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Waka Kotahi Published August 2020

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This document is available on Waka Kotahi’s website at https://www.nzta.govt.nz/resources/land-transport-benefits-framework-and-management-approach-guidelines

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH GUIDELINES

August 2020 │ Version 1

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CONTENTS FOREWORD ...................................................................................................................................... 6 INTRODUCTION ................................................................................................................................ 7

Purpose of this document ........................................................................................................... 7 Who this guide is for ................................................................................................................... 7

Introduction to benefits and benefits management .................................................................. 7 What is benefits management? .................................................................................................. 7 What is a benefit? ....................................................................................................................... 7 What is the benefits framework? ................................................................................................. 7 What is the benefits management approach? ............................................................................ 7 How does benefits management fit within the NLTP and the IDMF? ......................................... 8 Why is benefits management important? ................................................................................... 9 What are the objectives of the benefits management approach for land transport investment? 9

PART ONE: THE BENEFITS FRAMEWORK .................................................................................. 10 Overview of the benefits framework ......................................................................................... 10

Transport Outcomes Framework .............................................................................................. 10 Treasury Living Standards Framework ..................................................................................... 11 The benefit clusters and benefits .............................................................................................. 12 Monetised, quantitative and qualitative benefits ....................................................................... 13

Description of the benefits framework ..................................................................................... 14 Healthy and safe people ........................................................................................................... 15 Resilience and security ............................................................................................................. 20 Economic prosperity ................................................................................................................. 21 Environmental sustainability ..................................................................................................... 25 Inclusive access ........................................................................................................................ 28

PART TWO: THE BENEFITS MANAGEMENT APPROACH .......................................................... 36 Overview of the benefits management approach ................................................................... 36 Principles for applying the benefits framework ...................................................................... 38

Benefits cascade ....................................................................................................................... 38 Revisiting and refining benefits ................................................................................................. 38 Diversity of benefits ................................................................................................................... 38 Benefit trade-offs ....................................................................................................................... 39 More is not necessarily better ................................................................................................... 39 Overlapping benefit areas and measurement ........................................................................... 39 Monetisation and measurement of benefits .............................................................................. 39 Quantitative and qualitative measures ...................................................................................... 39

Centralised benefits data and the benefits management approach ..................................... 41 Evidence-based decision-making ............................................................................................. 41 Centralised data ........................................................................................................................ 41 The types of data available ....................................................................................................... 41

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Accessing the centralised data ................................................................................................. 41 Ongoing development of centralised data ................................................................................ 41

Roles and responsibilities ......................................................................................................... 42 Guides and manuals ................................................................................................................. 42 Data ........................................................................................................................................... 42 Waka Kotahi and AO responsible roles .................................................................................... 42

Applying the benefits management approach ........................................................................ 43 1. Section One .......................................................................................................................... 43 2. Section Two .......................................................................................................................... 61 3. Section Three ........................................................................................................................ 62 4. Section Four .......................................................................................................................... 63

CASE STUDY: THE LIFECYCLE OF AN INVESTMENT BENEFIT ................................................ 65 APPENDIX 1: OVERVIEW OF LAND TRANSPORT BENEFITS FRAMEWORK WITH MEASURES .......................................................................................................................................................... 66 APPENDIX 2: BENEFITS FRAMEWORK QUANTITATIVE MEASURES MAPPED AGAINST ONRC MEASURES .......................................................................................................................... 71

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FOREWORD Providing benefits for transport users and communities in line with government direction is the primary reason for Waka Kotahi NZ Transport Agency’s investment in land transport. The new Land Transport Benefits Framework and Management Approach signals a sector focus on benefits, benefits realisation and investment decision-making that contributes to outcomes.

This framework and approach provide a consistent way to articulate benefits and measures and apply them across the breadth of National Land Transport Programme (NLTP) processes, from regional land transport plans (RLTPs) to detailed business cases; from decision-making processes to reporting on benefits realised from investment.

The benefits framework applies from August 2020 for any new business cases. The entire benefits management approach will be applicable for all 2021–24 NLTP processes and documents.

The framework is aligned with the Ministry of Transport’s Transport Outcomes Framework and comprises 25 benefits, 12 of which are monetised, and a set of 63 associated quantitative and qualitative non-monetised measures. It is an enduring set of benefits, comprehensive enough to encompass current and future governmental focus, and it is mode neutral. The framework is set up to allow for all impacts (both positive and negative benefits) to be considered, measured and reported. The broad range of benefits also allows for the trade-offs between benefits to be recognised and considered.

Part One of these guidelines provides descriptions of all the components of the framework with detailed descriptions of each of the benefits.

Part Two of these guidelines provides detailed descriptions and process maps of how to apply the benefits framework to NLTP processes and documents. This part of the guide will be regularly updated to include all aspects of the NLTP as Waka Kotahi finalises details, such as updating Transport Investment Online (TIO) to include benefit selection.

Selection of benefits and measures from the consistent set in the benefits framework will be required at key stages in the development of the NLTP and business cases, with the level of detail required appropriate to the level of detail needed in the process or document.

Benefits and measures that are materially different to those in the framework can be added to business cases through discussion with Waka Kotahi advisors and, in some instances, instructions are provided on how to transition to the benefits framework.

It is expected that quantitative measures will be selected for benefits that are monetised, when available, as they are necessary to monitor benefits in the medium- to long-term.

Including non-monetised benefit measures (quantitative and qualitative) at all stages of the NLTP enables better and more transparent consideration of non-monetised benefits into Waka Kotahi investment decision-making. For example, the new appraisal summary table will reflect both non-monetised and monetised benefits information, allowing for a more comprehensive view of the impact of an investment and the ability to track progress against those impacts over time (benefits realisation).

An overview table of all of the benefits and measures in the benefits framework is available for download from our website and is in Appendix 1.

There is an expectation that we will learn from the implementation of the benefits framework and management approach and improve this guide as a result of the learning. Please provide feedback on how you have used it and how we may work to improve it to investment.benefits@nzta.govt.nz.

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INTRODUCTION

Purpose of this document This document outlines the Waka Kotahi Benefits Framework (the list and description of the benefits) and Benefits Management Approach (how benefits are applied to NLTP processes).

It provides guidance to approved organisations (AOs) and other stakeholders by answering some key questions about benefits and how they are used in the NLTP and the Investment Decision Making Framework (IDMF), including the Business Case Approach (BCA). Full description and instruction of other aspects of the processes and tools will be provided on InvestHub.

This document is supplemented by two manuals that provide specific guidance on estimating monetised benefits and measuring quantitative and qualitative (non-monetised) benefits:

• Monetised benefits and costs manual • Non-monetised benefits manual.

Who this guide is for This guide is for:

• business case writers, reviewers and owners • people who carry out economic evaluation or cost benefit analysis • transport planning practitioners • measurement specialists • benefit management practitioners.

Introduction to benefits and benefits management

What is benefits management? Benefits management is a generic term used to describe any and all activity associated with benefits. In this guide it is used loosely alongside the more specific terms, ‘benefits management approach’ and the ‘benefits framework’, defined below, to generally describe the act of understanding and managing benefits from investment.

What is a benefit? A benefit is a measurable change resulting from an investment.

Benefits are perceived as both an advantage (positive/benefit) or disadvantage (negative/disbenefit) by one or more stakeholders. In this document, ‘benefit’ is used as an overarching term for both benefits and disbenefits.

The term ‘impact’ is also used widely in the benefits framework as a substitute for the term ‘benefit’ to recognise the multi-directional flow of benefits.

What is the benefits framework? The benefits framework is the structure that outlines and organises types of benefits. The framework provides a common list of all land transport benefits currently recognised by Waka Kotahi. It includes monetised and non-monetised benefits and associated qualitative and quantitative measures. See Appendix 1 for an overview table of the benefits framework and descriptions of each component of the benefits framework.

What is the benefits management approach? The benefits management approach is how we apply the benefits framework to NLTP processes and documents. It includes identifying, analysing, planning, realisation and reporting of benefits.

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How does benefits management fit within the NLTP and the IDMF? Benefits management occurs within the broader processes associated with the NLTP and the IDMF (refer to Figure 1).

The primary reason for investment in land transport is to address transport problems or opportunities with the aim of realising benefits for users and communities. Benefits management is therefore vital to the development, management and delivery of the NLTP.

The NLTP gives effect to the Government Policy Statement on Land Transport (GPS) and Waka Kotahi is charged to achieve this through the Land Transport Management Act 2003. The priorities in the GPS have a 10-year focus and guide all associated land transport investment processes and decisions for the three-year span of the NLTP (Figure 1).

The standard set of benefits set out in this guide will assist Waka Kotahi to monitor progress in giving effect to the direction set out in the GPS. For example, in some periods benefits relating to access may be a strategic priority, while in others impact on greenhouse gas emission might be a strategic priority (or, indeed, both at the same time). The enduring nature of the standard list of benefits and their associated monitoring processes allows for tracking of the delivery of benefits for a longer period than the life of an individual GPS.

For the 2021–24 NLTP, the benefits management approach is required for all key thinking and decision-making, including the development of regional land transport plans (RLTPs), activity management plans (AMPs) and other pre-investment decision-making documents and processes. The benefits management approach will define a consistent framework to report against the benefits achieved through NLTP investment.

The benefits are required in the Business Case Approach (BCA), starting with identification of any known benefits in the point of entry, through to application in business cases and as a fundamental component of assessment through the new appraisal summary table.

Figure 1: Relationship between benefits management and the IDMF

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Why is benefits management important? Identifying and providing benefits for transport users and communities assists investment decision-making and enabling Waka Kotahi to undertake its functions in a way that contributes to an effective, efficient, and safe land transport system in the public interest. It also enables Waka Kotahi to report on how it is giving effect to government strategic priorities in the GPS.

Managing benefits well allows the transport sector to know if the intended benefits of investment are being realised. With a consistent set of benefits and a clear benefits management approach allowing for short-term and long-term monitoring of benefits delivery at different scales, the transport sector can make informed decisions about the land transport system.

Providing an enduring set of benefits, comprehensive enough to encompass current and future governmental focus, and looking at benefits in the same way throughout the life of an investment, from early planning to post-implementation, allows for better understanding of the true impact of investment.

What are the objectives of the benefits management approach for land transport investment? Our benefits management approach will:

• ensure we invest in the things that matter to the government and our community • enable a consistent way for Waka Kotahi and our partners to communicate the value of

proposed investments across the entire planning and funding process • provide focus on delivering benefits through investment in the land transport system • encourage the use of the benefits data and information to identify land transport problems • ensure benefits and their measures are identified and defined clearly at the outset of the

funding process and are linked to the Transport Outcomes Framework and the GPS • ensure benefits and robust benefits data informs investment decision-making (through

investment assessment and prioritisation) • enable robust benefits realisation processes and reporting to show the value that

investment through the NLTP is delivering to New Zealand in the short and long term • enable informed future decisions using the results of the benefits realisation.

Key characteristics of Waka Kotahi’s benefits management approach

• A consistent set of monetised and non-monetised benefits (the benefits framework).

• Full descriptions of benefits (in Part One of this publication).

• Monetisation methods for 12 benefits (in the Monetised benefits and costs manual).

• A consistent set of quantitative measures and qualitative descriptors for 22 benefits, including:

o A full description of quantitative measures and qualitative descriptors (in the Non-monetised benefits manual)

o forecasting methodologies for quantitative measures (under development).

• Centralised data (where possible) for quantitative measures, to be used to both identify transport problems and track the impact of investment.

• A full description of how to use the benefits framework for each of the NLTP processes and documents (in Part Two of this publication).

Figure 2: Key characteristics of Waka Kotahi’s benefits management approach

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PART ONE: THE BENEFITS FRAMEWORK

Overview of the benefits framework The benefits framework is the structure that outlines and organises types of benefits that are important to land transport. From August 2020 the benefits framework must inform all transport benefit discussions and it must be used in all new business cases.

The benefits framework comprises benefit clusters and benefits with measures that contribute to the transport outcomes.

Benefits and their associated measures are the main component of the framework. Benefit clusters are organising principle that allow us to connect the benefits to the Transport Outcomes Framework.

Figure 3: Outline of benefits framework structure

Transport Outcomes Framework Transport outcomes are the first level of the benefit framework structure.

In 2018 the Ministry of Transport worked with other government agencies to develop an outcomes framework across all transport modes. This Transport Outcomes Framework makes it clear what the government is aiming to achieve through the transport system, and that the purpose of the transport system is to improve people’s wellbeing and the liveability of places. It does this by contributing to five key interwoven outcomes:

• Inclusive access • Economic prosperity • Healthy and safe people. • Environmental sustainability • Resilience and security.

The five outcomes are described in Figure 4.

Aligned with the Living Standards

Framework

Transport outcome

Benefit cluster

Benefit

Monetised

Non-monetised

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Benefit cluster Benefit

Monetised

Non-monetised

Quantitative

Qualitative

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Together, the five outcomes provide an enduring framework to guide transport decisions and direction. The government may sometimes prioritise some outcomes over others, depending on social, economic and environmental circumstances and the policies of the government of the day.

The Transport Outcomes Framework was developed to align and contribute to the Treasury’s Living Standards Framework.

Figure 4: Transport Outcomes Framework

Treasury Living Standards Framework The Living Standards Framework represents the Treasury’s perspective on what matters for New Zealanders’ wellbeing, now and into the future. It is a flexible framework that prompts thinking about policy impacts across the different dimensions of wellbeing, as well as the long-term and distributional issues and implications.

There are two levels of wellbeing considered – current domains and future wellbeing capitals. In this guide we link the benefits in our framework to the current wellbeing domains, but the benefits also contribute to the future wellbeing capitals. For example, greenhouse gas emissions contribute to the current environment domain and the future natural capital.

The 12 domains of current wellbeing in the Living Standards Framework are used as icons in each of the benefits described in Part One. Description of the domains is provided in Figure 5.

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Figure 5: Treasury’s Living Standard Framework

The benefit clusters and benefits Following the transport outcome, the second and third level of the benefits framework are the benefit clusters and the benefits. The benefit clusters and benefits are also enduring and reflect the broad range of land transport benefits valued by the community. It is expected that the GPS will provide emphasis on some benefits above others in each NLTP period in order to deliver strategic priorities.

The benefits management approach has been designed to allow for a cascade of benefits and the ability to revisit and refine them as planning becomes more detailed. Broader benefits can be reflected in higher level documents and processes, with more detailed and in-depth benefits and measures being included activity-related documents and processes.

Benefit identification should get progressively focused on specific interventions as the sector moves through the planning process. For example, activity management plans (AMPs) will provide benefits and measures appropriate at the programme level and maintenance, operations and renewals’ (MOR) documents will provide benefits and measures suitable at the activity level.

Benefit clusters Benefit clusters draw together groups of benefits into a common type. There are 12 benefit clusters within the five outcomes. They are used as an organising structure to connect the benefits to the Transport Outcomes Framework. The benefits are the focus of the framework and what we expect monitoring and reporting to focus on.

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Benefits Benefits are a measurable change resulting from an investment. They can be perceived as an advantage (positive/benefit) or disadvantage (negative/disbenefit). Each benefit begins with the word ‘impact’ to reflect the multi-directional flow of benefits.

There are 25 benefits in the framework, numbered by the benefit cluster to which they belong.

Benefits can be primary or co-benefit. Primary benefits are the key benefits of an investment, and co-benefits will also be delivered directly by the investment. Secondary benefits are those that are indirectly delivered by the investment.

Monetised, quantitative and qualitative benefits Benefits can be monetised and can be measured with quantitative and qualitative measures.

Of the 25 benefits, 12 are monetised. Information about how to calculate the monetised benefits or costs is available in the Monetised benefits and costs manual (formerly the Economic evaluation manual).

Of the 25 benefits, 21 have non-monetised measures associated with them – either quantitative or qualitative. These associations are only primary ones, however, and it is expected that some measures can be used to provide evidence of other benefits as well. For example, it is expected that 10.2.1 People – mode share, currently associated with 10.2 Impact on mode choice, might also be used as evidence of other benefits, such as 8.1 Impact on greenhouse gas emissions or 3.1 Impact of mode on physical and mental health. Information about non-monetised benefit measures is available in the Non-monetised benefits manual.

It is expected that quantitative measures will be selected for benefits that are monetised, when available. Quantitative measures will be used beyond the assessment of options in the business case and are necessary to monitor benefits realisation in the medium- to long-term.

