Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training (2018)

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3 Purpose of the Research Transit agencies rely on technical training to ensure safe operations, maintenance, and service. Providing quality, cost-effective training is a constant challenge. Changes in workforce demo- graphics, state of equipment, and technology integration have increased the demand for training and new capabilities across the workforce. The combined impact on workforce demands has exceeded the supply of training in many areas. At the same time, most of the transit community continues to rely on antiquated approaches to training, in which a consideration is not made to the type of training that will be most effective, be it a traditional classroom-based training ses- sion or more modern or innovative training approaches. Transit agencies are also facing greater budgetary pressures that emerge from increasing ridership demands, political shifts, and economic changes that further reduce resources available for training. Training transit’s frontline employees further adds to these challenges. Frontline employ- ees are typically out on routes, conducting maintenance duties, or otherwise performing tasks that would directly disrupt services if not completed. As such, it is difficult to pull these employees away from their daily duties for training purposes. Moreover, because many front- line employees do not have regular access to computers, computer-based training resources are not always feasible options for training. Finally, because transit agencies may prioritize meeting ridership demands today over training for tomorrow, finding time to dedicate to training is challenging. This project focuses on addressing such barriers to implementing effective and innovative training practices for public transportation’s frontline workforce, including the identification of best practices and shared resource models to overcome barriers. The development of this guidebook involved conducting a literature review of existing training programs, surveying over 100 transit agencies, and interviewing over ten transit agencies with innovative training approaches and/or shared-training resources. The focus areas included in the guidebook are based upon information regarding various barriers identified through these tasks and are as follows: • Focus Area 1: Understanding of Training Needs and Learning Tendencies • Focus Area 2: Infrastructure, Equipment, and Lost Productivity Costs • Focus Area 3: Capacity for Training and Instructor Evaluation • Focus Area 4: Access to Innovative Training Technology • Focus Area 5: Awareness of Available Shared-Training Resources and Courses • Focus Area 6: Training Content Is Outdated • Focus Area 7: Training Not Aligned with Needs • Focus Area 8: Legal Risks of Shared-Training Models • Focus Area 9: Lack of Adequate Resources C H A P T E R 1 Introduction

4 Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training This guidebook provides information on best practices and approaches for overcoming barriers related to these focus areas that transit agencies can implement to effectively train frontline employees in a time of high demand, aging equipment and infrastructure, and limited resources. Taxonomy of Shared-Training Formats This section describes best practices and effective approaches for shared-training models. It also provides examples of shared-training models currently operating both within and outside of the transit industry, as well as in-depth profiles of programs in the transit industry. Best Practices and Shared-Training Model Examples While transit agencies may have similar training needs with regard to the technology and equipment, agencies still vary widely in other characteristics, such as facilities and location. For example, some agencies may be in rural areas with limited internet access; others may not have the space needed to deliver intensive hands-on training or simulations. It is essential for a shared-training model to provide resources that are feasible and applicable for transit agencies of diverse sizes, modes, regions, and budgets. Based on a literature review, survey research, and interviews with transit agencies, our team found that shared-training models that are successful are flexible to meet these needs. Training programs found through the literature review and survey include computer-based training (CBT), classroom instructor-led training (ILT), synchronous and asynchronous web- based training (WBT), mobile learning, on-the-job experiential learning, and simulations. In addition to offering different mediums for training delivery, shared-training models can be organized in various ways. Federally Organized Partnership Programs Partnership programs can be created and/or funded by transportation agencies at the federal level—such as the Federal Transit Administration (FTA) or Federal Highway Administration (FHWA)—in order to meet growing skill needs and improve training nationwide. These programs may also be established as partnerships among agencies at the state level and third party training organizations even though they are organized at the federal level. Federal agencies as well as partners and members contribute funding and resources. For example, the Transportation Curriculum Coordination Council (TC3) began as a fed- erally-funded partnership of FHWA, National Highway Institute (NHI), state departments of transportation (DOTs), and the American Association of State Highway and Transporta- tion Officials (AASHTO). Later, however, it became an AASHTO technical service program with voluntary participation and funding from member state transportation agencies. Train- ing needs are assessed and shared by state representatives across TC3’s program commit- tees. Courses are then developed to meet the training needs through collaboration among subject matter experts, program committee members, partners, and instructional design- ers from third party training organizations. Similarly, the National Highway Institute was established by Congress to address a gap in training for the highway industry. Like TC3, NHI’s courses are developed through collaboration between subject matter experts from FHWA and instructional designers. Finally, the National Rural Transit Assistance Program (RTAP) operates under a cooperative agreement between FTA and the Neponset Valley Federal Partnership Programs in Transit • Transportation Curriculum Coordina- tion Council (TC3) • National Highway Institute (NHI) • National Rural Transit Assistance Program (RTAP)

