Training and Certification of Highway Maintenance Workers (2015)

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22 CHAPTER FOUR CASE EXAMPLES APPROACH Three topics were identified through analysis of the survey responses as being appropriate for in-depth review. For each topic, at least two highway transportation agencies were interviewed in order to give a broader perspective of how agencies were addressing the following topics: • Delivery methods: what methods of delivery impact are being utilized and why? • Training and resource sharing opportunities: what partnerships and resources have been established to extend limited maintenance training resources and how do they operate? • Training and performance: how well are training efforts aligned with performance expectations for maintenance workers? The eight state transportation agencies selected to par- ticipate in the interviews (Alaska, California, Idaho, Iowa, Missouri, North Carolina, South Carolina, and Utah) were chosen based on several factors, including their expressed willingness to provide additional information, their contin- ued involvement in training maintenance workers, and their availability to participate in the interviews. Other factors, such as the following, were considered so that a range of program characteristics and approaches were represented in the case examples: • The utilization of multiple delivery methods (e.g., online, mobile, or video to provide training); • The utilization of partnerships to develop and deliver training; and • The existence of a well-structured or well-documented training program (e.g., training aligns clearly with workforce development objectives and there is a learn- ing management system for tracking training). A summary of some of the characteristics provided dur- ing the survey of state practice for each agency that partici- pated in the interviews is provided in Table 11. In addition, interviews were conducted with represen- tatives from the Clear Roads research program, TC3, and UGPTI. Each of these organizations works with highway transportation agencies to develop and deliver training. TABLE 11 CHARACTERISTICS OF THE STATE DOTs INTERVIEWED State Number of Front- Line Maintenance Workers Use of Contract Maintenance Methods Used to Deliver Training Do You Share Training Materials with Other Organizations? Does Your Organization Measure the Effectiveness of Training on Worker Performance? Alaska 501–1,500 Less than 50% Instructor-led, self-paced video Yes No California >3,000 Less than 50% Instructor-led, on-the-job, self-paced correspondence Yes No Idaho 501–1,500 Less than 50% Instructor-led, on-the-job, self-paced web-based, web conference Yes Yes Iowa 501–1,500 Less than 50% Instructor-led, on-the-job, self-paced No No Missouri 1,500–3,000 None Instructor-led, on-the-job, self-paced web-based Yes No North Carolina 1,500–3,000 Less than 50% Instructor-led, self-paced web-based Yes No South Carolina 1,500–3,000 Less than 50% Instructor-led, on-the-job, self-paced web-based Yes No Utah 501–1,500 Less than 50% Instructor-led, on-the-job, self-paced web-based, web conference Yes Yes

23 The information presented in this chapter is not intended to provide a comprehensive summary of the practices in any of the eight states that participated in the interviews. Rather, only the highlights of the discussions in each of the three areas are provided to focus on the findings and overall les- sons learned. DELIVERY METHODS The previous chapter discussed the preponderance of on-the- job and instructor-led training delivery methods at highway transportation agencies. These two methods are still the most widely used methods for delivering front-line mainte- nance training and are considered to be the most effective, whether used alone or in conjunction with one another. Yet several highway transportation agencies documented the use of alternative delivery methods. The motivation to use and implement these methods is the focus of this section. Five state transportation agencies (California, Iowa, Idaho, South Carolina, and Utah) and UGPTI were interviewed about the delivery methods they use to provide maintenance training. Self-Paced Correspondence Courses The California DOT was selected for closer scru- tiny in this area owing to its use of correspon- dence courses for providing roadside and general maintenance skills training. The correspondence courses were developed and implemented with assistance from consultants in the late 1980s. Several different topics are covered under each category, as shown in Table 12. The process for completing a correspondence course involves several steps. First, an interested employee requests the course(s) to complete. Second, the content is made avail- able through the agency’s intranet training website. An employee’s supervisor can print the content or have it printed by his or her staff. Next, the employee completes the train- ing on his or her own and sets the schedule for completion. Once the training is complete, the employee is expected to submit the final exam answer sheet to his or her supervision chain of command. At that point, the employee receives a certificate of completion and the course is recorded on the employee’s training history. Completion of this process can vary from district to district, which is a challenge. Other challenges to using this delivery method are maintaining the course content and increasing the amount of participation among field maintenance staff