In the following descriptions of the benefits, three icons are used to identify whether quantitative, qualitative, or monetised information is available for the benefit. See Figure 6 above for the key to the icons.

Monetised Quantitative Qualitative

Monetised benefits and costs manual

Non-monetised benefits manual

Included in the Economic evaluation manual (EEM)

Included in the Investment Performance Measures

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Figure 6: Types of benefits and measurement

Description of the benefits framework

Healthy and safe people >>

1. Changes in user safety >>

1.1 Impact on social cost of deaths and serious injuries >>

1.2 Impact on a safe system >>

2. Changes in perceptions of safety >>

2.1 Impact on perceptions of safety and security >>

3. Changes in human health >>

3.1 Impact of mode on physical and mental health >>

3.2 Impact of air emissions on health >>

3.3. Impact of noise and vibration on health >>

Resilience and security >>

4. Changes in impact of unplanned disruptive events on access to social and economic opportunities >>

4.1 Impact on system vulnerabilities and redundancies >>

Economic prosperity >>

5. Changes in transport costs >>

5.1 Impact on system reliability >>

5.2 Impact on network productivity and utilisation >>

6. Wider economic impact (WEI) >>

6.1 Wider economic benefit (productivity) >>

6.2 Wider economic benefit (employment impact) >>

6.3 Wider economic benefit (imperfect competition) >>

6.4 Wider economic benefit (regional economic development) >>

Environmental sustainability >>

7. Changes in natural environment >>

7.1 Impact on water >>

7.2 Impact on land and biodiversity >>

8. Changes in climate >>

8.1 Impact on greenhouse gas emissions (GHG) >>

9. Changes in resource efficiency >>

9.1 Impact on resource efficiency >>

Inclusive access >>

10. Changes in access to social and economic opportunities >>

10.1 Impact on user experience of the transport system >>

10.2 Impact on mode choice >>

10.3 Impact on access to opportunities >>

10.4 Impact on community cohesion >>

11. Changes in liveability of places >>

11.1 Impact on heritage and cultural values >>

11.2 Impact on landscape >>

11.3 Impact on townscape >>

12. Changes in te ao Māori >>

12.1 Impact on te ao Māori >>

Figure 7: Overview of the benefits framework – click to navigate the benefits descriptions

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Healthy and safe people Protecting people from transport-related injuries and harmful pollution, and making active travel an attractive option.

1. Changes in user safety This benefits cluster focuses on the actual safety of users of the transport system. It includes two benefits about the social cost and incidents of crashes and the creation and operation of a safe transport system.

1.1 Impact on social cost of deaths and serious injuries

This benefit is about the impact of reducing the number of deaths and serious injuries (DSIs) in the all land transport modes, and therefore reducing their social costs.

The social cost of deaths and serious injuries includes the cost to individuals, as well as the cost on the health system and costs due to delays on the network. It reflects the permanent and profound devastation that DSIs have on loved ones, families and whānau, colleagues and workplaces, and communities.

In calculating the monetised social cost, the unit cost of a road crash or a road injury includes loss of life and life quality, loss of output due to temporary incapacitation, medical costs, legal costs, damage to property, and vehicle damage costs. The unit cost is multiplied by the predicted number of crashes. The unit crash cost is varied by vehicle crash type and severity, and the predicted crash number accounts for the road environment and the exposure to the risk of crashing.

Quantitative measures include the number of DSIs, personal and collective risk, and crashes by severity.

While current measurement is road centric, this benefit also considers safety relating to rail and active modes.

Investments and programmes that may contribute to this benefit include those delivering specific safety infrastructure, such as median barriers and roundabouts, which are primary safety measures aimed at reducing DSIs. They may also include investment in other improvements where safety unlocks other co-benefits relating to wellbeing, for example mode-shift initiatives. Continuous programmes that maintain or improve safety might also contribute to this benefit.

This benefit impacts not only users of the transport system, but their family and friends who may be impacted by damage to property or personal injury or death.

1.2 Impact on a safe system

This benefit focuses on investment that contributes to an overall improvement in a safe system for all users of all modes. It includes system-wide infrastructure investment and also the regulation and policing of the land transport system for safety.

The four elements of the safe system for roads are: safe roads and roadsides; safe speeds; safe vehicles; and safe road use, as well as overall system management.

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Investments that may contribute to this benefit are those that intervene to improve the safety of the system, including system-wide infrastructure, speed-related activities (including speed limit change as well as user behaviours), safer facilities, and policing costs. Please note, however, that the monetisation of 1.1 Impact on social cost and deaths and serious injuries incorporates considerations of a safe system.

The quantitative measures currently associated with this benefit include road assessment ratings and travel speed gap.

All land transport users can be impacted by a safe transport system, whether driver, passenger, pedestrian, cyclist or other type of user.

2. Changes in perceptions of safety This benefit cluster has one benefit. It is focused on interventions that change how people feel about their safety and security when using the transport system.

2.1 Impact on perceptions of safety and security

This benefit is about user experience and perception of the system, particularly relating to safety and security. Perceptions of security, which may also contribute to the Resilience and security outcome, can be associated with the physical attributes of a place, such as lighting, security cameras and facilities. Security may also be associated with protection from external threats, such as terrorist threats, public unrest and infectious diseases, and may mean different things to different segments of the community. Perceptions of security might be particularly relevant when travelling on or transferring between public transport and active modes.

Perceptions of safety are closely related to perceptions of security and may also be a barrier to mode shift from private vehicles to active modes and public transport. Perceptions of safety may vary depending on an individual’s demographics and the social segments to which they identify or are identified. For example, people with disabilities, women, people from minority groups and children may have specific requirements when considering safety. A sense of safety may be related to whether there are appropriate facilities, particularly for walking and cycling, and comfort with the perceived level of risk associated with travel.

How people perceive the safety of the road transport system can also enhance the social licence for interventions that help keep them safe, such as enforcement and speed management activities (for example speed cameras).

Types of investments that might contribute to this benefit include public education campaigns to increase public support for interventions and road safety activities; walking and cycling facilities; speed-related investment, including enforcement and speed management activities; public transport facilities, services and staffing levels; technological improvements; emergency response and preparedness; travel behaviour change promotions and encouragement; and skills training (road safety education).

Quantitative measures associated with this benefit are currently limited to perceptions of safety and ease of walking and cycling.

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3. Changes in human health This benefit cluster is comprised of three benefits relating to mode of transport, air emissions and noise. From the personal decision of whether to cycle or drive to the supermarket to the ongoing impact of operations of arterial routes on people living or working close to them, this cluster is about how transport impacts on the health of people who use or are affected by others’ use of the transport system

3.1 Impact of mode on physical and mental health

This benefit relates to the impact of mode choice on transport users’ physical and mental health. This benefit is often framed in relation to physical and mental health benefits associated with uptake of active modes.

The World Health Organisation (WHO) recognises the importance of regular physical activity for physical and mental wellbeing. WHO promotes physical activity acts as a protective factor against diseases such as heart disease, stroke, diabetes and some cancers, as well being associated with improved mental health, the delay of the onset of dementia, and improved quality of life and wellbeing (WHO Global action plan on physical activity, 2018).

There are several overlaps between this benefit and other benefits in the framework.

The physical environment, or townscape, can have an important bearing on decisions to use active modes and be more physically active (11.3 Impact on townscape). Anything that induces demand for vehicle use, such as severance (10.4 Impact on community cohesion), can have a negative impact on the people’s physical and mental wellbeing.

There are also significant overlaps between this benefit and 10.2 Impact on mode choice, as the availability of choice is required for this impact to be fully realised. Equally, transport disadvantage that forces people to use modes that they do not prefer may have a negative impact on mental health.

This benefit is a secondary benefit for user experience (10.1 Impact on user experience of the transport system) due to associations with mental health. Investments and programmes that support the uptake of active modes and public transport (due to a general increase in walking to and from public transport modes) may contribute to this benefit, whether in relation to infrastructure development or improvement, service provision or education programmes.

This benefit may also be a co-benefit for investments relating to urban development and mode choice, and a secondary benefit in relation to user experience, such as public transport vehicle and service improvements.

Monetisation methods are focused on the benefits of walking and cycling (both conventional and electric assisted) based on the increased life quality and expectancy, health system cost savings and lost outputs. There is one qualitative measure associated with this benefit.

This benefit can impact all users of the transport system, both positively and negatively, particularly in relation to the transport mode individuals select.

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3.2 Impact of air emissions on health

This benefit covers air emissions from land transport vehicles that impact on human health, limited to those arising from roads and rail. There are a range of pollutant sources that contribute to poor air quality, of which land transport is one. Land transport air emissions are a complex mixture of gases and particles, with pollutants typically split into harmful air pollutants that cause adverse health effects and impact at the local level (this benefit), and pollutants that cause global impacts (benefit 8.1 Impact on greenhouse gas emissions).

Land transport is the primary contributor to nitrogen dioxide gases (NO2) in urban centres and a portion of the contribution to particulate matter (PM – extremely small particles or liquid droplets). Dust is another land transport emission, via unsealed and sealed road dust (such as dust from brake and tyre wear).

Particulate matter (PM10, smaller than 10µm, and PM2.5, smaller than 2.5µm) predominantly impacts respiratory and cardiovascular systems. Effects can range from reduced lung function, increased medication use and more hospital admissions, through to reduced life expectancy and death. Nitrogen dioxide (NO2) causes increased susceptibility to infections and asthma in people.

Investments and programmes that may contribute to this benefit includes mode shift programmes; construction of new infrastructure; changes in public transport services; high occupancy or low emission vehicle lanes; and changes in transport system operations and vehicle fleet composition.

Quantitative measures currently focus on pollutant concentrations of NO2 and PM10, rather than the longer-term health impacts. The impact of air emissions is monetised using the damage cost approach. This assigns a cost to each tonne of pollutant as a proxy for the damage done to people who are exposed to air pollutants.

The people impacted by this benefit are residents, visitors or workers in areas affected by air emissions from transport.

3.3 Impact of noise and vibration on health

This benefit covers land transport noise and vibration that impacts on human health. Noise and vibration can come from construction, operation, maintenance and use of land transport infrastructure.

Long-term exposure to transport noise and vibration can have significant impacts on human health, primarily related to sleep disruption and stress, and the resulting health impacts. Other impacts may include speech interference, cognitive impacts, and psychological and behavioural impacts. There is no evidence of permanent hearing loss from road traffic noise for people living nearby roads.

Humans are very sensitive to vibration, and the effects of vibration on human health and wellbeing are similar to noise. Vibration can cause sleep disruption, stress and annoyance. Vibration may be ground-borne or arise from sound that causes secondary vibration (eg window rattles). Both forms of traffic-induced vibration may produce resonance, which is perceived as sound or as a body vibration.

The primary road traffic noise source arises from tyres on the road surface during vehicle movement. Other noise sources include engine and transmission vibration, exhaust systems, bodywork and load rattle, air brake and friction brakes, horns, doors slamming, car audio systems, and aerodynamic noise.

Current quantitative measures focus on noise emitted during transport infrastructure use, including road traffic noise. Monetisation calculations consider the cost of property and the number of dwellings to determine a standard cost of noise per decibel as a proxy for comfort and wellbeing,

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with ongoing work focusing on developing measurement of health impacts. Vibration is currently a qualitative measure.

In larger investments, this benefit is likely to be a co-benefit, for example when noise barriers are part of a larger construction project, a low-noise road surface is selected, or a route is selected that reduces community exposure to noise.

The people impacted by this benefit are residents, workers, or visitors in areas affected by transport noise or vibration. Impacts on people’s activities may be cognitive (eg schools, workplaces), cultural (eg religious services, maraes) or amenity (eg parks and recreational areas).

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Resilience and security

Minimising and managing the risks from natural and human-made hazards, anticipating and adapting to emerging threats, and recovering effectively from disruptive events.

4. Changes in impact of unplanned disruptive events on access to social and economic opportunities This benefit cluster has one benefit and primarily covers the resilience component of the transport outcomes framework. Security is addressed in benefit 2.1 Impact on perceptions of safety and security.

Resilience is the land transport system’s ability to enable communities to withstand and absorb impacts of unplanned disruptive events, perform effectively during disruptions, and respond and recover functionality quickly.

Waka Kotahi’s Resilience Framework defines resilience as being prepared, and preserving or quickly restoring access to the transport network, including lifelines utilities, in the face of unplanned events.

Resilience includes an increasing focus on adaptation to climate change.

In the case of transport, the focus of resilience is the impact on people’s ability to access social and economic opportunities as a result of unplanned disruptions, whether through the land transport system or other novel responses to disruption.

4.1 Impact on system vulnerabilities and redundancies

This benefit is about reducing the risk of communities not being able to access social and economic opportunities due to unexpected outages. This may be achieved through having more options in the system (or redundancies) or the reduction of vulnerabilities.

The impacts may be related to the network, corridors, or stretches of roads and other physical infrastructure, but also may be related to readiness or alternative methods of ensuring that the economic and social needs of affected communities are met during recovery periods. In this setting, vulnerability may include the design of infrastructure and the way it may fail, as well as the ease of recovery from any failures. It also includes the consideration of avoidance of exposure to natural hazards and failure.

This benefit has a shorter-term focus than 10.4 Impact on community cohesion, which considers the longer-term impacts of severance or difficulty accessing social and economic opportunities.

System resilience is likely to be seen in regional and provincial New Zealand investments, and be a co-benefit in urban areas to support redundancies for choice of mode, destination and route.

Risk reduction benefits of natural/environmental or human-made risks is currently a qualitative measure in the framework, and the most relevant quantitative measures proposed for this area are the proportion of the most important routes with a viable alternative, and kilometres of transport network at risk from predicted sea-level rise.

The people impacted by this benefit are users of the land transport system, including businesses and tourists that rely on the network, or sections of it, to transport goods or people.

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Economic prosperity Supporting economic activity via local, regional, and international connections, with efficient movements of people and products.

5. Changes in transport costs This benefit cluster comprises two benefits about system reliability and network productivity and utilisation. These factors are important to supporting economic activity and connections.

5.1 Impact on system reliability

Transport system reliability is about the user being able to count on a similar travel experience on the transport system when travelling under the same conditions (for example at the same time with the same mode). This includes knowing that a bus will arrive at the time scheduled or knowing it will take a certain amount of time to drive to a destination at the same time of the day. Reliability means the journey is as expected, taking known normal variations into account, such as expecting a trip to normally take longer in peak times than in off-peak periods. In this way, it is related to benefit 10.1 Impact on user experience of the transport system.

Reliability can be influenced by factors that are not part of the land transport system, such as port logistics, workforce, or goods arrival, and therefore investments may not be able to resolve all reliability issues.

Reliability is about day-to-day variation, rather than disruption, which would be more closely associated with benefit 4.1 Impact on system vulnerabilities and redundancies.

Quantitative measures aligned to this benefit include the punctuality of public transport, travel time reliability and delay, and number and duration of road closures, some of which may also be relevant to other benefits. Monetised benefits include the calculation of journey time reliability.

Investments and programmes that contribute to this benefit might include ongoing state highway and local road network improvements and operations, and public transport programmes.

This benefit can impact all users of the transport system, especially those who access the system for economic reasons.

5.2 Impact on network productivity and utilisation

Network productivity and utilisation is about efficient use of the land transport network. This benefit is about optimising our part of New Zealand’s economic/social system to allow broader benefits to be gained.

Utilisation here means the most appropriate and optimal use of the network to contribute to community and economic welfare. It includes the financial benefits as well as the improved wellbeing of people. It is about optimising rather than maximising the use of the system.

Network efficiency is being used as a proxy for other benefits that the operation of the network enables and are not fully measured and monetised, such as 10.3 Impact on access to opportunities, and 10.4 Impact on community cohesion. As the other benefits become better

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understood and measured or monetised, network efficiency may not be considered an end benefit, but rather a contributor to wider monetised benefits.

Monetisation of network productivity is measured through changes to travel time and the financial costs of transport use, for example public transport fares and vehicle operating cost.

Quantitative benefit measures associated with this benefit include the spatial coverage of the high productivity motor vehicle (HPMV) freight network, freight mode share by value and weight, freight throughput by value and weight, and access to economic destinations.

Transport investments and programmes that may contribute to this benefit include ongoing state highway and local road network operations, mode choice programmes, walking and cycling facilities and public transport programmes.

This benefit can impact all users of the transport system, especially those who access the system for economic reasons.