Introduction 5 Transportation Management Association to support common training needs for states and rural transit agencies who receive RTAP funding. RTAP hosts an online training library of free instructor and participant course materials, learning resources, and a directory of trainers. RTAP surveys transit agencies nationwide to gather information regarding training needs. After courses are developed based on the survey results, participating agencies are able to provide feedback to ensure the content remains relevant and up to date. Interagency Partnerships Partnerships can be formed on an individual basis among transit systems who use similar equipment and, therefore, have similar training needs. These partnerships can also be formed in concert with a univer- sity or training vendor that offers shared training. In any format, transit agencies can benefit if they are unable to develop or deliver intensive and innovative training independently due to limited space, technology capabilities, or other resources. If another agency or organization has developed such a training, whether in-house or through a third party, the training can then be shared to the extent that it is feasible for agen- cies to send their employees to the training facility. This would allow frontline employees from various transit agencies to gain the skills and capabilities required to meet the industry’s emerging demands while providing participating agencies with a more cost-effective solution compared to spending limited resources reinventing the wheel. Two agencies have been identified as potential hosts of inter- agency partnership training (although it should be noted these agencies are not currently offering this form of shared training). First, the Washington Metropolitan Area Transit Authority (WMATA) provides a rigorous Bus Maintenance Train- ing and Personnel Development program for all bus maintenance employees. The program includes classroom ILT, simulations, CBT, and hands-on training. This extensive program takes place in WMATA’s large maintenance and training facility, which includes classrooms, labs, offices for all training staff, and breakrooms. Many agencies requiring this type of training do not have the capabilities to develop or implement it. As such, WMATA has expressed interest in opening up this program to include bus maintenance employees across the region who are handling similar equipment. Second, Chicago’s Metra holds a week-long Mechanical Workforce Annual Learning Event, specifically focusing on train doors, for their employees. This event includes classroom ILT and a practical exercise to allow employees to apply what they have learned. Like WMATA, Metra is open to sharing this training event with other agencies using similar equip- ment. They are also open to sharing the framework of the learning event, so that agencies with different equipment can adapt course materials as needed. The Center for Urban Transportation Research (CUTR) at the University of South Florida offers a Certified Transit Technician Program for transit employees across the state. This program incorporates virtual hands-on training and 3D modeling and allows participants to earn credits toward an Associate in Applied Science (AAS) degree. While the program is currently geared only toward Florida transit employees, CUTR is open to sharing the program with other agen- cies, based on approval from the Florida DOT. Finally, Educational Data Systems, Inc. (EDSI) has developed interactive training for equipment used by multiple transit agencies, though the training is developed for agencies on an individual basis. A more cost-effective method would be for agencies to share training with others in the industry operating the same equipment. How- ever, EDSI’s training materials become the agency’s proprietary information post-development. Therefore, training materials can only be shared at the agency’s discretion. Potential for Interagency Partnerships in Transit • Washington Metropolitan Area Transit Authority (WMATA) Bus Maintenance Training and Personnel Development • Metra Mechanical Workforce Annual Learning Event • Center for Urban Transportation Research (CUTR) Certified Transit Technician Program • Educational Data Systems, Inc.