statewide. Currently the agency has a plan to update the content, adding courses on topics that have expanded since the 1980s, such as storm water and environmental issues. Once the con- tent is updated, the courses will be redesigned as interactive, web-based courses so that employees can access the material on the Internet from their own personal computers or smart- phones. The DOT is also considering methods to encourage supervisors to use small portions of the courses at tailgate safety meetings to train all their employees over time. California DOT has been using this type of self-paced training for over three decades. The agency has a high level of satisfaction with this method. The DOT is satisfied with this type of training because it does the following: • Allows new employees to acquire the knowledge they need about the proper way maintenance work is to be accomplished rather than relying on coworkers to teach this information; • Provides the proper terminology on topics, establish- ing a baseline vocabulary for the entire staff; this vocabulary is acquired in a safe learning environment (i.e., free of judgment); TABLE 12 HIGHWAY MAINTENANCE CORRESPONDENCE COURSES OFFERED BY THE CALIFORNIA DEPARTMENT OF TRANSPORTATION (2015) Volume Title I Pre-Operations Chapter 1: Safety Chapter 2: Telecommunications Chapter 3: Equipment Management and Preventative Maintenance II Roadbed Maintenance Chapter 1: Bases and Subbases Chapter 2: Flexible Roadbed Chapter 3: Rigid Roadbed Chapter 4: Shoulders and Bicycle Facilities III Roadside Maintenance Chapter 1: Drainage Chapter 2: Guardrail, Median Barriers, and Crash Cushions Chapter 3: Fences Chapter 4: Litter, Debris, and Spills Chapter 5: Slides, Slipouts, and Storm Patrol IV Traffic Control Device Maintenance Chapter 1: Pavement Delineation Chapter 2: Signs Chapter 3: Guide Markers Chapter 4: Electrical Devices V Specialized Maintenance Chapter 1: Maintenance of Structures Chapter 2: Maintenance of Public Service Facilities Chapter 3: Operations of Moveable Bridges, Tunnels, Tubes, Ferry Boats, and Toll Plazas Chapter 4: Snow Removal, Ice Control, and Avalanche Control Chapter 5: Maintenance and the Environment VI Plan Reading VII Practical Mathematics Source: Bishop and Wagner-Tyack (1986).

24 • Allows the employees to complete the courses at their own speed and does not remove them from field opera- tions for long periods; most supervisors allow work hours to be used to complete the courses when avail- able; and • Ties promotional exams and training together; ques- tions on the promotional exams have been formulated based on the course content. On-the-Job Training Iowa DOT relies heavily on the use of on-the-job training to deliver front-line maintenance training. The use of this delivery method is not unusual, as the survey results indicated. However, on-the-job training can require a tremendous number of agency resources to work success- fully. The Iowa DOT has overcome these resource issues to deliver an effective maintenance training program using in- house staff, as discussed here. The Iowa DOT supports a comprehensive on-the-job train- ing program for front-line maintenance workers. When Iowa DOT started its on-the-job training program, it was to focus on several key components related to certification areas and to train all construction and maintenance employees to sup- port all of Iowa DOT’s project needs. Then additional skills training needs were identified. It was determined that the necessary skills were most effectively taught by means of on-the-job training because this delivery method allowed an experienced employee to verify that the skills were mastered by the trainee. Because both the trainer and trainee were already on the project, training could be facilitated more quickly and efficiently than with classroom training. In Iowa, classroom training risked being overset by weather events and other demands on maintenance staff’s time. With the on-the-job training method, that issue was mitigated. On-the- job training also appealed to Iowa DOT because the training could be customized for each project based on the skill level of the available staff, and could be provided “just in time.” To develop the program, Iowa DOT identified content that would be appropriate for on-the-job training and a plan for keeping the content current. At the district level, Iowa DOT developed checklists of requisite skills for various mainte- nance (and construction) positions. The checklists are used in the field by trainers to guide on-the-job training and to track mastery for each employee. Annually, the district engineer and district construction and maintenance man- ager review upcoming projects, staffing availability, skills, and certification status to affirm the training content and to schedule training for assigned staff. Iowa DOT uses experienced maintenance employees to deliver on-the-job training, unless the training is required for certification. Certification courses may utilize contrac- tors or other technical experts. The trainers are committed to the training program and have their supervisor’s support to participate. Once someone is selected and approved to be a trainer, that person participates in in-house facilitator training. Additional, formal train-the-trainer sessions may be offered if the trainer is also providing certification train- ing. Potential trainers are tested to confirm their mastery of the on-the-job training content. Iowa DOT developed a