6. Wider economic impact In addition to, or in some cases as a consequence of, direct impacts, there can be indirect impacts on the economy. These may cause a redistribution or reallocation of resources or may cause the entry or exit of firms. These are wider economic impacts and can include:

• agglomeration or specialisation of economic activity arising from improved transport that can encourage economies of scale

• mitigating existing market failures by improving accessibility and therefore competition between markets

• increased output in imperfectly competitive markets by diminishing persistent externalities • technology and knowledge transfer by connecting people and places, and increasing the

interaction between economic actors. • increased activity through changes in development patterns and activity that are enabled

through transport system changes.

Wider economic impacts have been used internationally to improve transport cost–benefit analysis (CBA) and can be thought of as impacts that are additional to the conventional benefits to transport users.

In considering the impact of any investment, attention should be given to the land use and dynamic changes that investment may contribute to. Great care is required to ensure that the estimates for wider economic benefits are truly additional to conventional benefits to avoid double counting.

The following wider economic benefits are applicable in the New Zealand context:

• agglomeration where firms and workers cluster for some activities that are more efficient when concentrated

• changes in labour supply where a reduction in commuting costs removes a barrier for new workers entering the workforce

• imperfect competition where a transport improvement allows output to increase in sectors where there are price-cost margins

• regional economic development where changes in tourism spend in a region leads to a net increase in national economic activity.

These benefits do not have specific quantitative measures associated with them, as a broad range of factors are incorporated into the calculation of wider economic benefits. All of the benefits are monetised benefits that should only be used for large scale interventions.

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6.1 Wider economic benefit (productivity)

This monetised benefit includes changes in productivity as the result of agglomeration, where scale and spatial concentration enable increased productivity by enabling better learning, matching, and sharing. The required spatial concentration of economic activity for realising agglomeration benefits is only likely to occur in the major industrial and urban centres of New Zealand. It is only the large and complex urban transport activities that will provide the relevant conditions that justify an analysis of agglomeration benefits.

6.2 Wider economic benefit (employment impact)

Job creation is often held up as a major impact of transport investment, with two distinct mechanisms being suggested.

Impact on the supply side Better transport may make it easier for people to get to work and may reduce discouraged worker effects. Individuals’ labour force participation decisions are based on comparing the costs of working (including commuting costs), against the after-tax wages earned from a job. By reducing the cost (in time and money) of getting to work, a transport investment is likely to increase the returns to work.

The labour supply impacts are calculated in monetary terms in three steps:

1. calculating changes of the round-trip commuting cost as the result of the investment 2. calculating the marginal wage of a worker entering or leaving the labour market, and 3. calculating the impact of changes in labour supply on tax income.

Impact on the demand side Induced investment creates new employment opportunities when there is un-employment, that is, displacement is not 100%. This may be an important impact in the time of significant unemployment.

If demand is met by increased labour force participation then its value is, as above, the impact of changes in labour supply on tax income. If it is met by withdrawing labour from other activities, then the value is the alternative wage. There is no net benefit if wages are the same in both jobs. Displacement is 100%, so demand-induced employment effects should, from the national perspective, be ignored

6.3 Wider economic benefit (imperfect competition)

The wider economic impact from imperfect competition can occur if a transport improvement causes output to increase in sectors where there are differences between price and marginal cost. If a transport improvement causes a reduction in travel time for in-work travel it is fair to assume the time saved will be put to productive use. The value of one hour saved for a business traveller is therefore the market value of what the workers can produce in that hour. Because conventional CBA assumes all transport-using sectors operate in perfect competition, where price equals marginal costs, the value of the additional production is identical to the gross marginal labour cost of the additional hour worked. CBA therefore measures the value of the travel time saving as a saving in gross labour cost. However, if price-cost margins exist, they, by definition, cause a wedge between the hourly gross labour costs and the market value of what is produced in that hour. This means that where there are price-cost margins, a transport-induced increase in output will cause a wider economic impact identical to the size of this wedge.

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6.4 Wider economic impact (regional economic development)

Economic benefits from increased tourism activity are distinct from the wider economic benefits identified above. The above wider economic benefits relate to supply-side improvements that lift economic output, for example by increasing the size of the labour force or increasing the productivity of existing firms and workers. This benefit may overlap with 6.2 Wider economic benefit (employment impact) and caution should be observed to avoid double-counting.

Tourism benefits, by contrast, arise due to changes in demand for goods and services produced in New Zealand. An increase in international tourist activity in New Zealand can be thought of as an increase in New Zealand’s exports. The economic benefits of this increase in demand relate to the resulting increase in New Zealand’s total economic output, that is, its gross domestic product or gross national income.

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Environmental sustainability Transitioning to net zero carbon emissions, and maintaining or improving biodiversity, water quality, and air quality.

7. Changes in natural environment The natural environment benefits cluster comprises of benefits relating to water, land and biodiversity. Changes to the natural environment result from the development, use, operation and maintenance of the land transport system. This benefits cluster may therefore be applied to a wide range of investments.

Water, land and biodiversity have value in and of themselves as fundamental building blocks of Aotearoa’s natural environmental system. They support our way of life and have intergenerational benefits.

This benefit cluster is related to benefit cluster 12 Changes to te ao Māori, recognising the importance of the environment to te ao Māori (the Māori world view).

7.1 Impact on water

The land transport system can impact on water quality and flow during the operation, maintenance and construction of transport infrastructure. Effects can be short term or long term.

Potential impacts include surface water pollution from surface run-off or spray and accidental spillage, and ground water pollution from soakaways discharge or disturbance of contaminated ground.

Erosion from construction activities, as well as stockpiling of materials, can cause sediment discharge to surface water. New infrastructure or construction can also interrupt overland flows (such as rainstorms and flooding), channelised flow (such as streams and rivers), or ground water flows and levels. This can affect the surrounding areas and impact on the natural and built environment.

Investments in operations, infrastructure construction and maintenance of the land transport system may therefore have positive or negative impacts on water.

Qualitative benefits guidance is available for water quality and flow.

7.2 Impact on land and biodiversity

This benefit, which is largely focused on biodiversity, is concerned primarily with indigenous vegetation, ecosystems, and habitats for indigenous species. Our indigenous biodiversity is significant internationally, as New Zealand is a ‘biodiversity hot spot’, with 52,000 species only found in Aotearoa.

Biodiversity is fundamental to life and central to the environmental systems people and other organisms depend on, and New Zealand’s indigenous biodiversity has deep intrinsic value. The important resources and services such as clean air and water, fertile soils, pollution and flood control provided by biodiversity underpins New Zealand’s economic and social sustainability.

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Investment in land transport system construction and maintenance, and daily operational use, can impact both positively and negatively on land and biodiversity, including habitat fragmentation, connectivity, availability and quality of ecosystems and habitat, diversity of native flora and fauna, and biosecurity.

Qualitative measures are available in the framework for this benefit, including biodiversity and productive land, and consider the impact on ecological components, functions and processes.

8. Changes in climate This benefit cluster consists of one benefit related to greenhouse gas emissions. There is an expectation in the Climate Change Response (Zero Carbon) Amendment Act 2019 that the land transport system reduces emissions from transport in line with the government’s carbon budgets. This cluster focuses on greenhouse gas emissions through operation of the land transport system.

Preparation and adaptation for climate change is reflected in the resilience and security outcome, and embodied emissions are considered in benefit 9.1 Impact on resource efficiency. Other air pollutants that impact on human health, such as NO2, are considered in the Healthy and safe people outcome area.

8.1 Impact on greenhouse gas emissions

Land transport currently contributes nearly 20% of greenhouse gas emissions in New Zealand. The government’s priority is to reduce emissions from the transport system.

The primary greenhouse gas is carbon dioxide (CO2), and other direct and indirect climate pollutants include black carbon (BC), methane (CH4) and sulphur dioxide (SO2). Other air pollutants are included in 3.2 Impact of air emissions on health.

This benefit might be identified in transport investments or programmes that impact the number of greenhouse-gas emitting vehicles or the emissions generated through mode shift or other means.

Two quantitative measures are available for this benefit cluster, one a direct measure of greenhouse gas emissions from transport, and the other about the number of single occupancy vehicles. Greenhouse gas emissions are measured in the Monetised benefits and costs manual by CO2 equivalent emissions, which are determined through fuel consumption. The monetised value is the abatement cost of CO2 equivalent emissions.

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9. Changes in resource efficiency Using resources in efficient and sustainable ways can reduce environmental impacts, relieve demand for new raw materials, reduce waste and reduce costs. This benefit cluster consists of one benefit: the impact on resource efficiency.

9.1 Impact on resource efficiency

This benefit considers the sustainable use of resources and materials and the reduction of environmental harm.

It includes:

• sustainable sourcing and use of materials, such as aggregate and recycled materials • waste minimisation, such as reducing waste sent to landfill and clean-fill, and designing

out waste • impact on embodied carbon and energy use, such as types of materials, the energy used

on the network, and their carbon footprints.

Consideration of the whole-of-life benefits of infrastructure is also included in this benefit. Whole-of-life considerations based on resource efficiency will likely outweigh the initial cost of the investment. An example of this is making a proposal to invest in long-life pavements where the initial cost is greater, but its useful life is longer with less maintenance required.

Transport investments and programmes that contribute to this benefit need to consider the whole-of-life impact of resources, alternative or recycled materials, lower embodied carbon in materials being used, or sourcing of local materials. Three resource efficiency qualitative measures are available for this benefit, focused on broad resource efficiency, embodied carbon and energy.

The key beneficiary of this benefit is the natural environment, which supports New Zealanders’ way of life with intergenerational benefits.

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Inclusive access Enabling all people to participate in society through access to social and economic opportunities, such as work, education and health care.

10. Changes in access to social and economic opportunities An important way people obtain access to social and economic opportunities is through fair and equitable access to the transport system alongside other equitable access methods, including proximity and virtual access. That is, regardless of age, ability or socio-economic status, people can get where they need to be to participate in society and live fulfilling lives. Social and economic opportunities include access to education, work, essential health and shopping services, and community. The focus on people, proximity and destinations are a distinctive feature of this benefit cluster. The benefit cluster also includes benefits describing how users experience the land transport system, the modes available for people to choose from, and the impact of the transport system on social cohesion.

10.1 Impact on user experience of the land transport system

User experience of the land transport system is a wide-ranging benefit. It considers how all people experience the transport system, including vulnerable groups, and how different modes are experienced.

Perceptions of safety also impacts user experience, with some overlap between this benefit and benefit 2.1 Impact on perceptions of safety and security.

Experience might include comfort, ease, convenience, crowding, how long it takes to travel and network condition.

Quantitative measures associated with this benefit include people and traffic throughput across all modes, condition of the road and cycle network, pedestrian delay and travel time.

Public transport user experience is monetised through changes in infrastructure, service, and vehicle features, and existing users experience due to changes in demand for public transport (crowding). For pedestrians and cyclists, the user experience of higher quality new or improved facilities is monetised. Monetised aspects of this benefit for road users may also include the value of reducing driver frustration through construction of dedicated passing lanes, and the comfort and productivity gains of sealing an unsealed road.

This benefit may be identified for transport investments or programmes that improve user experience as a key or co-benefit, including maintenance of roads, bus service design, capacity of infrastructure, cycling and pedestrian facility design, the ease with which people can connect between modes, urban design and urban form, and design of transport infrastructure and facilities.

Its beneficiaries are all users of the land transport system, sometimes with specific focus on targeted groups, including children, elderly, pedestrians and people with disabilities.

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10.2 Impact on mode choice

This benefit is focused on the way that people make journeys, including the start and end of a person’s journey, and the options they have open to them. It can also include freight mode choice.

This benefit is about the things that may encourage or dissuade someone to select a particular mode, which is different to the focus on destination in 10.3 Impact on access to opportunities. For example, barriers to mode choice may include availability (infrastructure, service), viability (of provision), affordability to user, frequency, reliability and comfort. Some of these factors are also relevant to 10.1 Impact on user experience.

Travel behaviours – what people decide to do and what value people put on transport options – are fundamental to this benefit. Another key factor that might be included in this benefit is the option value, that is, the value to individuals or groups of knowing about or having transport mode options available to them, even if they are not used. For example, there might be no need for an individual to use the option currently, but there may be in the future.

Any transport investment or programmes could identify this benefit, either as a primary or co-benefit, where it provides education and knowledge to people about mode choice or that reduce barriers to mode choice. It could also contribute to investments that increase transport options or their quality, frequency, capacity and spatial coverage.

The quantitative measures associated with this benefit include mode share (of both people and traffic) by number, percentage and distance. The spatial distribution of transport options, including cycling facilities and public transport, and the temporal availability of public transport are also potential quantitative measures of this benefit.

The beneficiaries of this benefit are all current and future users of the transport system, particularly those who currently have limited transport options.

10.3 Impact on access to opportunities

This benefit concentrates on transport as an enabler, and on the integration of land use and transport. It focuses on the importance of destinations, services and/or activities that can be equitably accessed through transport to enable economic and community participation. This benefit may be of particular relevance for people or groups who experience transport disadvantage.

The social and economic benefits of equitable access to transport are part of this benefit, enabling participation in employment, volunteer work, and social and leisure activities, thereby improving the overall wellbeing of communities. The beneficiaries of this benefit are all current and future users of the transport system for whom access allows them to fully participate in life and their community.

Currently, the primary quantitative measure of this benefit is how long it takes residents to reach key social destinations, such as schools, supermarkets, general practitioners and hospitals, by different modes. The similar measure about economic destinations (employment) can also be used for this benefit. The focus on measurement of destination is unique to this benefit.

Transport investments and programmes that might contribute to this benefit include those that improve access to key social and economic opportunities through education, infrastructure or services, and support alternative means of access or improved proximity to opportunities.

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10.4 Impact on community cohesion

The community cohesion benefit is about the transport system’s role in enabling and maintaining the normal functions of a community. While resilience (4.1 Impact on system vulnerabilities and redundancies) focuses on short-term individual and community cohesion as a result of unexpected disruption, this benefit is about the long-term resilience and connectedness of communities, rather than individuals.

Severance is a key concept in this benefit. Severance may be caused by the separation of people from the facilities, services and social networks they wish to use within their community because of changes in comfort and attractiveness of areas; and/or people changing travel patterns due to the physical, traffic flow and/or psychological barriers created by transport projects.

Severance is often a disadvantage and is disproportionately experienced by some groups, such as children, older people, people with disabilities, people without easy access to a car, and people on low incomes. It may negatively affect access by walking and cycling as they are the most sensitive to increased trip distances.

Isolation is another component of this benefit. In a transport sense, isolation occurs when people are unable to access normal community facilities or where there are long distances to travel to those facilities. Isolation may arise because roads are unreliable or people live in remote areas, creating some spatial and/or digital disadvantage.

Community cohesion isn’t always about enabling access to centres, however. It may also relate to travel between satellite or smaller communities, whether by vehicle or other active modes. It may also relate to particular parts of cities or towns that, due to lack of public transport or good roads, may suffer from disconnection to the rest of the community

Transport investments and programmes that might contribute to this benefit include new infrastructure, facilities or services where community connection and cohesion are primary or co-benefits.

Beneficiaries of this benefit are not only those that would suffer from exclusion from the broader community, but the broader community as well, which benefits from wide-spread opportunities to participate.

11. Changes in liveability of places Liveability extends far beyond the transport system and includes a wide range of factors, many of which are not related to this land transport benefits framework. However, the transport system does have a significant impact on liveability and can either improve or detract from the quality of ‘place’.

The liveability of a place can relate to its form, character, amenity, convenience and proximity to other places valued by locals and visitors. Liveability of place includes how we plan, manage and grow our towns and cities, particularly in relation to transport – how people move through places to reach the destinations that matter to them. It is about how well the attributes of a location enhance the wellbeing of the people who live, work or visit there. When the liveability of a place changes, it can be due to local context change (the location reflects the diversity of the population), the value individuals place on the location, the number of people there and the variety of needs and preferences of people that are met there.

The One Network Framework (ONF), which is being introduced in 2020 with the intention of full implementation for the 2024–27 NLTP period, presents the concept of ‘movement’ and ‘place’. The ONF will help categorise the different functions that roads and streets have and will contribute to assessing changes to liveability. While the ‘movement’ function of a road or street is to move people and goods through a corridor, the ‘place’ function relates to the extent to which a road or street is a destination in its own right and supports activity (including economic activity). There is a

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natural tension between interventions aimed at saving time passing through a corridor and those aimed at increasing how long people dwell in a place for social and economic benefits.

