Vision 2030 is described as “a transformative and ambitious blueprint to unlock the potential of its people and create a diversified, innovative and world-leading nation”.
The agency charged with delivering many of the objectives outlined in the strategy is the PIF. Established in 1971, it was moved from the Finance Ministry in 2015 to the Council of Economic & Development Affairs, where it was given a more active mandate. It then grew from a staff of about 50 in 2015 to almost 3,000 in 2024, according to the most recently published annual report.Over the past 10 years, the PIF has helped drive the development of key sectors with direct capital spending on projects. The Red Sea Project and the Qiddiya entertainment city development aim to position the kingdom as a leisure tourism destination, while Roshn’s portfolio of residential communities has helped transform the housing market.
The PIF had $913bn of assets under management in 2024. Its activities are too varied to list, but they include developing the kingdom’s five official gigaprojects; holding investments in Saudi companies including Saudi Aramco and Maaden; owning stakes in electric vehicle manufacturers Lucid and Ceer, and gaming companies Nintendo and Electronic Arts; and owning UK Premier League football team Newcastle United.
In 2026, the role of the PIF is changing. Speaking at the PSF, Al-Rumayyan extended an invitation to the private sector to play a bigger role in achieving the kingdom’s economic ambitions.
“Today, in line with the objectives of the third phase of Saudi Vision 2030 and the PIF’s strategy for the coming five years, we are moving from building sectors to integrating ecosystems, and from launching opportunities to accelerating growth – through an open invitation to the private sector to invest and partner in shaping a diversified and resilient economy,” he said.
Having raised the bar, PIF officials say that sectors such as tourism and real estate are now ready for the private sector to take over. They describe sectors reaching what they call ‘escape velocity’, which is the point where a sufficient level of maturity has been reached for the private sector to come in and take the lead.
[In 2026, the PIF is] moving from building sectors to integrating ecosystems, and from launching opportunities to accelerating growth
Financial considerations
The decision to pass the baton to the private sector comes at a time when Saudi Arabia’s ability to finance all its project commitments directly has been questioned amid lower-than-desired oil prices.
Reflecting the constrained backdrop, the Ministry of Finance’s final budget statement for 2026 projects a deficit of SR165bn ($44bn), equivalent to about 3.3% of GDP.
The private sector has a tough act to follow. While the PIF has embarked on some of the world’s most ambitious projects in recent years, it has also introduced international standards that it hopes will lead to ways of doing business in Saudi Arabia that are more in tune with international best practices.
“The fund will continue to enable ecosystems and lay the foundations for growth. At the same time, the next phase requires a higher level of readiness and ambition from the private sector, alongside the ability to scale and innovate – a phase in which the role of the private sector evolves from execution to contributing to economic building and value creation,” Al-Rumayyan said.
Whether the private sector is ready to take over is the critical question in 2026.
According to PIF subsidiary development companies (devcos) that engage with private sector investors, the tide is turning. They say that five years ago, the appetite to invest was limited and devcos had to step in and deliver a greater proportion of project masterplans. As these investors complete their first projects, however, confidence is building.
Deals signed
This growing appetite could be seen at the PSF, where agreements were signed by private sector investors and devcos.
Rua Al-Madinah, which is responsible for Medina’s tourism and cultural development, signed a memorandum of understanding (MoU) with Indonesian sovereign wealth fund, Danantara Indonesia. It covers identifying and assessing investment opportunities in the Rua Al-Madinah and Dar Al-Hijrah projects.
King Salman International Airport Development Company signed several MoUs with local firms to develop mixed-use projects within its airport masterplan. The agreements were signed with Sumou Holding, Mohammed Al-Habib Investment, Kinan, Ajdan, Retal, Urjuan and Osus and comprise residential, commercial, retail, hospitality, entertainment and other related projects.
Roshn Group also signed an agreement with Kuwait’s Agility Logistics Parks to establish a joint venture that will develop a Grade A logistics hub.
In mid-February, two further deals were signed. PIF-backed Smart Accommodation for Residential Complexes Company (Sarcc) signed an agreement with Dammam-based Tamimi Global Company to develop a 4,000-bed worker accommodation project in North Riyadh. The development is expected to cost over SR1.5bn ($400m).
Sarcc also signed a separate agreement with Riyadh-based Mawref Company to develop another North Riyadh worker accommodation project. This deal involves building a 12,000-bed facility with a development cost of over SR669m ($178m).
The first phases of both projects are expected to be completed in 2029.
While momentum continues to build and deals are signed, some private sector players remain to be convinced. In the kingdom’s real estate sector, for example, recent amendments to legislation, which include a white land tax and a rent freeze, have created a level of uncertainty that some potential investors say makes it difficult to sign off on investment commitments.
Much will depend on the success of the deals already signed. If these agreements result in positive outcomes, then the fear of missing out will kick in and other private sector players will be keen to invest.
The risk is that, should deals turn sour and fail to produce the expected results, then attracting future investments from the private sector will be challenging.
Main image: Yasir Al-Rumayyan, governor of the PIF, inaugurates the PSF 2026. Credit: Saudi Press Agency
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