process for training and tracking completion, which follows the progression described here: • The trainer works with the maintenance trainee one- on-one until the trainer is confident in the trainee’s ability to work independently. • The trainer completes a checklist for the employee to indicate mastery of skills and readiness to perform job tasks independently. • The trainer makes that recommendation to the supervisor. • The supervisor maintains records of employee comple- tion. (The human resources department is in the process of acquiring a new software system that will capture and store employee on-the-job training completion records. That system will integrate tracking, recording, notifi- cation, and training. Human resources anticipates the software will be up and running by Fall 2015.) Iowa DOT identified several issues with on-the-job train- ing that they are working to address or plan to address in the future. One issue is the time it takes to bring one person up to speed on all construction and maintenance skills. Iowa DOT is addressing this issue during the hiring process, identifying candidates for hire that already have the requisite construc- tion and maintenance skills, thus requiring less training. Another issue is the risk of inconsistency inherent in on- the-job training, given the number of trainers across the state. Variance in trainers’ ability and approach can result in a lack of uniformity across training topics (there are 1,000 mainte- nance employees across six districts with 109 maintenance garages). Although this risk is offset by the ability to provide localized, customized training, a plan is under consideration to revive Iowa’s Maintenance Academy for the entire work- force, rather than only new employees. This would allow for more uniform delivery of certain topics. New employees would continue to get field training in order to acquire the necessary skills immediately required to perform their work. There is also an issue with maintaining skills if there are not enough opportunities (projects) available to practice applying newly acquired skills. No specific plan has been identified to address this issue. Cross-Training As a result of interviews with Iowa DOT about its on-the-job training program, it came to light that the agency is also using

25 cross-training for construction and maintenance workers in an effort to make the most effective use of the existing staff. Cross-training is being used in conjunction with on-the-job training. (The prevalence and structure of cross-training pro- grams across the United States are currently being researched and documented under NCHRP 20-68a: U.S. Domestic Pro- gram Scan 13-01: Advances in Developing a Cross-Trained Workforce. Iowa is participating in that effort.) In Iowa, the goal is to have everyone in maintenance and construction trained to perform certain work, such as sample hot-mix asphalt pavements. The expectation is that at each technician level, employees will master and maintain cer- tain basic skills. In order to advance, maintenance techni- cians must acquire additional skills, which can also result in incentive pay if the employee works outside of his or her class to complete training or certification. An example of how cross-training works within the on- the-job training program is as follows. Maintenance work- ers need to be trained to perform construction inspections. A maintenance employee who needs to develop this skill is paired with a seasoned construction employee for a certain amount of time. The seasoned employee provides guidance and oversight to the trainee (not necessarily using a formal checklist) until a recommendation is made to the supervisor regarding the trainee’s ability to complete the job indepen- dently. Tracking of completion may or may not be formally recorded by the supervisor. Web-Based Training Web-based training is delivered online through the Internet or intranet. The training is completed independently accord- ing to the participant’s pace and schedule, making it an appropriate delivery option for front-line maintenance work- ers whose schedules are often affected by unplanned events. As the survey indicated, web-based training has become a common delivery option for specific types of content in cer- tain states. Two state transportation agencies were inter- viewed to illustrate why highway transportation agencies are choosing web-based training and how they are supporting web-based training at their agencies. The selected agencies include the South Carolina DOT and the Idaho Transporta- tion Department (ITD). South Carolina DOT transitioned to web- based training as the predominant method of delivering maintenance training in 2008– 2009. Several circumstances led to this deci- sion. First, South Carolina DOT was an active member of TC3, which had decided to pursue web-based training course developments. The agency’s experience with web-based training up until that point had been satisfactory, particu- larly concerning the flexibility web-based training offered (e.g., self-paced is easily reviewed). Since South Carolina DOT’s training department largely focused on soft skills training and state-specific procedures and policy training, using TC3’s web-based training products gave the South Carolina DOT access to much of the basic maintenance knowledge and skills training it needed. In addition, South Carolina DOT had an employee developing web-based train- ings for safety, so maintenance decided to utilize