As a signatory of the New Zealand Urban Design Protocol, Waka Kotahi values urban design principles, which span from the placement of transport networks and land use at the regional level, to the detailed design of streets and public spaces at the local level. In the context of Waka Kotahi projects, urban design generally seeks a balance between transport improvements and the need to link to the local context, and maintain or enhance the amenity and liveability of the local community, which is reflected in the benefits included in this cluster.

Many of the benefits in the framework are focused on movement, but can also be relevant in some way to the concept of place, such as 2.1 Impact on perceptions of safety and security, and 10.3 Impact on access to opportunities. The benefits included in this cluster are specifically related to concepts around liveability and place that are not already recognised elsewhere in the framework. See Figure 8 for an overview of how other benefits might contribute to the liveability of place benefit cluster.

Figure 8: Benefits that contribute to liveability of place

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11.1 Impact on heritage and cultural values

This benefit reflects the diverse heritage and cultural values that make up New Zealand’s population. Cultural values can be closely intertwined with heritage values. Cultural values, including spiritual values, are a deeper experience of the place that transcends amenity associations and is distinct from commemorative associations.

Values associated with te ao Māori (Māori world view) are strongly related to heritage and cultural values. Those values are discussed separately in benefit cluster 12. Changes in te ao Māori.

Cultural values Cultural values recognise New Zealand’s cultural diversity and mixed cultural beliefs. It includes the built environment (such as buildings of cultural importance) as well as values (the places, spaces and concepts of value).

For this benefit, cultural values are considered as both tangible and intangible benefits. Tangible benefits are more likely physically visible and may be expressed in monetary terms, and intangible values are more likely to be based on perceptions and not as easily expressed in monetary terms. The intrinsic value of cultural values is also included here, including the importance of the existence of places of cultural and heritage value.

Heritage Like cultural value, the historic environment is important for health and wellbeing, creating a strong sense of place, influencing how places are perceived, bringing people together, inspiring learning and understanding, and providing the context or means by which local people can take an active role in their local area – turning a place into a community. It also plays a role in urban development and in generating economic activity.

Land transport investment and programmes that may contribute to this benefit include any that impact on the places and spaces of heritage and cultural value and the ability of people to access them. The Resource Management Act 1991 (RMA) requires historic heritage to be protected from ‘inappropriate subdivision, use and development’ (section 6(f)).

Qualitative measurement of this benefit focuses on the following heritage and cultural features – amenity, spiritual/cultural, bequest, historic education, commemorative, associative, recreation, tourism, functional and economic – which are detailed further in the Non-monetised benefits manual.

This benefit impacts on all New Zealanders who value places and spaces for cultural or heritage reasons.

11.2 Impact on landscape

This benefit is primarily about rural settings, but can be relevant to some urban settings with the same characteristics as a rural area. Landscape means more than just a physical tract of land or a view or scene. Landscape can be explained as a reflection of the relationship between people and place. It is both the characteristics and perceptions of the land that give a ‘sense of place’ to people living in it or visiting it. The characteristics can be physical or cultural, and can be unique to a place or can contribute to local distinctiveness and community perception of value. In this way, it overlaps somewhat with benefit 11.1 Impact on heritage and cultural value.

The New Zealand Institute of Landscape Architects (NZILA) describes landscape as consisting of biophysical elements, patterns and processes; associative meanings, including spiritual, cultural or social associations; and sensory or perceptual qualities. Landscape is therefore a culmination of natural and cultural features and is focused on the functioning of a geographical area, while also taking into account human perceptions and associations.

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On the biophysical side, this benefit may overlap with the benefits in cluster 7. Changes in natural environment.

Investments and programmes that may contribute to this benefit include those that directly impact the preservation of the natural character of the landscape or outstanding natural features. It may also be relevant for those investments that consider landscape enhancements, such as developing green infrastructure or protecting view shafts, or impact on people’s connection with nature and place, and other investments that impact on landscape as a co-benefit.

While landscape characteristics and the way they are perceived may gradually change over time, any immediate impact of land transport related infrastructure or programmes on the characteristics and perceptions of landscape is included in this benefit. The qualitative measure of landscape focuses on the landscape features – pattern, tranquillity, cultural and historic, landcover and summary of character – which are detailed further in the non-monetised benefits manual,

This benefit can impact on anyone who appreciates landscape values, whether in person or remotely, and can have an intergenerational impact.

11.3 Impact on townscape

This benefit is about how the form and character of the built and non-built urban environment and their perception generates a ‘sense of place’ or identity. The continuing changes in the urban environment (urban morphology) is also included in this benefit. A townscape includes all aspects of the urban form, not just heritage aspects or those that are architecturally designed, and it can interplay and be affected by heritage and cultural value (11.1 Impact on heritage and cultural value), the sense of community and perceptions of safety (2.1 Impact on perceptions of safety and security).

Physical characteristics, such as street patterns, the navigability of the urban environment from a human perspective, buildings, public places and architecture, scale, open spaces and community infrastructure, are important components of this benefit. However, it is also the social aspects, the perception of the place and other aspects such as air quality and noise, that create a ‘townscape’.

This benefit includes how people move through and use the space and the activities that occur within it, which can also be relevant to benefit 10.2 Impact on mode choice. The conceptual mix of movement and place in relation to transport is reflected in the One Network Framework, which is currently being introduced into transport sector planning.

Investments and programmes that may contribute to this benefit include those that directly impact urban form or characteristics, such as cityscape projects, those that create shared streets or make use of place for multiple transport modes, and other investments and programmes that impact on townscape as a co-benefit.

The qualitative measure of townscape focuses on the townscape features – layout, density and mix, scale, appearance, human interaction, cultural, land use and summary of character – which are detailed further in the Non-monetised benefits manual.

This benefit can impact both users and non-users of the place and can have an intergenerational impact.

Back to overview >>

Back to overview >>

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12. Changes in te ao Māori This benefit cluster is about te ao Māori values (a Māori world view), which are intertwined with obligations under Te Tiriti o Waitangi (the Treaty of Waitangi). This benefit incorporates both historical and contemporary evolving values that should be considered to understand the potential and realised benefits. It is about benefits realised due to integration of elements that respond to specific Māori concerns.

The Land Transport Management Act 2003 and the Resource Management Act 1991 capture the responsibilities of Waka Kotahi and approved organisations in regards to Māori and Te Tiriti o Waitangi.

The Waka Kotahi Māori strategy, Te ara kotahi, outlines the desired outcomes and benefits it is looking to achieve.

Engagement with Māori stakeholders from the earliest stages of relevant business case is essential to consider the Māori view. Guidance on the level of engagement with Māori is outlined as part of the Hononga ki te iwi, the Waka Kotahi Māori engagement framework.

12.1 Impacts on te ao Māori

This benefit is about the impacts of transport investments and programmes in te ao Māori view. There is no ‘one’ te ao Māori view. While there are many common elements between different te ao Māori views, there are often variations between whānau (families) hapū (subtribes), and iwi (tribes). Te ao Māori views evolve with changes in circumstances and technology, and reflect historical and contemporary influences. Decision-makers should be aware of the views of tāngata whenua (the iwi or hapū with customary authority over a particular area) as it relates to the location and influence that their programme or project may have.

The following are some key core Māori values and their general meaning, though they are subject to further hapū and iwi interpretation.

Rangatiratanga: The right to exercise authority and self-determination within one's own iwi and/or hapū realm.

Manaakitanga: Hospitality, kindness, generosity; supports the process of showing respect, generosity and care for others.

Kaitiakitanga: Guardianship, stewardship, trusteeship, trustee.

Whanaungatanga: Relationship, kinship, sense of family connection – a relationship through shared experiences and working together, which provides people with a sense of belonging.

Wairuatanga: The immutable spiritual connection between people and their environments.

Kotahitanga: Unity, cohesion and collaboration.

Mātauranga: Māori/mana whenua knowledge and understanding.

This benefit is unique in that many te ao Māori values are found elsewhere in the framework. This benefit provides focus to ensure that the holistic views of te ao Māori are considered in each of the other benefits. Identification of these impacts and benefits require engagement and discussion with relevant hapū and iwi. Figure 9 illustrates the relationship between core te ao Māori values and other benefits within the framework.

Ben

efit

clus

ter

Back to overview >>

Back to overview >>

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 35

Figure 9: Relationship between core te ao Māori values and other benefits within the framework

1.1 Impact on social cost of deaths and serious injuries1.2 Impact on a safe system

Impacts on Māori communities. Tangihanga and manaakitanga values

2.1 Impact on perceptions of safety and securityPerceptions of safety and security on events at marae, eg tangihanga and hui. Kaitiakitanga and manaakitanga

values benefit from the improvements

3.1 Impact of mode on physical and mental health 3.2 Impact of air emissions on health3.3. Impact of noise and vibration on health

Impacts of noise and emissions on the marae environment. Kaitiakitanga and

manaakitanga values

4.1 Impact on system vulnerabilities and redundanciesImpacts on access for Māori economy, marae, papakainga and cultural sites.

Rangatiratanga, kotahitanga and whanaungatanga values

5.1 Impact on system reliability5.2 Impact on network productivity and utilisation

Impacts on access for Māori business operations and continuity.

Rangatiratanga and whanaungatanga values

6.1 Wider economic benefit (WEB) (productivity)6.2 WEB (employment impact)6.3 WEB (imperfect competition)6.4 WEB (regional economic development)

Impacts on access for Māori business operations, expansion and land use. Rangatiratanga and whanaungatanga

values

7.1 Impact on water7.2 Impact on land and biodiversity

Impacts on mahinga kai (food gathering places) and te taiao (the

natural world). Kaitiakitanga values

8.1 Impact on greenhouse gas emissions Impacts on Māori practices and places. Kaitiakitanga values

9.1 Impact on resource efficiencyImpacts on the best use of finite Māori

resources. Rangatiratanga and kaitiakitanga values

10.1 Impact on user experience of the transport system10.2 Impact on mode choice10.3 Impact on access to opportunities10.4 Impact on community cohesion

Impacts on Māori communities and business. Rangatiratanga and

whanaungatanga values

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PART TWO: THE BENEFITS MANAGEMENT APPROACH

Overview of the benefits management approach This part of these guidelines is about how to apply the benefits framework described in Part One. It shows how the benefits and measures outlined in the first part of this guide are applied in practice to National Land Transport Programme (NLTP) processes and documents.

Part Two looks at how the benefits are applied through four lenses (as per Figure 10).

By integrating benefits thinking into the processes and documents represented in all four of the sections, a consistent approach to the consideration of benefits can now be applied across the entire breadth of the NLTP. That is, from thinking about regional transport problems and solutions, to approved organisation (AO) and council activity management plans, through to improvement business cases, all references to transport benefits can now draw from the same consistent set of benefits and measures set out in the benefits framework. Ongoing monitoring and reporting against benefits realisation will also reference the benefits framework and will be supported by centralised data where possible.

The benefits framework is being introduced into all stages of the NLTP from the beginning of the 2021–24 NLTP, which will create an ongoing robust benefits management practice.

While using the framework will be mandatory in several processes immediately (including in improvement business case development and assessment), it is being introduced in a transitionary way. For example, in regional land transport plans (RLTPs), where the use of the benefits framework is being encouraged in this NLTP period, benefits and measures from the benefits framework can be run in parallel with historical benefits and measures to allow for transition to the new framework.

Waka Kotahi will work with the sector to further refine benefits management. As we learn from implementation, we will make regular updates to guidelines and materials, as well as ongoing improvements to how we use benefits data in evidence-based decision-making and improved benefits realisation processes and products.

Waka Kotahi has a long-term commitment to better understanding and reporting the impacts land transport investment has on the lives of New Zealanders.

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.

Ma

Section 1

Section 2 Section 3 Section 4

AMP >>

MOR >>

LCLR >>

RPTP >>

RLTP >> Point of entry >>

Strategic case >>

Programme business case >>

ILM >>

NLTP >>

Prioritisation for inclusion in NLTP

>>

Formal reporting >>

Assurance >>

Prioritisation for funding approval

>> Ongoing reporting and analysis >>

Detailed business case >>

Indicative business case >>

Single-stage business case (and lite) >>

Figure 100: Overview of instructions in Part Two of this guide – click to navigate

Benefits and the assessment tools

>>

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Principles for applying the benefits framework This section provides some principles to help users select the most appropriate benefits and measures in the process and documents described in detail in the following sections.

These principles are provided as guidelines only and are not requirements that need to be fulfilled when applying the benefits framework.

Benefits cascade

The benefits management approach has been designed to allow for benefits to be a thread that connects highest level transport strategy to in-depth business cases. Benefits can be followed through from strategies (such as the RLTP strategic context), to programme business cases (such as an activity management plan (AMP)), to activities (such as low cost, low risk programmes).

This cascade creates a web of benefits across the processes and documents in the NLTP. The benefits and measures from the upper levels will flow through and inform the benefits and measures in the lower levels.

For example, the AMP is the programme business case that sits above the maintenance, operations and renewals (MOR) document, and benefits and measures that are identified in an AMP will be the starting point for determining the benefits and measures in the MOR.

However, to enable a true cascade, the best benefits for each document or process need to be selected, rather than merely copied from the preceding document or process. Benefits at the more strategic end of the process are likely to be broader and more generally applicable, while benefits for in-depth processes and business cases are likely to be more specifically associated with, and as a result of, an activity.

Revisiting and refining benefits

Benefits will need to be revisited and refined through the business case stages. It is expected that, as the business case is developed, there will be greater clarity about the impact of the investment and the associated benefits measures, resulting in a potentially larger set of more diverse benefits at the end.

Benefits are required to be entered for all activities and programmes in the Waka Kotahi Transport Investment Online system (TIO). As benefits, like other content within TIO, will be captured by snapshots when stages are endorsed, there will be a good record of the natural progression of benefits and their measures as programmes are translated into activities and more detailed business cases are developed.

Diversity of benefits

The benefits framework will allow for the recognition of a wider variety of benefits than in the past. This will enable Waka Kotahi to better give effect to Government Policy Statement on Land Transport (GPS) priorities and local government to better align, and demonstrate that alignment, with community outcomes. The ability to recognise a wider variety of benefits also allows for the benefits framework to be applied more broadly, such as to other sources of funding, but it also sets up some natural tensions.

When selecting from a broader range of benefits, there is a natural tension between using a wider set of benefits in investment proposals (that reflect the broad range of impacts of investment) or focusing only on those that relate to the investment priorities set out by the government of the day in the current GPS. When selecting benefits and measures, you will need to find a balance between these two approaches, ensuring a robust case is developed alongside the ability to measure the true impact of investment over time.

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Benefit trade-offs

The range of benefits available in the benefits framework allows for consideration of the broader impact of programmes or investment. This means it is necessary to consider trade-offs across benefits when discussing and selecting them.

If one benefit is sought as a positive outcome, discussion should consider if there are any unintended negative impacts on other benefits in the framework. For example, while the installation of new roading infrastructure might improve access, does it negatively impact on greenhouse gas emissions?

More is not necessarily better

Having a broader range of benefits available may encourage the selection of a greater number of benefits and measures. However, it is important to note that selecting more benefits will not improve a proposal’s assessment prospects for NLTP approval.

Decision-makers will be looking for evidence of the level of impact that each selected benefit and its measures provides, rather than the number of benefits that can be associated with the investment.

There will need to be a balance between reflecting an appropriate spread of benefits and measures without setting up an unnecessarily large set for ongoing monitoring.

Overlapping benefit areas and measurement

There are some natural overlaps across the framework. For example, the overlaps between 11.2 Impact on townscape, 3.1 Impact of mode on physical and mental health and 10.4 Impact on community cohesiveness. Clear overlaps are signalled in the description of the benefits provided in Part One, but it may be a worthwhile exercise to consider whether any overlaps exist between selected benefits and others in the framework when finalising a set.

The table of benefits and measures provided at Appendix 1 lists measures that are numbered and associated with benefits. However, to allow for the overlaps between benefits, any measure can be used as evidence for any benefit.

When selecting measures for a benefit, you are able to select a measure from anywhere in the framework.

Monetisation and measurement of benefits

While there is some overlap between benefits, the monetisation methodologies outlined in the Monetised benefits and costs manual ensure there is no double counting between monetised benefits.

Of the 25 benefits, 12 of them have approved monetisation methodologies. If you are developing a business case for an improvement and select a benefit that will be monetised, you are strongly advised to also select a quantitative or qualitative measure for the benefit, if available. This will allow for ongoing benefits realisation monitoring and reporting against the benefit.

