Rethinking infrastructure performance: How benchmarking can guide smarter investment
High-level view of road networks in different regions, depicting variations in asset condition.
New Zealand’s transport infrastructure is under increasing strain, from aging assets and climate resilience challenges to surging freight demands and limited public funding. With more than $600 million invested annually in road maintenance alone, the question facing infrastructure leaders is clear: Are we investing wisely enough to build the resilient, efficient networks our economy demands?
A master’s research project was undertaken at the University of Auckland in 2023/24 to help answer this question, supported by the New Zealand Transport Agency’s (NZTA) Road Efficiency Group (REG) and under supervision from Dr Theuns Henning and Dr Seosamh Costello. The thesis, titled Refining the benchmarking of New Zealand RCAs through the Data Envelopment Analysis Technique, developed an objective, data-based benchmarking framework to contribute to smarter, evidence-based guidance for infrastructure investment decisions. Engineering New Zealand has also recognised the impact of this research by awarding it with the Transportation Group’s Tertiary Study Grant.
The case for smarter infrastructure investment
Since the post-Global Financial Crash funding cutbacks, the condition of New Zealand’s transport networks, particularly roads, has steadily declined, even as demand has increased. The 2024 Government Policy Statement (GPS) on Land Transport acknowledges this tension and shifts the focus from simply spending more to spending more effectively. That means using evidence, performance, and resilience as the new foundations for investment decisions.
To deliver value for money and better outcomes, infrastructure funding needs to be underpinned by accurate, consistent, and objective performance assessments – something our current tools don’t always provide.
The problem with traditional evaluation
Today, Road Controlling Authorities (RCAs) are assessed largely through self-reported frameworks assessed by NZTA and REG. These systems, while well-intentioned, may lack the consistency needed for fair cross-region performance comparisons. Yet they influence real-world decisions, such as funding allocation, asset planning, and strategy.
When performance assessment lacks objectivity, it becomes difficult to identify underperforming areas, make targeted improvements, or invest with confidence. This is where this research offers an alternative.
A better benchmark for performance
This research introduces a more objective approach by utilising a globally recognised methodology known as Data Envelopment Analysis (DEA). Already widely used in logistics, healthcare, and finance, DEA enables fair benchmarking by comparing how effectively different organisations turn their resources into results.
Applied to New Zealand’s RCAs, this model accounts for key factors like cost per kilometre and network condition. Crucially, it adjusts for local differences, such as traffic volume and the level of urbanisation, giving each authority a fair and realistic efficiency score. Improvements in data collection across RCAs, including environmental and geographical factors in the performance comparisons, would further help explain the variances and challenges faced by RCAs in network maintenance and operations.
What this delivers is not just another data tool – it’s a benchmarking framework that can improve infrastructure investment decisions at the national level.
Turning insight into action and impact
One of the most valuable contributions of the model is how it triangulates objective performance scores against the current REG and NZTA assessments. In cases where performance scores and self-assessments don’t align, it flags potential over- or under-investment, data quality gaps, or internal inefficiencies. This evidence-based insight can help:
- RCAs target their maintenance efforts more strategically.
- NZTA and central agencies fund programs based on true performance needs.
- Policymakers align infrastructure investment more closely with long-term economic and resilience outcomes.
It also supports broader goals outlined in the GPS, particularly value for money, productivity, and smarter infrastructure delivery in the face of climate pressures and regional variability.
Freight moving across a well-maintained but very busy regional corridor, with direct impacts on infrastructure performance and economic activity
Ultimately, this project isn’t just about measuring road maintenance performance – it’s about shaping the way New Zealand invests in its infrastructure.
Building the future of infrastructure strategy
A smarter, more data-driven approach to performance benchmarking enables:
- Stronger returns on public investment
- More resilient and equitable transport outcomes
- Clearer alignment between local practices and national strategy
As funding constraints tighten and the pressure on networks grows, tools like this will be critical for keeping New Zealand’s infrastructure fit for the future.
Shamsheer Benepal (BE (Hons), ME Civil Engineering) is a Civil Engineer with Beca’s Transport Infrastructure Team, passionate about shaping better infrastructure outcomes across New Zealand. Since graduating from the University of Auckland in 2023, she has worked on major infrastructure design and asset management projects nationwide. In 2024, she completed a Master’s research degree focused on improving road network maintenance through value for money and efficiency analyses using performance benchmarking. Her research, supported by NZTA’s Road Efficiency Group and recognised by Engineering New Zealand and CILT, reflects her strong interest in driving smarter investment and long-term value in transport infrastructure.