this employee’s skills for the development of web-based mainte- nance trainings as well. When South Carolina DOT identifies a maintenance training need, its first step is to identify the availability of existing content through TC3 or another resource. If no training exists, South Carolina DOT identifies all of the existing resources that can be utilized for web-based train- ing purposes (e.g., presentations and videos) and uses them to develop the product in-house. South Carolina DOT invested in a learning management system to make the web-based training content available to employees. The learning management system allows employ- ees to register, take, and track completion of training. South Carolina DOT currently has an effort in progress to develop a mandatory curriculum for maintenance employees. Existing web-based training courses will be a part of that curriculum. Using the learning management system, an employee’s prog- ress completing mandatory training can be easily tracked. This information can eventually be used to conduct perfor- mance evaluations, including providing data to support rec- ommendations for advancement and wage increases. ITD had reasons similar to South Carolina DOT’s for embracing web-based training. ITD wanted greater flexibility in providing training for its approximately 560 employees, who are spread over a large geographic area. It was a considerable challenge to coordinate schedules and transport employees to a single training site for a single training event. In addition, ITD wanted to minimize the risk of an emergency situation derailing training. In a state with so many winter weather events, this can pose a considerable challenge. ITD also wanted to be able to respond to changes in the workforce, which was increasingly younger and more comfortable with online training. ITD was initially introduced to the idea of self-paced training through participation in a pooled-fund study to develop computer-based winter maintenance training. Then ITD became a member of TC3 and began utilizing the web- based training products offered by that organization, such as modules on basic math, plan reading, and materials. Now ITD uses web-based training to support its workforce devel- opment program, for which training is an integral part. A maintenance employee must complete 70 hours of training in the first two career steps of the program. Many of those training hours are satisfied using web-based training. The

26 ing to reduce delivery costs. As a result of making the switch from classroom to web conference and web-based training, UDOT’s operating costs to deliver TEP were almost halved. To get the web conference training programs up and run- ning, UDOT had to identify a web conferencing platform and sites in each region where employees could go to partici- pate in web conference sessions. (Employees now have the ability to participate in web conference training from a com- puter at a maintenance shed or from home.) UDOT is also in the process of implementing a learning management system to centralize registration, tracking, and reporting, tasks pre- viously completed by the regional training managers. Most UDOT web conference training developments are done in-house, unless videos produced by other agencies, such as TC3, are utilized. The ability to develop state-spe- cific content is one reason in-house development is used. Recently, UDOT hired an instructional systems designer to enhance its in-house development capabilities and a train- ing program manager to oversee all of its training products. Delivery of web conference training courses is often done using UDOT staff, who also provide much of UDOT’s non- TEP maintenance and construction training. The commu- nity college also provides instructors as needed. UGPTI is actively using video conferencing to support the Transportation Learning Network (TLN) (www.Translearning.org), which is a partnership between four DOTs (North Dakota, South Dakota, Wyo- ming, and Montana) and the Mountain Plains Consortium (eight universities and colleges). TLN members work together to develop and deliver new and innovative technol- ogy transfer content applicable to the membership. Each state is solicited to identify potential technology and skill transfer topics on an annual basis. A list of topics are compiled and the states prioritize these topics (see Table 13 use of web-based training allows ITD to get instant feedback on an employee’s mastery of specific knowledge and skills through the use of online exams and evaluations. Web and Video Conference Training Web and video conference training is delivered through an online web or video conferencing system; an instructor is present to facilitate instruction. Given the favor shown by highway transportation agencies for delivery methods that allow for trainer-trainee interaction, it is not a surprise that some states are seeking ways to preserve this interaction while also reducing delivery costs by using web or video conference training. To highlight the use of these delivery methods, Utah DOT (UDOT) and UGPTI at North Dakota State University were interviewed to explore how they uti- lize these methods in support of maintenance training. UDOT has been using web conference training for 10 years. UDOT’s transition to web conference training came out of an initial effort to certify all construction personnel as part of a cross-training effort. The certification program was delivered on a web con- ference platform