While benefit monetisation will be used for assessment and, for a portion, at the completion of improvement investments, non-monetised measures are applied to all NLTP processes and documents and will be used to track the impact of investment over time.

Greater detail about monetisation and measurement is provided in the Monetised benefits and cost manual and the Non-monetised benefits manual.

Quantitative and qualitative measures

The process maps included in Part Two describe where and when to select quantitative and qualitative measures. For information about each of the measures, and to help you decide which measures to use, go to the Non-monetised benefits manual. In association with the descriptions of

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the benefits in Part One of this guide, the Non-monetised benefits manual will help you understand each measure and consider which one provides the best evidence for the impacts of investment.

In addition to the steps outlined below, further specific instructions will be available for each field in TIO by hovering over the ‘?’ icon.

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Centralised benefits data and the benefits management approach Waka Kotahi is developing a centralised data set for each of the quantitative measures in the benefits framework. All available data is being shared through the StoryMaps tool. The data can be fed into the baseline fields described in the detailed process maps in the following sections and will inform future benefits realisation reporting.

The Non-monetised benefits manual provides the links to data and explains the details around the data. This section provides some overarching guidance on the reasons for centralised data and use of the centralised benefits data tool.

Evidence-based decision-making

All activities proposed for the NLTP are required to be supported by robust evidence. That evidence may include community experience, observable trends and other contextual information. The delivery of a tool to share the centralised benefits data held by Waka Kotahi is driven by a desire to provide the sector with access to good quality transport data about the benefits in our framework.

Centralised data

While some parts of our sector have the ability (whether because of resources or other factors) to develop and manage data specific to their geographical location, others do not. Providing a centralised data set brings all AOs onto an even playing field when it comes to understanding transport problems and finding data to support the consideration of these problems. It also allows for consistent comparisons across different geographical areas.

Having centralised data eases any reporting burden resulting from the ongoing benefits realisation processes, which are part of the new benefits management approach. When measures are included in business cases, baseline information is required and measures will be monitored for the life of the investment, and even beyond. Centralised data allows for easier access to the baseline number, and means Waka Kotahi can continue to monitor the measure beyond the life of the investment, removing any ongoing reporting burden from the co-investor.

The types of data available

Benefits data is available online through the StoryMaps tool. This tool allows for spatial representation of data alongside the ability to share data itself, where possible

Spatially represented data gives users the ability to understand the data visually, and makes it easier to identify transport problems and opportunities across regions or areas. The data behind the spatial representations allows for data wrangling and more complex modelling to be undertaken. Further details about the types of data available are provided in the Non-monetised benefits manual.

Accessing the centralised data

The StoryMaps tool is available online with password access. You can request access by e-mailing investment.benefits@nzta.govt.nz.

A webinar about how to use the benefits data tool will be available on InvestHUB.

Ongoing development of centralised data

Waka Kotahi is committed to continuing to develop the number of benefit measures with centralised data. Please contact investment.benefits@nzta.govt.nz with any suggested data sources.

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Roles and responsibilities This section includes some of the key roles and responsibilities related to the benefits management approach.

Guides and manuals

Waka Kotahi is responsible for maintaining the benefits framework and associated description and manuals.

As the benefits framework is applied, Waka Kotahi encourages users to provide feedback on usability and clarity to allow for all guides and manuals to be iteratively improved.

All benefits guides and manuals will be regularly updated to include additional relevant information and guidance, such as new forecasting methodologies or parameters values, as they are available.

Data

Waka Kotahi is responsible for maintaining and improving centralised data for quantitative measures, as is described in the Non-monetised benefits manual.

Where measures are used that do not have centralised data, Waka Kotahi plans to work with AOs to develop baseline and forecasting information from local data, where practical.

Waka Kotahi and AO responsible roles

Fully implementing the benefits management approach into the NLTP requires development of any new roles and responsibilities about benefits – from the decisions about which ones to include to the ongoing monitoring and reporting of benefits realisation data. We will be working with AOs to develop up the roles and responsibilities and will update the guide as they are finalised.

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Applying the benefits management approach 1. Section One

This section outlines guidance for incorporating the benefits framework into products and processes that broadly fit into the ‘section 1’ column of Figure 10.

Table 1: Section 1

Product or process Description 1.1 Regional land transport

plans (RLTPs) >> Sets out a region’s land transport objectives, policies and measures for at least 10 financial years, and its land transport programme for the NLTP period

1.2 Activity management plans (AMPs) >>

Sets out an approved organisation’s mix of continuous programmes of activity and capital improvements for land transport for the NLTP period

1.3 Maintenance, operations, renewals (MORs) >>

Sets out an approved organisation’s road maintenance continuous programme associated with the AMP for the NLTP period (except for emergency works)

1.4 Low cost, low risk (LCLR) programmes >>

Sets out an approved organisation’s programme of improvement activities below $2,000,000 associated with the AMP for the NLTP period

1.5 Regional public transport plans (RPTPs) >>

Sets out a region’s public transport continuous programme.

1.6 Benefits and the assessment tools >>

Outlines how the new investment tools work with the benefits framework.

1.7 Investment logic mapping (ILM) >>

A tool for identifying investment problems and benefits

1.8 National Land Transport Programme (NLTP) >>

Sets out the government’s funding for land transport for a three-year period

Back to Part 2 overview >>

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Figure 11: Overview of documents and benefits processes in this section

RLTP AMPWaka Kotahi Investment Proposal/

SHAMP

MOR LCLR

Strategic context informs AMP benefits

AMP benefits roll up to RLTP programme

AMP directly feeds 1st draft of benefits and measures

LCLR benefit summaries are checked against AMP measures

Same approach for State Highways

RPTP

RPTPs inform AMP benefits

Can inform problem and benefit identification throughout

ILM

NLTP

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1.1 Regional land transport plans (RLTPs) A regional land transport plan (RLTP) sets out a region’s land transport objectives, policies, and measures for at least 10 financial years, as required under section 16 of the Land Transport Management Act 2003. The direction set by an RLTP is an essential part of the strategic context for any land transport investment proposal.

RLTPs are the primary vehicle for discussing and agreeing a clear set of regional outcomes, priorities and improvement projects in the land transport space. They describe the gap between where the region is at and where it aims to get to, along with the programme of activities needed to bridge that gap. Therefore, an RLTP tells a powerful story about a region and its aspirations.

For Waka Kotahi, RLTPs are more than just a list of activities or projects that funding is being sought for – they tell the story what really matters to a region, how investment in different activities will achieve the community’s outcomes and where change is most needed. This includes the benefits that the RLTP will deliver.

The two key components of an RLTP are the:

• strategic context • RLTP programme (detailed list of activities included in the RLTP).

Benefits and RLTPs Benefits feature most significantly in the strategic context of an RLTP. The activities that make up the RLTP programme are defined elsewhere and have their own benefit identification processes, as detailed elsewhere in this guide. This section therefore only provides guidance for the strategic context section of the RLTP.

The RLTP strategic context template distributed through the Transport Special Interest Group (TSIG) in late 2019 asks for benefits-related information in sections A (strategic framework), C (10-year transport priorities), and D (monitoring indicator framework).

Supplementary guidance provided to regions in June 2020 advises that the benefits framework should be used to inform benefits-related information to encourage consistency across regions, and to ensure each RLTP aligns with other transport planning and investment requirements.

However, a transitionary approach is to be taken to include the benefits framework into RLTPs for the 2021–24 NLTP period, with a view to full alignment in the next NLTP period. Transitionary arrangements and allowances are outlined in the detailed process map at Figure 12, and are explained in the sections below, which outlines the four main types of benefits information to be considered and defined in the RLTP strategic context.

1. Strategic framework The first is the identification of a benefits cluster in association with each of the objectives in Section A of the template, strategic framework (step 2 in the process map at Figure 12).

The requirement to identify a benefits cluster is not reflected in the template. As a transitionary approach, the benefit clusters are not required to be specifically identified in the published document, although the area of change should be woven into the description where possible.

However, a primary benefit cluster should be selected in TIO for each of the objectives entered by regions. Benefits clusters will be high-level indicators of areas of change targeted in the RLTP and will provide context for benefits selected in TIO in associated programmes and investments at local levels.

The 2021-31 RLTPs are well

under development at the time this

guidance is released. We

would encourage AO’s to move

towards using the benefits

framework, but recognise that this

may take time. Transitionary

arrangements and allowances are outlined in the

description below and the detailed process map at

Figure 12.

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2. 10-year priorities The second type of benefits information is the identification of benefits in section C of the template, 10 year priorities (step 6 in Figure 12).

The identification of benefits has traditionally been done in this section. The difference now is that benefits can be selected from the consistent list in the benefits framework. Detailed description of each of the benefits is available in Part One.

Where benefits have already been identified and signed off through an ILM process, in this transitionary period we suggest that benefits from the benefits framework be woven into the description of the ILM-identified benefits in this space.

If benefits from the framework are selected as-is here, it is appropriate to identify parallel historical benefits in the description of the benefit, to allow for transition between the two.

3. Summary of evidence The third is the use of benefits information and data to inform the summary of evidence (step 7 in Figure 12).

All centrally held data about benefit measures is shared through the StoryMaps tool.

A password is required to view the spatial maps and access the data files provided in the StoryMaps tool for the 28 quantitative measures for which partial or complete information is held. Contact investment.benefits@nzta.govt.nz to request access.

4. Monitoring indicator framework The final type of benefits information is the use of the set of quantitative and qualitative benefits measures identified in the benefits framework in Section D, monitoring indicator framework (steps 14–26 in Figure 12).

The template has been adapted to allow the use of measures from the benefits framework in this area. Refer to the Non-monetised benefits manual for a detailed description of the qualitative and quantitative measures.

A transitionary approach can also be taken to measures, with the parallel running of benefits framework measures alongside historical measures. A forecast trend (increase, maintain, decrease) and data sources (centralised from the StoryMaps tool or local data) are requested for each of the measures, as well as a description of the benefit for which it provides evidence and a description of any historical measures it parallels.

Back to 1. Section One >>

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Figure 12: Regional land transport plan benefits process map

NLTP Benefits Management ApproachA. Strategic Fram

ework

C. 10-year Transport Priorities

B. Objectives

and PoliciesD. M

onitoring Indicator Framew

ork

Regional Land Transport Plan – Strategic Front End

TIO B Related to Benefits

Footnotes 1 As the transition is made to the new benefits management approach, benefit framework contents are to be reflected either as the name of the benefit or within the description of the benefit.2 Use the Storymap tool to view own region’s performance and to compare against others (https://storymaps.arcgis.com/collections/16be4050255c49489067a39bca090818) 3 Refer to the non-monetised benefits manual for information and instructions on applying quantitative and qualitative benefit measures.

1. Identify objective

3. If relevant benefit cluster is unavailable,

discuss alternative with Waka Kotahi

advisor

4. Identify headline targets

8. Provide case for investment

9. Explain fit with strategic context5. Describe problem 11. Priority

investment areas12. Other priority

implementation areas

16. Identify data source

15. Identify forecast trend

End

13. Identify measures from list and record former measures1

Start

21. Identify data source

20. Identify forecast trend

17. Specification: Identify benefit and map to any former

measures as transition

22. Specification: Identify benefit and map to any former

measures as transition

24. Summarise key measures for use in

step 11

B B B B

BBBB

18. Return to step 14

23. Return to step 19

B

B

7. Input summary of evidence using NLTP

benefits data as appropriate2

B10. Summary of key long term results/

measures (from step 24)

B6. Identify benefit - weave benefit

framework benefits into description as a

transitionary approach1

B

2. Select benefit cluster

14. Add quantitative measure if applicable3

B

19. Add qualitative measure if applicable3

B

Yes

No

YesNo

B

Process Map Context• Benefits may initially be identified through the ILM process or through the strategy setting process.• The four swim lanes reflect the key sections of the RLTP Strategic Front End template.• Bolded words reflect the respective fields in the template.

B

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1.2 Activity management plans (AMPs) An activity management plan (AMP) for transport is a key document for approved organisations (AOs) seeking funding from the NLTP.

Councils primarily use AMPs as supporting documents for their long-term plan (developed under the Local Government Act 2002) processes to demonstrate to their community what levels of service they plan to deliver, and what the forecast expenditure and revenue projections are for the activity.

While an AMP is effectively a programme business case for networks developed through the work of the Road Efficiency Group (a partnership between LGNZ and WK), the concept is also relevant for Unitary Authorities (AOs responsible for networks and services) and for regional councils (AOs primarily responsible for the provision of public transport services).

Overall, an AMP should be able to demonstrate that the council or AO has a robust plan to deliver the community’s desired level of service at a price the community and third-party investors (such as the through the National Land Transport Fund (NLTF)) are willing to pay.

An AMP should be based on:

• sound evidence of issues and analysis to support the planned road maintenance, public transport and capital investment proposals – the analysis should include identifying the best mix and timing of interventions (both maintenance and capital improvements) to deliver value-for-money on a whole-of-life basis

• smart procurement and management practices that optimise the delivery of customer-focused activities in the most cost-effective manner.

Benefits and AMPs The benefits framework and associated measures can be applied at several points in the development of an AMP to enable consistency across all approved organisations.

An AMP is primarily concerned with demonstrating how the council or AO plans to maintain or improve customer levels of service, that is, the benefits derived from investment. The AMP will articulate this through a mix of continuous programmes of activity, (eg routine maintenance, network operations, public transport and planned periodic renewals) and capital improvements.

While an improvement activity’s business case is often geared towards improving the levels of service and hence increasing benefits, the continuous programme elements of the AMP are about maintaining appropriate levels of service and the benefits delivered through those levels of service. Identifying the current and future state of the benefits delivered through the AMP is therefore an important component of the AMP.

Using the benefits framework to inform the identification of appropriate benefits will ensure that the AMP is aligned with other investment processes and products, and means that we can readily assess the AMP and its associated planned investments with other transport planning and investment proposals.

Benefits measures and ONRC measures The benefits framework provides a suite of potential qualitative and quantitative measures, some with associated centralised data. In the 2021–24 NLTP period we expect that One Network Road Classification (ONRC) measures will continue to be used in network AMPs, alongside the benefit measures. There is clear alignment between the benefits framework, the ONRC and Local Government Mandatory Performance Measures, as shown in Appendix 2 and Table 2. In several cases the specific measures are similar across the three areas, although they all contribute to understanding whether the benefit is being delivered. In these situations, the AMP should use the measure that provides the best evidence for the AO’s context.

From the 2024–27 NLTP, the One Network Framework (ONF) and the benefits framework will align and feed into each other. As we transition to the ONF, these guidelines will be updated as further details become available. The key concepts of the ONF are movement and place. Movement is well understood in the transport context, and the concept of place can be simply defined as activities happening in a road corridor as the result of adjacent land use. While the ONRC

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measures reflect the consideration of movement well, the benefit measures can be used to measure the consideration of place in 2021–24 AMPs (before the adoption of the ONF).

In general, ONRC measures are more focused on outputs, while the benefit measures are more often outcomes measures. As a guide, use a relevant outcome measure(s) when the impacts of the activity will cause a measurable and attributable change to the outcome measure. When the impacts on an outcome will neither be discernible nor attributable with suitable confidence, use a relevant output measure(s).

Applying the benefits framework to an AMP There are two ways the benefits framework can be applied to an AMP: as a source of evidence and through selection of benefits and measures.

Evidence base An AMP should provide evidence of the performance and long-term trends that are driving the programme of work within the plan. You can use the Waka Kotahi centralised benefits data online tool.

Waka Kotahi shares centralised benefits data through the StoryMaps tool. Where possible, spatial maps and background data are provided, and the data and information in the tool will continue to be expanded and updated over time.

The StoryMaps tool is available online with password access. You can request access by e-mailing investment.benefits@nzta.govt.nz.

Selection of benefits and measures A process map for making decisions about inclusion of benefits and measures in an AMP is provided in Figure 13. Note that much of this material is required in Transport Investment Online (TIO). This part of the process is relevant to the ‘levels of service’ component of the AMP.

The benefits template of the AMP in TIO will take you through the process as shown in Figure 13. Further specific instructions will be available for each field in TIO by hovering over the ‘?’ icon.

• Steps 1 to 7 are concerned with the selection of benefits using the same structure as in Appendix 1. o Allowance is provided in the process for AOs to consider alternative benefits, if the

appropriate benefit is not available in the framework. However, this needs to be done in consultation with a Waka Kotahi advisor, and will only be appropriate if the alternative benefit is materially different to any benefits available in the framework.

o Allowance is provided in TIO for AOs to identify community outcomes relevant to the associated transport outcomes or benefits in the AMP. Inclusion of a community outcome does not change the scope of investments that will be funded.