to minimize travel and facility costs and to minimize scheduling conflicts. Web conference training also allowed UDOT to record live sessions and share them with those unable to participate. Eventually UDOT realized the value of training all maintenance personnel in this way. As the web conference training certification effort was pro- ceeding, UDOT was developing the Transportation Education Program (TEP) in conjunction with a community college. TEP’s purpose is also to support UDOT’s cross-training effort for construction and maintenance. Its objective is to improve the knowledge, skills, and abilities of construction and main- tenance workers so they can move between the two activities. TEP was initially developed as classroom-based training but was switched to mainly web conference and web-based train- TABLE 13 EXAMPLE LIST OF PRIORITIES FOR TLN TRAINING Course Name Program Area Description and Learning Objectives Course Length Suggestion Source Target Audience Hearing Conservation and Protection Maintenance Education on effects of hearing loss due to work environment and steps to pre- vent hearing loss 2 h NDDOT Maintenance and construction Truck Mounted Attenuator—TMA Maintenance Proper techniques when operating a TMA 2 h NDDOT Maintenance Pavement Marking for Maintenance Employees Maintenance Introduction to various pavement mark- ing materials available and procedures for installation and best service life 2 h SDDOT Maintenance, local Asphalt Paving Operations for Maintenance Staff Maintenance TBD NDDOT Maintenance field staff and supervisors NHI—Guardrail Mainte- nance Techniques Maintenance Regular items to inspect or issues to look for Coordinating repairs and materials con- sideration Liability issues 7 h SDDOT Maintenance and guardrail design staff

27 other transportation groups, as well as pooled-fund activities sponsored by the Clear Roads research program and TC3. The Alaska Department of Transportation and Public Facilities (ADOTPF) Division of Maintenance and Operations maintains a sharing relationship that may appear familiar to many highway transportation agencies. ADOTPF is a member of local, regional, and national chapters of transpor- tation industry groups, specifically AASHTO, Western Association of State Highway and Transportation Officials, and APWA. ADOTPF uses its participation in these groups to share ADOTPF’s maintenance training materials and to request materials when a need arises. Most of this sharing is done informally, with an e-mail sent out to members. More formal needs identification can occur at the three annual meetings of AASHTO, Western Association of State High- way and Transportation Officials, and APWA Winter Main- tenance Subcommittee, of which ADOTPF is a member. Much of the training ADOTPF makes available is video training (an example of a shared video training can be viewed at http://dot.alaska.gov/stwdmno/psa_video.shtml). ADOTPF accesses training material of all varieties, includ- ing APWA’s Winter Maintenance Supervisor program (http://www.apwa.net/learn/certificates/winter-mainte- nance-supervisor-certificate). ADOTPF may use APWA to deliver the courses, such as with the Winter Maintenance Supervisor program, or use internal staff. ADOTPF has realized a tremendous benefit from these sharing relationships. First, the agency acknowledges a savings of time and resources by not reinventing the wheel on training materials. If ADOTPF has a need, the agency can usually find someone within the network who has addressed that need and is willing to provide materials or even deliver training. Sharing also provides ADOTPF with new training ideas that can be evaluated, developed, and implemented to best suit the agency. Finally, these shar- ing relationships also allow ADOTPF to grow its resource network and identify the most useful sources for certain content and types of materials. The Clear Roads research program (http://clearroads.org/) supports the development of training materials that can be shared by member agencies. One of their primary activities is support- ing “technology transfer by developing practical field guides and training curriculum to promote the results of research projects” (Clear Roads, http://clearroads.org/, accessed June 9, 2015). The Clear Roads program’s approach is as follows: “By evaluating materials, equipment, and methods in real- world conditions, the program identifies the most effective techniques and technologies to save agencies money, improve safety, and increase efficiency” (Clear Roads, http:// clearroads.org/, accessed June 9, 2015). for an example). TLN member states typically develop the content for each approved topic/course. UGPTI’s role is to develop and host top priority training to support technology transfer efforts. Typically this equates to 30 to 50 training events hosted per year from November to May. Video con- ference topics have included pavement preservation, safety, hydraulics, geotech, project management, erosion and sedi- ment control, and soft skills. To support the video conference training deliveries, UGPTI established approximately 40 sites across the four states and provided them with high-definition equipment (e.g., cameras and screens). Then three sites were selected from which to broadcast the training. All training participants register and access the train- ing through UGPTI’s learning management system. Par- ticipants use sign-in sheets at the training sites to document their attendance. At the conclusion of the training, site coordinators administer paper-based evaluations. These are collected and mailed or scanned back to UGPTI. UGPTI compiles the evaluations and makes the attendance and eval- uation data available to the member states. This information is also tracked in the learning management system. UGPTI reports certain issues with video conference training that they actively manage. One issue is with band- width limitations, which occasionally interfere with deliver- ing video conference training. Another area that requires careful consideration for video conference delivery is the presence of a well-trained support staff. Finally, UGPTI recommends conducting a needs assessment and thoroughly vetting all video conference systems before selecting a sys- tem for use. UGPTI indicates that it is essential that the sys- tem purchased supports all of the agency’s needs. MATERIALS SHARING As documented in the previous chapter, 34 of 47 agencies that were surveyed share training materials. Training partners vary by agency and can include other highway transporta- tion agencies, LTAPs, community colleges, and transpor- tation training organizations. Agencies share all types of materials, including instructor-led training and web-based training. The sharing relationships can be formal, such as participation in TC3, or informal, such as sending an e-mail requesting materials to a distribution list. Whatever form it takes, sharing materials plays an essential role in the training and certification of front-line maintenance workers. The benefits of sharing materials are evident. For instance, sharing allows highway transportation agencies to access a greater pool of training resources than they could likely develop on their own. This section documents shar- ing experiences between Alaska DOT and the APWA and

28 Previously, Clear Roads supported a pooled-fund effort to develop computer-based training for snowplow drivers, maintenance crews, and others. As part of a current research project, Clear Roads is creating 25 instructor-led training modules of varying lengths for state workforce crews on snowplow operations. The instructor-led training modules are designed for different experience levels. The resulting instructor-led training products will be available to all 29 Clear Road member agencies. TC3 (http://tc3.transportation.org) is a national collaboration that iden- tifies gaps in highway transportation training content and provides sub- ject-matter expertise to get courses developed and main- tained. TC3 is an all-volunteer organization; all committee members have full-time jobs at DOTs across the country. Several respondents to the survey identified TC3 as a shar- ing partner. Indeed, TC3 lists 30 state agencies as members and, as of 2015, has had 100,000 participants complete TC3 courses. Currently, states can access TC3 training for free through the National Highway Institute’s website. Member states, who contribute $20,000 annually to participate, can load TC3 products directly to their state’s learning manage- ment system, in addition to receiving technical support to accomplish the transfer. Eventually, TC3 expects to have its own learning management system in place. After that point, courses will be free only to member states. The current free status of web-based training content makes it an affordable resource for highway transporta- tion agencies. For its $20,000 investment, the agency gains direct access to approximately $300,000 worth of training material. In addition, TC3 members can direct new devel- opment efforts: TC3 usually develops 20 instructional hours per year. TC3 provides additional benefits to members and non- members. TC3 maintains competency matrices for mainte- nance workers. Those competency matrices are mapped to the available training. TC3 also prioritizes training needs. Finally, with the implementation of its own learning man- agement system, TC3 can offer a way for states without a learning management system to track training completion. LINKING TRAINING TO PERFORMANCE The ability to connect training to performance require- ments is essential for a successful workforce development program. As previously stated, it is important to link training and performance so employees clearly under- stand the expectations of the job, how those expectations are to be met, and the incentives available to meet those expectations. The purpose of this section is to delve into the practices of three agencies that are successfully establishing the link between training and performance at their agencies. NCDOT’s Skill-Based Pay Program was the focus of an article published in 2000 and was part of the literature review conducted for this synthesis (Aschbrenner et al. 2000). North Carolina consented to par- ticipate in an interview about this program at an interesting time in the program’s history. The state legislature had recently instructed the DOT that it did not have the authority to conduct the program in its current form, so the DOT restructured some aspects of the program while maintaining the program’s core functions. The DOT’s Skill-Based Pay Program is designed to pro- mote flexibility and equity among transportation workers, and to help the department remain competitive in the mar- ketplace. It addresses the training needs of employees for career development and supports the department’s Perfor- mance Management Program. NCDOT’s Skill-Based Pay Program initially identified six levels of competency