• Steps 7 to 20 are concerned with the selection of quantitative and qualitative measures. o One Network Road Classification (ONRC) measures are available for selection in

this part of TIO, alongside benefit measures, as noted above. The full list of measures, including ONRC measures, are available in Appendix 2. The link between these measure sets to Local Government Mandatory Performance Measures – roads and footpaths has also been considered, as shown in Table 2: Link to Local Government Mandatory Performance Measures – roads and footpaths.

o Allowance is provided in the process for AOs to consider alternative quantitative benefits measures, if the appropriate measure is not available in the framework. However, this needs to be done in consultation with a Waka Kotahi advisor, and will only be appropriate if the alternative measure is materially different to any measures available in the framework.

• Steps 21 to 26 are concerned with the addition of further outcomes, benefits or measures. o Additions and changes can be made in TIO through the summary table or by clicking

on the ‘add’ buttons.

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All of the benefits and measures selected in AMPs will feed into maintenance, renewals and operations (MOR) documents and low cost, low risk programme (LCLR) TIO processes. In the case of the MOR, they will be the starting point to be edited, while in the LCLC, they will be provided as a comparison set.

Table 2: Link to Local Government Mandatory Performance Measures – roads and footpaths

Local Government Mandatory Performance Measures – roads and footpaths

Transport outcome

Benefit Associated benefits framework measures

Associated ONRC measures

Performance measure 1 (road safety): The change from the previous financial year in the number of fatalities and serious injury crashes on the local road network, expressed as a number

Healthy and safe people

1.1 Impact on social cost of deaths and serious injuries

1.1.3 Deaths and serious injuries. Number of deaths and serious injuries

1.1.3.a Safety – Customer outcome 1: the number of fatal and serious injuries on the network

Performance measure 2 (road condition): The average quality of ride on a sealed local road network, measured by smooth travel exposure

Inclusive access

10.1 Impact on user experience of the transport system

10.1.5 Network condition – road. Percentage travel on road network classified as smooth as per defined level of service

10.1.5.a Amenity – Customer outcome 1: smooth travel exposure (STE) – roughness of roads (% of travel on sealed roads which are smoother than a defined threshold) 10.1.5.b Amenity – Customer outcome 2: peak roughness 10.1.5.c Amenity – Technical output 1: roughness of road (median and average) 10.1.5.d Cost efficiency 1: pavement rehabilitation (length, area, cost, average life achieved) 10.1.5.e Cost efficiency 2: chipseal resurfacing (length, area, cost, average life achieved) 10.1.5.f Cost efficiency 3: asphalt resurfacing (length, area, cost, average life achieved)

Performance measure 3 (road maintenance): The percentage of the sealed local road network that is resurfaced.

Inclusive access

10.1 Impact on user experience of the transport system

10.1.5 Network condition – road. Percentage travel on road network classified as smooth as per defined level of service

As per above

Performance measure 4 (footpaths): The percentage of footpaths within a territorial authority district that fall within the level of service or service standard for the condition

Inclusive access

10.1 Impact on user experience of the transport system

10.1.5 Network condition – road. Percentage travel on road network classified as smooth as per

10.1.5.g Cost efficiency 4: unsealed road metalling (length, area, cost, average life achieved) 10.1.5.h Cost efficiency 5: overall network cost, and cost by work category

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Local Government Mandatory Performance Measures – roads and footpaths

Transport outcome

Benefit Associated benefits framework measures

Associated ONRC measures

of footpaths that is set out in the territorial authority’s relevant document

defined level of service

(lane, vehicle kilometres travelled (vkt))

Performance measure 5 (response to service requests): The percentage of customer service requests relating to roads and footpaths to which the territorial authority responds within the time frame specified in the long-term plan

Inclusive access

10.1 Impact on user experience of the transport system

10.1.5 Network condition – road. Percentage travel on road network classified as smooth as per defined level of service

As per above

Back to 1. Section One >>

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Figure 13: Activity management plan benefits process map

NLTP Benefits Management Approach

Levels of ServiceAdditional steps

Measures

Activity Management Plan

TIOB Related to

BenefitsFootnotes 1 Community outcomes are not mandatory, and are included at the discretion of the organisation for their own use. 2 Refer to the non-monetised benefits manual for information and instructions on applying quantitative and qualitative benefit measures.3 These roles are yet to be scoped, and definition of role, expectations, tasks and responsibilities will be provided in a later update.

Start3. Select benefit

cluster within selected transport outcomes

B

4. Select benefit within cluster

B

6. Discuss an alternative benefit with Waka Kotahi

advisor, if applicable

B

7. Input approved alternative benefit

BNo

5. Relevant benefit is available

for selection?

13. Select forecast trend (increase,

decrease, maintain)

8. Add quantitative measure if applicable2

B9. Select benefit/ONRC measure

relevant to investment

B 10. If measure is unavailable, discuss alternative measure

with Waka Kotahi advisor

B

11. Input approved alternative measure

B

12. Input baseline of the measure at the start of investment

B

15. Add qualitative measure if applicable2

B

21. Return to step 15

16. Select benefit/ONRC measure

relevant to investment

B

18. Input description of measure

B

20. Input measure direction/scale

17. If measure is unavailable, input

name of new measure

B

No

Yes

Yes

End

23. Return to step 4 25. Return to step 3 26. Return to step 1

22. Add another benefit

B

24. Add another benefit cluster

B

25. Add another outcome

B

29. Save benefits

B27. Select the AO role

responsible for ongoing ownership and

monitoring of benefits3

B28. Select the Waka

Kotahi role responsible for partnering with AO

for benefits3

B

Yes Yes Yes

No No No

1. Select transport sector outcome

B

2. Input community outcomes identified in

ILM, if applicable1

B

14. Return to step 8

B

Yes

Process Map Context• Informed by RLTP Strategic context objectives and benefit clusters.

19. Input baseline description

B B

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1.3 Maintenance, operations and renewals (MORs) A maintenance, operations and renewals (MOR) programme sets out an organisation’s continuous programme to maintain appropriate levels of service on the transport network. It delivers on the preferred programme identified in the activity management plan (AMP) and is therefore informed by AMP content.

Although continuous programmes have no start or end date, the cycle of setting out the investment required for a MOR is usually aligned with the NLTP cycle, with investment decisions being made when the NLTP is adopted by the Waka Kotahi Board. The two activity classes covered by the MOR are local road maintenance and state highway maintenance. The exception is emergency funding, which is considered individually and has start and end dates.

MORs are required to consider:

• the relationship between recommendations in the approved organisation’s activity management plans

• the levels of service proposed relative to national and regional levels of service targets, including road user satisfaction, safety and asset performance on a whole-of-life basis

• quality assurance • options for improving value for money, including procurement and delivery considerations.

Benefits and MORs The continuous programme outlined in a MOR focuses on maintaining appropriate levels of service and, in turn, the benefits delivered through those levels of service. Identifying the current and future state of the benefits delivered through the continuous programme is therefore an important component of an MOR.

From the 2021–24 NLTP, MORs will incorporate benefits information relevant to the programme of work. Using the benefits framework as a consistent source for benefits and associated measures will ensure that MORs are aligned with other investment processes and products, and means that we can readily assess the programme and its associated planned investments with other transport planning and investment proposals.

Benefits measures and ONRC measures Like AMPs, an MOR programme can use both benefits measures and One Network Road Classification (ONRC) measures as evidence of delivery of benefits.

There is clear alignment between the benefits framework and the ONRC, as shown in Appendix 2. A number of the specific measures are similar across the ONRC and the benefits framework, however, they all contribute to understanding whether the benefit is being delivered. In these situations, the MOR should use the measure that provides the best evidence for the AO’s context.

From the 2024–27 NLTP, the One Network Framework (ONF) and the benefits framework will align and feed into each other. As we transition to the ONF, these guidelines will be updated as further details become available. The key concepts of the ONF are movement and place. Movement is well understood in the transport context and the concept of place can be simply defined as activities happening in a road corridor as the result of adjacent land use. While the ONRC measures reflect the consideration of movement well, the benefit measures can be used to measure the consideration of place in 2021–24 MORs (before the adoption of the ONF).

In general, ONRC measures are more focused on outputs, while the benefit measures are more often outcomes measures. As a guide, use a relevant outcome measure(s) when the impacts of the activity will cause a measurable and attributable change to the outcome measure. When the impacts on an outcome will neither be discernible nor attributable with suitable confidence, use a relevant output measure(s).

Applying the benefits framework to MOR A process map for entering benefits into the benefits section of the MOR module in Transport Investment Online (TIO) is provided in Figure 14. Further specific instructions will be available for each field in TIO by hovering over the ‘?’ icon.

The MOR TIO template for benefits will take you through the process as described in Figure 14.

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• Steps 1 to 7 are concerned with the selection of benefits using the benefits framework, as summarised in Appendix 1. o The key distinction between the selection of benefits in the AMP and the MOR

is the provision of pre-populated benefits information from the AMP at the start of the MOR. In step 2 the benefits and measures from the AMP can be carried into the MOR or deleted. These can also be edited. New benefits and measures can then be entered using the standard process set out in steps 3 to 22.

o Allowance is provided in the process for AOs to consider alternative benefits, if the appropriate benefit is not available in the framework. However, this needs to be done in consultation with a Waka Kotahi advisor, and will only be appropriate if the alternative benefit is materially different to any benefits available in the framework.

• Steps 8 to 22 are concerned with the selection of quantitative and qualitative measures. o One Network Road Classification (ONRC) measures are available for

selection in this part of TIO, alongside benefit measures, as noted above. The full list of measures, including ONRC measures, are available in this guide at Appendix 2.

o Allowance is provided in the process for AOs to consider alternative quantitative benefits measures, if the appropriate measure is not available in the framework. However, this needs to be done in consultation with a Waka Kotahi advisor, and will only be appropriate if the alternative measure is materially different to any measures available in the framework.

o A forecast trend is to be selected (increase, decrease, maintain) for measures.

• Steps 23 to 31 are concerned with the addition of further outcomes, benefits or measures, and also the definition of roles and responsibilities for ongoing monitoring and review of benefits information. These responsibilities are important for the ongoing management of benefits, and how these roles will be recorded in TIO is currently being considered. At this stage, they sit outside of TIO.

A number of business rules have been set up in TIO to help manage the flow of information between AMPs and MORs, as set out in the ‘Process map context’ section of the process map in Figure 14.

Back to 1. Section One >>

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Figure 14: Maintenance, operations and renewals benefits process map

NLTP Benefits Management ApproachBenefits

Additional stepsM

easures

Maintenance, Operations and Renewals

TIO B Related to Benefits

Footnotes 1 Community outcomes are not mandatory, and are included at the discretion of the organisation for their own use.2 Refer to the non-monetised benefits manual for information and instructions on applying quantitative and qualitative benefit measures.3 These roles are yet to be scoped, and definition of role, expectations, tasks and responsibilities will be provided in a later update.

Start2. Edit benefits and measures in MOR

table

B

3. Select transport outcomes

6. Select benefit within cluster

BAdd additional benefits and/or

measures

15. Select forecast trend (increase,

decrease, maintain)

10. Add quantitative measure if applicable2

B11. Select measure

relevant to investment

B 12. If measure is unavailable, discuss alternative measure

with Waka Kotahi advisor

B

13. Input approved alternative measure

B

14. Input baseline of the measure at the start of investment

B

17. Add qualitative measure if applicable2

B

23. Return to step 1818. Select measure

relevant to investment

B

20. Input description of measure

B

22. Input measure direction/scale

19. If measure is unavailable, input

name of new measure

B

No

Yes

Yes

End

25. Return to step 6 27. Return to step 5 29. Return to step 3

24. Add another benefit

B

26. Add another benefit cluster

B

28. Add another outcome

B

32. Save benefits

B30. Identify the AO role

responsible for ongoing ownership and monitoring of benefits3

B31. Identify the Waka

Kotahi role responsible for partnering with AO

for benefits3

B

Yes Yes Yes

No No No

1. Review and copy benefits and measures

from AMP summary table to MOR table

B

4. Input community outcomes identified in

ILM, if applicable1

B

16. Return to step 11

B

5. Select benefit cluster within selected

transport outcomes

B

8. Discuss an alternative benefit with Waka Kotahi

advisor, if applicable

B

7. Relevant benefit is available

for selection?

9. Input approved alternative benefit

BNo

Yes

Process Map Context• Informed by RLTP Strategic Front End objectives and benefit clusters.• Informed by benefits and measures from AMP.• Benefits and measures will be pushed through from AMP into MOR until the first time MOR is edited.• Any changes to benefits and measures in the AMP will create an alert in the MOR.• Users will be able to keep, delete and add benefits and measures brought through from AMP.• A link to AMP benefits and measure will be provided.• Once a MOR is submitted for decision, TIO will track any changes to benefits and measures.• After MOR approval and fund allocation, changes to benefits and measures will be treated in the same way

as a change to funding.• ONRC measures will be included in the materials transferred from AMP and will be treated the same way in

the MOR as the AMP.

21. Input measure baseline

BB

B

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1.4 Low cost, low risk (LCLR) programmes A low cost, low risk (LCLR) programme sets out an approved organisation’s (AOs) programme of improvement activities that are each less than $2 million total implementation cost (for the 2021–24 NLTP). The AMP provides the overall business case for an AOs LCLR programme, including setting out its approach to addressing gaps in existing customer level of service and optimising the programme. LCLR activities may also arise from other programme business cases, such as the Safe Network Programme.

The LCLR programme is submitted and approved in two parts:

1. a completed and approved bid template to obtain a three-year funding allocation 2. a draft LCLR detailed activity list template, which supports the AO’s bid for a three-year

funding allocation.

Benefits and LCLR programmes The LCLR programme contributes to the overall achievement of investment benefits, and therefore identifying the current and future state of benefits delivered through the programme is an important component of the LCLR programme.

Although benefit identification has been required for each activity in the past, from the 2021–24 NLTP period those individual benefits will be selected from the benefits framework for each activity, and summary level benefit measures will be required. Using the benefits framework as a consistent source for benefits and associated measures will ensure that LCLR programmes are aligned with other investment processes and products, and means that we can readily assess and prioritise the programme and its associated planned investments with other transport planning and investment proposals.

Benefits measures and ONRC measures Like an AMP, an LCLR programme can use both benefits measures and One Network Road Classification (ONRC) measures as evidence of delivery of benefits.

There is clear alignment between the benefits framework and the ONRC, as shown in Appendix 2. A number of specific measures are similar across the ONRC and the benefits framework, however, they all contribute to understanding whether the benefit is being delivered. In these situations, the LCLR programme should use the measure that provides the best evidence for the AO’s context.

From the 2024–27 NLTP, the One Network Framework (ONF) and the benefits framework will align and feed into each other. As we transition to the ONF, these guidelines will be updated as further details become available. The key concepts of the ONF are movement and place. Movement is well understood in the transport context and the concept of place can be simply defined as activities happening in a road corridor as the result of adjacent land use. While the ONRC measures reflect the consideration of movement well, the benefit measures can be used to measure the consideration of place in 2021–24 LCLR programmes (before the adoption of the ONF).

In general, ONRC measures are more focused on outputs, while the benefit measures are more often outcomes measures. As a guide, use a relevant outcome measure(s) when the impacts of the activity will cause a measurable and attributable change to the outcome measure. When the impacts on an outcome will neither be discernible nor attributable with suitable confidence, use a relevant output measure(s).

Applying the benefits framework to LCLR Detailed activity list

• The spreadsheet of the LCLR detailed activity list will include drop-down lists of the five transport outcomes and the 25 benefits to complete the two benefit-related fields, as in step 2 of the process map in Figure 15.

• By uploading the full table into TIO, as in step 3, the benefits fields in the spreadsheet will be pulled into TIO to inform the summary of benefits and measures.

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Summary of benefits • There are three summaries prepared by TIO as a result of uploading the detailed activity

list. Two are costs split by activity class or benefit, and the third is a summary of benefits and measures that AOs will need to edit and add to.

• It is expected that AOs will provide a small set of benefits and measures to summarise the impacts of the LCLR programme.

• Steps 4 to 7 of the LCLR process map (Figure 15) outline the two ways in which both the detailed LCLR activity list and the AMP can inform the LCLR summary benefits and measures. o At step 4 TIO will present the most frequently selected benefits in the detailed LCLR

activity list to assist in selection of the summary benefits. o At step 5 the benefits and measures identified in the AMP are matched against the

shortlist of summary benefits identified at step 4. Those benefits and measures that are relevant can be copied into the LCLR benefits summary, and any additional measures can be added at steps 8 to 20.

• Steps 8 to 21 allow for the addition of further measures against the small set of benefits identified at steps 4 to 7.

Back to 1. Section One >>

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Figure 15: Low cost, low risk programmes benefits process map

NLTP Benefits Management Approach

Bid Request Docum

entSum

mary of LCLR

Activity TableM

easures

Low Cost Low Risk

TIO

B

Related to Benefits

Footnotes 1 Refer to the non-monetised benefits manual for information and instructions on applying quantitative and qualitative benefit measures.2 These roles are yet to be scoped, and definition of role, expectations, tasks and responsibilities will be provided in a later update.

3. Upload activity table

B

1. Upload bid request document as attachment

B

Start

14. Return to step 88. Add quantitative

measure if applicable1

B9. Select measure

relevant to investment

B 10. If measure is unavailable, discuss alternative measure

with Waka Kotahi advisor

B

11. Input approved alternative measure

B12. Input baseline of the measure at the start of investment

B13. Select forecast

trend (increase, decrease, maintain)

B

15. Add qualitative measure if applicable1

B

21. Return to step 1516. Select measure

relevant to investment

B

18. Input description of measure

B

20. Input measure direction/scale

17. If measure is unavailable, input

name of new measure

B

End

Yes

No

Yes

Summary of cost by activity class

4. Summary of most frequently occurring

benefits

B

Summary of cost by benefit

B

5. Review AMP benefits measures

associated with most frequently occurring

benefits

B6. Copy AMP benefits

and measures relevant to the LCLR

programme

B

7. Edit or select different measures

B

2. Complete LCLR activity table:- Ref status- Activity name- Location site description- Source of activities- Planning ref- Problem/opportunity- Scope description/proposed treatment

- Type of intervention- Select outcome- Select benefit- Notes- Total cost- AO initiative priority - NZTA sign off

24. Save benefits

No

Process Map Context• Informed by RLTP Strategic Front End objectives and benefit clusters.• Informed by benefits and measures from AMP.

19. Input measure baseline

B B

23. Identify the AO role responsible for

ongoing ownership and monitoring of benefits2

22. Identify the Waka Kotahi role responsible for partnering with AO

for benefits2

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1.5 Regional public transport plans (RPTPs) All regional councils that financially support public transport (including financial support for taxis or shuttle services such as the Total Mobility Scheme) must adopt a Regional public transport plan (RPTP). In practice, this means all regions must prepare an RPTP.

RPTPs, if developed using the Business Case Approach (BCA) can fulfil the role of the programme business case for the transport services and infrastructure programmes.

Guidance on the preparation of RPTPs was released by Waka Kotahi in 2013, and an update was provided in 2017 about how to apply the BCA to the preparation of RPTPs. This benefits guidance is a further addendum and suggests the ways the benefits framework can be used by regions to develop consistent benefit descriptions and measures in RPTPs.

Benefits and RPTP There is no set template or process for the development of RPTPs, and therefore there is no set process for integrating benefits into RPTPs.

However, a number of principles can be applied to assist the integration of benefits into RPTPs.

• Following the flow of the BCA, as in the 2017 guideline update, naturally brings benefits and measures into the RPTP development process.

• Rather than identifying unique benefits or measures when prompted in the BCA, select appropriate benefits and measures from the benefits framework.

• Focus on the benefits and measures that have greater relevance to public transport (as primary or secondary benefits of public transport), such as: o 3.1 Impact of mode on physical and mental health o 3.2 Impact of air emissions on health o 5.1 Impact on system reliability o 8.1 Impact on greenhouse gas emissions o 10.1 Impact on user experience of the transport system o 10.2 Impact on mode choice o 10.3 Impact on access to opportunities o 10.4 Impact on community cohesion o 11.3 Impact on townscape. See Appendix 1 for a full list of benefits and associated measures.

While there is no legislative requirement for measures or reporting against the RPTP, many regions chose to include measures in the programme section of their RPTP. Using measures from the benefits framework not only enables consistency across regions and alignment with other NLTP related processes, it also enables use of centralised data (where available) for ongoing reporting.

This is particularly the case for accessibility related measures, such as 10.3.1 Access to key social destinations, where spatial data is available in the StoryMaps tool.

The StoryMaps tool is also encouraged as a source for identifying transport problems being addressed in the RPTP. For example, the spatial information associated with measure 10.3.1 enables visual identification of public transport gaps to access social opportunities.

Back to 1. Section One >>

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1.6 Benefits and the assessment tools The Early Assessment Sifting Tool (EAST) can assist with a coarse screen when there are a large number of alternatives or options to consider. Multi Criteria Analysis (MCA) assists with long list and short list optioneering. Prior to optioneering and the use of the EAST and/or MCA a strategic case is prepared which clearly articulates the problem or opportunity and identifies the benefits sought. Investment objectives are defined and a long list of alternatives or options is generated. The investment objectives specify the strategic outcomes for the proposed investment. Investment objectives are derived from information gathered during conversations in the development of the strategic case, around the identified problem/opportunity and the benefits associated with solving the problem. The EAST and MCA assess each alternative or option against investment objectives.

The MCA is used to evaluate multiple criteria, both quantitative and qualitative. The MCA talks about ‘impacts’ across a number of areas, including impacts on te ao Māori, and benefits and measures from the benefits framework can be used as appropriate, as well as any centralised benefits data that is available, to assist in making comparative decisions for alternatives and options.

The Appraisal Summary Table (AST) summarises non-monetised and monetised benefits and whole of life costs. It aligns with the benefits framework and is required for use. The table summarises the benefits information developed through business case development. Both monetised benefits and non-monetised measures are reflected in the AST. The AST is required for each short-listed option and then is updated for the preferred option. The preferred option is uploaded into TIO as part of seeking funding approval.

For more information, go to the guidance on each tool available on InvestHUB.

1.7 Investment logic mapping (ILM) Content to be provided in a future update of these guidelines.

1.8 National Land Transport Programme (NLTP) Content to be provided in a future update of these guidelines.

Back to 1. Section One >>

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2. Section Two

This section outlines instructions for incorporating the benefits framework into processes and documents that broadly fit into the table below.

All parts of this section will be provided in a future update of these guidelines.

Table 3: Section Two contents

BCA stage How benefits are applied at this stage 2.1 Point of entry >> Acknowledges work already completed, including benefits

and measures, and identifies path through the IDMF 2.2 Strategic case >> Sets out high level overview of benefits, with identification of

measures optional 2.3 Programme business case

>> Sets out programme level benefits and measures, including monetised benefits and baselines, and forecasts for non-monetised measures.

2.4 Single-stage business case (and lite) >>

Sets out relevant benefits and measures to understand the impact of investment, including monetised benefits and baselines, and forecasts for non-monetised measures.

2.5 Indicative business case >> Sets out relevant benefits and measures to understand the impact of investment, including monetised benefits and baselines, and forecasts for non-monetised measures.

2.6 Detailed business case >> Reviews relevant benefits and measures set out in the indicative business case, including monetised benefits and baselines, and forecasts for non-monetised measures

2.1 Point of entry To be provided in a future update of these guidelines.

2.2 Strategic case To be provided in a future update of these guidelines.

2.3 Programme business case To be provided in a future update of these guidelines.

2.4 Single-stage business case (including lite) To be provided in a future update of these guidelines.

2.5 Indicative business case To be provided in a future update of these guidelines.

2.6 Detailed business case To be provided in a future update of these guidelines.

Back to Section Two >>

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3. Section Three

This section outlines instructions for using the benefits framework to assist with prioritising activities in the National Land Transport Programme.

Table 4: Section Three contents

Prioritisation stage Description 3.1 Prioritisation for inclusion in

the NLTP >> Prioritisation for inclusion in the NLTP

3.2 Prioritisation for funding approval >>

Prioritisation for funding approval

3.1 Prioritisation for inclusion in the NLTP To be provided in a future update of these guidelines.

3.2 Prioritisation for funding approval To be provided in future update of the guidelines.

Back to Section Three >>

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4. Section Four

Waka Kotahi, like all government departments and agencies, must be able to demonstrate to the government and New Zealand taxpayers that we are spending public money wisely and achieving the expected outcomes from our investments. Ensuring robust benefits realisation processes and products is a key reason for the implementation of the new benefits management approach.

The implementation of the benefits framework, with consistent benefit identification and measurement across the NLTP, allows for a broader range of benefits realisation activity and reporting. By increasing consistency in identification and measurement of benefits across investments, it will be possible to understand both the impact of individual projects and/or programmes and the rolled up view across geographical areas, investment types or nationally.

As more centralised data is developed and made available, the burden of benefits realisation will be increasingly removed from our investment partners, but in the interim some ongoing monitoring responsibility may fall on our investment partners.

Table 5: Section Four contents

Stage Description 4.1 Formal reporting >> Includes the NLTF annual report 4.2 Assurance >> Includes benefits realisation reports 4.3 Ongoing reporting and

analysis >> To inform and continue to improve the land transport sector’s delivery of benefits

4.1 Formal reporting Formal reporting on benefits realisation may include the National Land Transport Fund (NLTF) annual report and other reporting, such as quarterly reports to the Minister of Transport, as appropriate.

Formal reporting in the new approach will begin at the start of the 2021–24 NLTP period, when the benefits framework and associated measures will be fully incorporated into reports. A transitional approach will be taken in the lead-up to this full integration.

When fully applied, benefits data relating to quantitative and qualitative benefits measures, particularly those with centrally held data, will be referenced in the report; and reporting will be guided by the benefits that contribute to the current GPS, as well as long-term benefits realisation reporting.

In the first year of an NLTP, baselines of benefit measures, as appropriate, will be the focus. Short-term benefits realisation will be tracked throughout the life of the current NLTP, and long-term benefits realisation will continue in subsequent years.

A detailed description of formal reporting will be added to this section in a future update of these guidelines.

4.2 Assurance In the lead up to the 2021–24 NLTP, Waka Kotahi is developing an approach to interim and final benefits realisation reviews that takes into account the new benefits framework in association with other assurance activities.

A detailed description of benefits assurance will be added to this section in a future update of these guidelines.

4.3 Ongoing reporting and analysis Over the next NLTP period, Waka Kotahi will be developing and testing other opportunities to use benefits realisation data for reporting and analysis to inform and continue to improve the land transport sector’s delivery of benefits.

We welcome any suggestions from the sector. If you have any feedback about what benefits realisation reporting or analysis would be useful for you, please discuss with your Investment Advisor or send an e-mail to investment.benefits@nzta.govt.nz.

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 64

A detailed description of ongoing reporting and analysis will be added to this section in a future update of these guidelines.

Back to Section Four >>

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 65

CASE STUDY: THE LIFECYCLE OF AN INVESTMENT BENEFIT To be provided in a later release of these guidelines.

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APPENDIX 1: OVERVIEW OF LAND TRANSPORT BENEFITS FRAMEWORK WITH MEASURES * Note that measures can be used as evidence for more than one benefit and a primary association is provided in this table. Measures with detailed information in the Non-monetised benefits manual are marked with a

MoT TOF

Benefit cluster Benefit

Quantitative and qualitative benefit measures (primary associations)* Monetised benefits (included in MBCM)

No. Name Measure Value proxy and measure of changes in option compared to do-minimum

Hea

lthy

and

safe

peo

ple

1. Changes in user safety

1.1 Impact on social cost of deaths and serious injuries

1.1.1 Collective risk (crash density)

Average annual fatal and serious injury crashes per kilometre of road section

$ crash costs by crash type and severity

1.1.2 Crashes by severity

Number of crashes by severity

1.1.3 Deaths and serious injuries

Number of deaths and serious injuries

1.1.4 Personal risk (crash rate)

Average annual fatal and serious injury crashes per 100 million vehicle-kilometres

1.2 Impact on a safe system 1.2.1 Road assessment rating – roads

Infrastructure risk rating

1.2.2 Road assessment rating – state highways

KiwiRoad Assessment Programme (KiwiRAP) star rating (for state highways)

1.2.3 Travel speed gap Difference between safe and appropriate speed, and actual speed (under development)

2. Changes in perceptions of safety

2.1 Impact on perceptions of safety and security

2.1.1 Access – perception

Perception of safety and ease of walking and cycling

3. Changes in human health

3.1 Impact of mode on physical and mental health

3.1.1 Physical health benefits from active modes

User to describe - $/pedestrian * 1km of a new facility - $/conventional cyclist *3km of a new facility - $/electric assisted cyclist *3km of a new facility

3.2 Impact of air emissions on health

3.2.1 Ambient air quality – NO2

Concentration of NO2 in µg/m³ $ damage cost/ tonne of pollutant * number of people exposed

3.2.2 Ambient air quality – PM10

Concentration of PM10 in µg/m³

3.3 Impact of noise and vibration on health

3.3.1 Noise level Noise level in dB Laeu (24h) $/dB noise level per household or person affected per year

Monetised benefit

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 67

MoT TOF

Benefit cluster Benefit

Quantitative and qualitative benefit measures (primary associations)* Monetised benefits (included in MBCM)

No. Name Measure Value proxy and measure of changes in option compared to do-minimum

Res

ilien

ce a

nd

secu

rity

4. Changes in impact of unplanned disruptive events on access to social and economic opportunities

4.1 Impact on system vulnerabilities and redundancies

4.1.1 Availability of a viable alternative to high-risk and high-impact route

Percentage of high-risk, high-impact routes with a viable alternative

4.1.2 Level of service and risk

User to describe

Econ

omic

pro

sper

ity

5. Changes in transport costs

5.1 Impact on system reliability

5.1.1 Punctuality – public transport

Percentage of scheduled service trips between 59 seconds before and 4 minutes 59 seconds after the scheduled departure time of selected point

- $/minutes PT vehicle travel time (VTT)* delay time (min)* number of passengers affected - $/h travel time value*changes in network variability* traffic volume*0.9

5.1.2 Travel time reliability – motor vehicles

Coefficient of variation; standard deviation of travel time DIVIDED BY average minutes travel time (as per Austroads)

5.1.3 Travel time delay Difference between average travel time A and average travel time B in minutes per kilometre

5.1.4 Temporal availability – road

Number and duration of resolved road closures: urban >=2 hours; rural >=12 hours

5.2 Impact on network productivity and utilisation

5.2.1 Spatial coverage – freight

Percentage completion of the strategic high productivity motor vehicle freight network

- $/h for person or vehicle travel time - $ Vehicle operating cost (VOC)/vehicle - $/minute vehicle occupant time for PT users - $ PT fares for users

5.2.2 Freight – mode share value

Number of vehicles TIMES average load per vehicle in NZ$, expressed as percentages

5.2.3 Freight – mode share weight

Number of vehicles TIMES average load per vehicle in tonnes, expressed as percentages

5.2.4 Freight – throughput value

Number of vehicles TIMES average load per vehicle in NZ$

5.2.5 Freight – throughput weight

Number of vehicles TIMES average load per vehicle in tonnes

5.2.6 Access to key economic destinations (all modes)

Proportion of population living within travel threshold (15 minutes, 30 minutes or 45 minutes) of key economic opportunities (including work) by different modes (walking, cycling, public transport, private motor vehicle) in the morning peak

Monetised benefit

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 68

MoT TOF

Benefit cluster Benefit

Quantitative and qualitative benefit measures (primary associations)* Monetised benefits (included in MBCM)

No. Name Measure Value proxy and measure of changes in option compared to do-minimum

Econ

omic

pro

sper

ity

(con

tinue

d)