within four functional area groups. For each competency within each level, various skills, tasks, and abilities are identi- fied. Employees are required to master these in order to be certified at that competency level and advance. Currently, advancing through a competency level does not automati- cally result in an increase in pay, but there is an effort in progress to return to a merit-based pay system. These competencies are directly related to performance. Each employee has a performance development plan that documents the following: • The existing skills at their competency, • The skills that they plan to attain, and • A plan for how they will master the skills to advance. The program has three phases. The first phase is test- ing. Following the completion of self-paced training, an employee can identify his or her readiness to complete an exam. By passing this written exam, the maintenance employee demonstrates mastery of basic knowledge and procedures required to advance to the next phase: on-the-job training. During on-the-job training, a trainee is paired with a certified instructor or experienced maintenance employee. The trainee must pass performance-based tests in order to move on to the final phase: certification. The cornerstone of NCDOT’s program is its learning management system, which tracks all training. The learn- ing management system allows NCDOT to track class com- pletion, scores, and certifications for every employee. The system can administer and score exams. It sends updates to supervisors notifying them about an employee’s readiness to advance a competency level.

29 Missouri DOT (MODOT) implemented a program in 2012 called the Gear Up Program. The pro- gram’s goal is to train and retain new front-line maintenance employees. The training employees receive in Gear Up is directly aligned with employee perfor- mance expectations. Gear Up consists of one week-long train- ing program that employees attend immediately upon hire. This training outlines performance expectations and provides basic training in various categories related to the performance expectations, including safety and equipment operations. At the conclusion of a 90-day probation period, employees partici- pate in a 1-day training that focuses on expectations aligned with equal employment opportunities and other soft skill requirements. In the 18 months following the employee’s start date, on-the-job training for equipment operations occurs. During this time, employees also have the support of a peer mentor. At the conclusion of the program, employees attend a wrap-up session that serves as a refresher of all the information they have gained in their first year. In this session employees are required to fill out a final satisfaction survey for the program. MODOT’s employee development team collects evalua- tion data measuring the employee’s experience in the Gear Up program in addition to collecting anecdotal data from the mentor and supervisor on the employee’s performance and readiness to perform required tasks (see Figure 28). MODOT FIGURE 28 Example of a Missouri Department of Transporation on-the-job training checklist.

30 flags comments submitted by trainees and mentors indicat- ing issues with the training and performance. This informa- tion is sent either to the mentor and supervisor, or to human resources, as applicable. The compiled data are also sent to the entire employee development team and human resources management to help identify any issues with the training products and future needs. In addition, analysis results have been used by leadership to support business decisions. Soon MODOT will have sufficient data from each district to indicate the program’s impact on employee turnover and retention. It will use this information to improve the pro- gram and better align training and performance. ITD puts significant emphasis on winter perfor- mance standards. So much so that within the last year, ITD developed a career step program that ties a maintenance employee’s career advancement to his or her maintenance team’s ability to meet minimum win- ter maintenance performance requirements. Each mainte- nance team has to meet the minimum winter maintenance performance standard. If the team meets the standard, which is reviewed annually, team members can advance up the career ladder. If the team fails to meet the minimum standard, there is no advancement that year. To see the per- formance metrics as shown by the ITD Dashboard, see Fig- ures 29 and 30. Maintenance staff must complete at least 70 hours of training within each career step in order to acquire the skills necessary to meet the performance target. Each step of the career path includes online training, on-the-job training, simulator training, classroom training, and equipment per- formance exams. Performance exams are administered in a one-on-one setting, similar to a commercial driver’s license exam. The exams are administered by a supervisor who has received training as an examiner, has had his or her perfor- mance evaluated with the specific equipment, and is not a direct supervisor of the employee. All training completion and exam scores are tracked in the learning management system. IDT can monitor an employee’s mastery of a spe- cific knowledge base and training experience through the use of online exams and evaluations. FIGURE 30 Idaho’s winter maintenance performance data. FIGURE 29 Idaho’s Dashboard reflects winter maintenance performance measures.