6. Wider economic impact

6.1 Wider economic benefit (productivity)

$ productivity increase as the result of changes effective density

6.2 Wider economic benefit (employment impact)

$ tax wedge on additional labour income

6.3 Wider economic benefit (imperfect competition)

$ total conventional business user benefits * imperfect competition uplift

6.4 Wider economic benefit (regional economic development)

$ value added as the result of increased international visitor activity

Envi

ronm

enta

l sus

tain

abili

ty

7. Changes in natural environment

7.1 Impact on water 7.1.1 Water quality User to describe 7.2 Impact on land and biodiversity

7.2.1 Biodiversity User to describe

7.2.2 Productive land User to describe

8. Changes in climate

8.1 Impact on greenhouse gas emissions

8.1.1 CO2 emissions Tonnes of CO2 equivalents emitted $ damage cost/tonne of CO2 as a function of motor vehicle fuel consumption 8.1.2 Mode shift from

single occupancy private vehicle

User to describe

9. Changes in resource efficiency

9.1 Impact on resource efficiency

9.1.1 Resource efficiency

User to describe

9.1.2 Embodied carbon User to describe 9.1.3 Energy User to describe

Monetised benefit

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 69

Incl

usiv

e ac

cess

10. Changes in access to social and economic opportunities

10.1 Impact on user experience of the transport system

10.1.1 People – throughput of pedestrians, cyclists and public transport boardings

Number of pedestrians, cyclists and public transport boardings

- $/vehicle per kilometre of constructed passing lane - $/vehicle per kilometre sealed roads. - $/minutes PT passengers in-vehicle time in relation to infrastructure and bus and train attributes - $/minutes PT passengers vehicle occupant time for probability of being left and proportion of standing passengers - $ relative value for different types of cycling facility’s quality improvements - minutes additional time someone would be willing to spend walking to obtain the improvement of different aspects of the pedestrian realm

(Repeat)2.1.1

Access – perception

Perception of safety and ease of walking and cycling

10.1.2 Pedestrian delay Pedestrian time lost due to intersection delay

10.1.3 Ease of getting on/off public transport services

Percentage of low floor and wheelchair accessible services

10.1.4 Network condition – cycling

Percentage travel on cycle network classified as complying with defined level of service (facility type)

10.1.5 Network condition – road

Percentage travel on road network classified as smooth as per defined level of service

10.1.6 People – throughput

Number of pedestrians, cyclists, public transport boardings and motor vehicles (excl. public transport) TIMES average number of people per vehicle

10.1.7 People – throughput (UCP)

Number of pedestrians and cyclists

10.1.8 Traffic – throughput

Number of pedestrians, cyclists and motor vehicles by vehicle type

10.1.9 Travel time Average travel time in minutes

10.2 Impact on mode choice

10.2.1 People – mode share

Number of pedestrians, cyclists, public transport boardings, and motor vehicles (excl. public transport) TIMES number of people per vehicle, expressed as percentages

(Repeat) 8.1.2

Mode shift from single occupancy private vehicle

User to describe

10.2.2 Accessibility – public transport facilities

Number of bus or train stops that are fully accessible

10.2.3 Spatial coverage – cycle lanes & paths

Percentage completion of the strategic cycle network

10.2.4 Spatial coverage – cycling facilities

Number of people living within 500m of a high quality cycling facility

10.2.5 Spatial coverage – public transport – employees

Number of employees within 500m of a bus stop or 1km from a rail or bus rapid transit station

MoT TOF

Benefit cluster Benefit

Quantitative and qualitative benefit measures (primary associations)* Monetised benefits (included in MBCM)

No. Name Measure Value proxy and measure of changes in option compared to do-minimum

Monetised benefit

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 70

Incl

usiv

e ac

cess

(con

tinue

d)

10. Changes in access to social and economic opportunities (continued)

10.2 Impact on mode choice (continued)

10.2.6 Spatial coverage – public transport – resident population

Number of people within 500m of a bus stop or 1km from a rail or bus rapid transit station

10.2.6a Spatial coverage – public transport – new residential dwellings

% of recently built residential dwellings with access to public transport services (subset of 10.2.6)

10.2.7 Temporal availability – public transport

Public transport frequency per hour weighted by percentage of the population living within 500m of a bus stop or 1km from a rail or bus rapid transit station

10.2.8 Cost of access to key destinations – all modes

User to describe

10.2.9 Pricing – more efficient

User to describe

10.2.10 Traffic – mode share (number)

Number of transport users by mode pedestrians, cyclists and motor vehicles by vehicle class, expressed as percentages

10.2.10b Traffic – mode share (distance)

Average trip distance per person in urban areas by mode

10.3 Impact on access to opportunities

10.3.1 Access to key social destinations (all modes)

Proportion of population living within travel threshold (15 minutes, 30 minutes or 45 minutes) of key social opportunities (including education, health care, supermarkets) by different modes (walking, cycling, public transport, private motor vehicle) in the morning peak

10.4 Impact on community cohesion

10.4.1 Social connectedness

User to describe

10.4.2 Isolation User to describe 10.4.3 Severance User to describe

11. Changes in liveability of places

11.1 Impact on heritage and cultural values

11.1.1 Amenity value – natural and built environment

User to describe

11.1.2 Heritage and cultural values

User to describe

11.2 Impact on landscape 11.2.1 Landscape User to describe

11.3 Impact on townscape 11.3.1 Townscape User to describe

12. Changes in te ao Maori values

12.1 Impact on te ao Māori 12.1.1 Te ao Māori User to describe

MoT TOF

Benefit cluster Benefit

Quantitative and qualitative benefit measures (primary associations)* Monetised benefits (included in MBCM)

No. Name Measure Value proxy and measure of changes in option compared to do-minimum

Monetised benefit

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 71

APPENDIX 2: BENEFITS FRAMEWORK QUANTITATIVE MEASURES MAPPED AGAINST ONRC MEASURES

MoT

TO

F

Benefit cluster Benefit Benefit measures – quantitative and qualitative measures ONRC performance measures (for AMP, MOR, LCLR)

Old no. New no. Name Description New no

Hea

lthy

and

safe

peo

ple

1. Changes in user safety

1.1 Impact on social cost of deaths and serious injuries

21 1.1.1 Collective risk (crash density) Average annual fatal and serious injury crashes per kilometre of road section 1.1.1.a Safety - Customer outcome 2: collective risk (fatal and serious injury rate per

km)

22 1.1.2 Crashes by severity Number of crashes by severity nil

23 1.1.3 Deaths and serious injuries Number of deaths and serious injuries

1.1.3.a Safety - Customer outcome 1: the number of fatal and serious injuries on the network

1.1.3.b Safety - Technical output 4: loss of control on wet roads 1.1.3.c Safety – Technical output 5: loss of driver control at night 1.1.3.d Safety – Technical output 6: intersections 1.1.3.e Safety – Technical output 9: vulnerable users

24 1.1.4 Personal risk (crash rate) Average annual fatal and serious injury crashes per 100 million vehicle kilometres 1.1.4.a Safety - Customer outcome 3: personal risk (fatal and serious injury rate by

traffic volume)

1.2 Impact on a safe system

25 1.2.1 Road assessment rating – roads Infrastructure risk rating 1.2.1.a Safety - Technical output 1: permanent hazards 1.2.1.b Safety - Technical output 2: temporary hazards 1.2.1.c Safety - Technical output 3: sight distances

26 1.2.2 Road assessment rating – state highways

KiwiRoad Assessment Programme (KiwiRAP) star rating (for state highways) nil

27 1.2.3 Travel speed gap Difference between safe and appropriate speed, and actual speed (under development) nil

Nil 1.2.0.a Safety – Technical output 7: hazardous faults 1.2.0.b Safety – Technical output 8: cycle path faults 1.2.0.c Safety – Technical output 10: roadside obstructions

2. Changes in perceptions of safety

2.1 Impact on perceptions of safety and security

28 2.1.1 Access – perception Perception of safety and ease of walking and cycling nil

3. Changes in human health

3.1 Impact of mode on physical and mental health

20 3.1.1 Physical health benefits from active modes User to describe nil

3.2 Impact of air emissions on health

14 3.2.1 Ambient air quality – NO2 Concentration of NO2 in µg/m³ nil

15 3.2.2 Ambient air quality – PM10 Concentration of PM10 in µg/m³ nil

3.3 Impact of noise and vibration on health

13 3.3.1 Noise level Noise level in dB Laeu (24h) nil

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 72

MoT

TO

F Benefit cluster Benefit

Benefit measures – quantitative and qualitative measures ONRC performance measures (for AMP, MOR, LCLR)

Old no. New no. Name Description New no

Res

ilien

ce a

nd s

ecur

ity

4. Changes in impact of unplanned disruptive events on access to social and economic opportunities

4.1 Impact of system vulnerabilities and redundancies

49 4.1.1 Availability of a viable alternative to high-risk and high-impact route

Percentage of high-risk, high-impact routes with a viable alternative nil

50 4.1.2 Level of service and risk User to describe nil

Econ

omic

pro

sper

ity

5. Changes in transport costs

5.1 Impact on system reliability

5 5.1.1 Punctuality – public transport Percentage of scheduled service trips between 59 seconds before and 4 minutes 59 seconds after the scheduled departure time of selected point

nil

6 5.1.2 Travel time reliability – motor vehicles

Coefficient of variation; standard deviation of travel time DIVIDED BY average minutes travel time (as per Austroads) nil

11 5.1.3 Travel time delay Difference between average travel time A and average travel time B in minutes per kilometre nil

52 5.1.4 Temporal availability – road Number and duration of resolved road closures: urban >=2 hours; rural >=12 hours nil

Nil 5.1.0.a Resilience – Customer outcome 1: the number of journeys impacted by

unplanned events

5.1.0.b Resilience - Customer outcome 2: the number of instances where road access is lost

5.2 Impact on network productivity and utilisation

1 5.2.1 Spatial coverage – freight Percentage completion of the strategic high productivity motor vehicle freight network nil

7 5.2.2 Freight – mode share value Number of vehicles TIMES average load per vehicle in NZD, expressed as percentages nil

8 5.2.3 Freight – mode share weight Number of vehicles TIMES average load per vehicle in tonnes, expressed as percentages nil

9 5.2.4 Freight – throughput value Number of vehicles TIMES average load per vehicle in NZD nil

10 5.2.5 Freight – throughput weight Number of vehicles TIMES average load per vehicle in tonnes nil

29a 5.2.6 Access to key economic destinations (all modes)

Proportion of population living within travel threshold (15 minutes, 30 minutes or 45 minutes) of key social and economic opportunities (including work) by different modes (walking, cycling, public transport, private motor vehicle) in the morning peak

nil

Nil 5.2.0.a Accessibility – Customer outcome 1: proportion of network not available to: a. Class 1 heavy vehicles, b. 50MAX vehicles

6. Wider economic impact

6.1 Wider economic impact (productivity)

Nil nil

6.2 Wider economic impact (employment impact)

nil

6.3 Wider economic impact (imperfect competition)

nil

6.4 Wider economic impact (regional

nil

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 73

MoT

TO

F Benefit cluster Benefit

Benefit measures – quantitative and qualitative measures ONRC performance measures (for AMP, MOR, LCLR)

Old no. New no. Name Description New no

economic development)

Envi

ronm

enta

l Sus

tain

abili

ty 7. Changes in

natural environment

7.1 Impact on water 16 7.1.1 Water quality User to describe nil

7.2 Impact on land and biodiversity

12 7.2.1 Biodiversity User to describe nil

NA 7.2.2 Land productivity User to describe nil

8. Changes in climate

8.1 Impact on greenhouse gas emissions

17 8.1.1 CO2 emissions Tonnes of CO2 equivalents emitted nil

18 8.1.2 Mode shift from single occupancy private vehicle User to describe nil

9. Changes in resource efficiency

9.1 Impact on resource efficiency

19 9.1.1 Resource efficiency User to describe nil

9.1.2 Embodied carbon User to describe nil

9.1.3 Energy use User to describe nil

Incl

usiv

e ac

cess

10. Changes in access to social and economic opportunities

10.1 Impact on user experience of the transport system

3 10.1.1 People – throughput of pedestrians, cyclists and public transport boardings

Number of pedestrians, cyclists and public transport boardings nil

28 (Repeat) 2.1.1 Access – perception Perception of safety and ease of walking and cycling nil

31 10.1.2 Pedestrian delay Pedestrian time lost due to intersection delay nil

39 10.1.3 Ease of getting on/off public transport services Percentage of low floor and wheelchair accessible services nil

40 10.1.4 Network condition – cycling Percentage travel on cycle network classified as complying with defined level of service (facility type) nil

41 10.1.5 Network condition – road Percentage travel on road network classified as smooth as per defined level of service

10.1.5.a Amenity – Customer outcome 1: smooth travel exposure (STE) – roughness of roads (% of travel on sealed roads which are smoother than a defined threshold)

10.1.5.b Amenity – Customer outcome 2: peak roughness 10.1.5.c Amenity – Technical output 1: roughness of road (median and average)

10.1.5.d Cost efficiency 1: pavement rehabilitation (length, area, cost, average life achieved)

10.1.5.e Cost efficiency 2: chipseal resurfacing (length, area, cost, average life achieved)

10.1.5.f Cost efficiency 3: asphalt resurfacing (length, area, cost, average life achieved)

10.1.5.g Cost efficiency 4: unsealed road metalling (length, area, cost, average life achieved)

10.1.5.h Cost efficiency 5: overall network cost, and cost by work category (lane, vkt)

44 10.1.6 People – throughput Number of pedestrians, cyclists, public transport boardings and motor vehicles (excl. public transport) TIMES average number of people per vehicle

nil

45 10.1.7 People – throughput (UCP) Number of pedestrians and cyclists nil

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 74

MoT

TO

F Benefit cluster Benefit

Benefit measures – quantitative and qualitative measures ONRC performance measures (for AMP, MOR, LCLR)

Old no. New no. Name Description New no

47 10.1.8 Traffic - throughput Number of pedestrians, cyclists and motor vehicles by vehicle type 10.1.9.a Travel time reliability – Customer outcome 1: throughput at indicator sites

48 10.1.9 Travel time Average travel time in minutes nil

nil 10.1.0.a Accessibility – Technical output 1: accessibility (signage)

10.2 Impact on mode choice

2 10.2.1 People – mode share Number of pedestrians, cyclists, public transport boardings, and motor vehicles (excl. public transport) TIMES number of people per vehicle, expressed as percentages

nil

18 (Repeat) 8.1.2

Mode shift from single occupancy private vehicle User to describe nil

30 10.2.2 Accessibility – public transport facilities Number of bus or train stops that are fully accessible nil

32 10.2.3 Spatial coverage – cycle lanes & paths Percentage completion of the strategic cycle network nil

33 10.2.4 Spatial coverage – cycling facilities

Number of people living within 500m of a high quality cycling facility nil

34 10.2.5 Spatial coverage – public transport – employees

Number of employees within 500m of a bus stop or 1km from a rail or bus rapid transit station nil

35 10.2.6 Spatial coverage – public transport – residents

Number of people within 500m of a bus stop or 1km from a rail or bus rapid transit station nil

35a 10.2.6a Spatial coverage - public transport - new residential dwellings

% of recently built residential dwellings with access to public transport services (subset of 10.2.6) nil

36 10.2.7 Temporal availability – public transport

Public transport frequency per hour weighted by percentage of the population living within 500m of a bus stop or 1km from a rail or bus rapid transit station

nil

43 10.2.8 Cost of access to key destinations – all modes User to describe nil

4 10.2.9 Pricing – more efficient User to describe nil

46 10.2.10 Traffic – mode share (number) Number of transport users by mode pedestrians, cyclists and motor vehicles by vehicle class, expressed as percentages nil

46a 10.2.10b Traffic – mode share (distance) Average trip distance per person in urban areas nil

10.3 Impact on access to opportunities

29b 10.3.1 Access to key social destinations (all modes)

Proportion of population living within travel threshold (15 minutes, 30 minutes or 45 minutes) of key social opportunities (including education, health care, supermarkets) by different modes (walking, cycling, public transport, private motor vehicle) in the morning peak

nil

10.4 Impact on community cohesion

42 10.4.1 Social connectedness User to describe nil

NA 10.4.2 Isolation User to describe

NA 10.4.3 Severance User to describe

11. Changes in liveability of

places

11.1 Impact on heritage and cultural values

37/38 11.1.1 Amenity value – natural and built environment User to describe 11.2.1.a Amenity – Technical output 2: aesthetic faults

NA 11.1.2 Heritage and cultural values User to describe nil

11.2 Impact on landscape NA 11.2.1 Landscape User to describe nil

LAND TRANSPORT BENEFITS FRAMEWORK AND MANAGEMENT APPROACH: GUIDELINES v1 │ AUGUST 2020 // 75

MoT

TO

F Benefit cluster Benefit

Benefit measures – quantitative and qualitative measures ONRC performance measures (for AMP, MOR, LCLR)

Old no. New no. Name Description New no

11.3 Impact on townscape NA 11.3.1 Townscape User to describe nil

12. Changes in te ao Māori

12.1 Impact on te ao Māori 12.1.1 Te ao Māori User to describe nil