6 Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training Consortiums Consortiums are developed through partnerships and collaboration among members of industry organizations and academia. Similar to partnership programs, they are developed in order to deal with wide- spread training challenges such as limited funding at individual agen- cies or increasing demands due to new equipment and infrastructure. Training courses are then developed to address these needs with input from all consortium members. This ensures the training covers criti- cal information as voiced by experts from industry organizations while also representing the perspective of academic experts. Consortiums also typically have working groups or teams of training experts and instructional designers that can provide input on curriculum design and development and training delivery. Consortiums receive funding and support from federal agencies and consortium members. In the regional transit industry, the Southern California Regional Transit Training Consor- tium (SCRTTC) was established by transit stakeholders in the state to offer cost-effective train- ing that meets state-mandated training requirements and is, therefore, applicable to several agencies. SCRTTC first conducts an annual needs assessment of all member agencies to identify training needs. Courses are then developed through collaborative partnerships with subject matter experts from transit agencies and individuals from academia. On a nationwide level, the Transit Training Network (TTN), established by the Transporta- tion Learning Center, was developed through three consortiums—elevator-escalator, signaling, and railcar maintenance—with the goal of providing transit agencies with capacity-building training resources. Member agencies contribute 2–4 percent of the full cost of training materials to support course development. Outside of the industry, the Safety Training Consortium is a membership organization with stakeholder involvement from both higher education institutions and organizations in vari- ous industries with research interest. The purpose of the consortium is to develop interactive safety training for the research community. All courses meet the Office of Safety and Health Administration (OSHA) requirements and state requirements, ensuring they comply with both federal and state-level safety standards. Courses are posted on an online safety training library, which consortium members can access to view training courses. Members can also download and customize courses to meet organization-specific needs. Online Learning Centers Online resources are developed to provide easily accessible, cost-effective training to a widespread audience. Resources may include training modules, guides, manuals, and other training materials that instructors can access to teach a course or participants can access to learn and refresh their knowledge inde- pendently. Online shared-training models can also serve as a forum, through which users from any location can facilitate ongoing virtual discussions to share thoughts regarding training needs and potential improvements for existing resources. These types of models typi- cally offer a variety of pricing options, though some resources can be accessed and/or downloaded free of cost. Organizations can purchase access to course materials on a course-by-course basis or gain access to the full training library by contributing funds to the program annu- ally. Membership options may also be tiered, with various pricing levels including access to different types of resources. This approach Consortiums in Transit • Southern California Regional Transit Training Consortium (SCRTTC) • Transit Training Network (TTN), Transportation Learning Center Online Learning Centers in Transit • Transit Training Network (TTN), Transportation Learning Center • Transportation Curriculum Coordination Council (TC3) • National Rural Transit Assistance Program (RTAP) • National Highway Institute (NHI)

Introduction 7 ensures all organizations, small to large, are able to participate and reap the benefits of the learning center. In the agriculture industry, the National Center for Appropriate Technology (NCAT) launched the ATTRA Sustainable Agriculture Program in 1987 with the goal of providing technical assis- tance and resources to industry members such as farmers, ranchers, and educators. ATTRA offers an online library consisting of video tutorials and webinars for a variety of agricultural procedures and topics related to sustainable agriculture. All videos and webinars are accessible online for free. In the transit industry, the TTN, TC3, National RTAP, and NHI host online learning centers and libraries that, like ATTRA, provide employees across the transit industry with resources like training courses (synchronous, asynchronous, and in-person), course materials, and learning guides. Each program offers a variety of pricing options. For example, TTN requires participating agencies to make bi-annual contributions in order to access the online library; TC3 offers a three-tiered pricing system for member agencies and agencies participating in TC3’s State Sharing Program, AASHTO member agencies, and non-members; National RTAP’s resources are available online for free; and NHI charges per course. Introduction to the Profiles A comprehensive review of training programs across U.S. and international public trans- portation providers and transit-affiliated institutions led to the development of profiles that embody the various shared-training formats. Part of this assessment involved conducting an environmental scan of existing training programs that emphasize skill development in frontline transit jobs. This then led to a more detailed analysis of a cross-section of training programs that have shared resource models, courses, or elements most directly relevant to the current skill and learning needs of operations and maintenance personnel, particularly in light of industry trends impacting frontline job requirements. This in-depth analysis included a combination of in-person and phone-based interviews with program providers offering frontline-specific curricula. Exhibit 1 provides an overview of participating organizations. Profiles for each of the selected programs and/or providers include their scope, delivery method(s), cost, notable innovative and effective strategies and practices, historical performance, performance measures and indicators, funding source(s), training location, and other relevant characteristics. The full profiles can be viewed in Appendix A. Understanding and Using This Guide This section provides information regarding the evaluation framework that informed selec- tion of the best practices and programs included in this report, as well as considerations for developing and implementing shared-training models. Evaluation Framework This evaluation framework and methodology outlines the approach taken to prioritize training programs included in this guidebook. The prioritization of the programs and models identified helps distinguish a training practice that is only effective for one public transportation agency from a true best practice for the industry. In addition, this evaluation framework can serve as a tool for transit leaders as they identify new training offered via shared resource models. The framework provides one mechanism for leaders to determine the viability, relevance, and value of the training for development of frontline workers.

8 Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training Best-Practice Training Program/Practice Defined For the purposes of this evaluation framework, “best practices” are generally defined by programs and training that adhere to the criteria presented in Exhibit 2. Evaluating Training Best Practices for Inclusion ICF employed a hybrid evaluation framework to assess the effectiveness of training pro- grams, which is aligned to the four components of best-practice criteria above. This began with a review of available literature on effective technical training programs for the frontline work- force, best practices, and potential barriers or success factors that might impact the use of shared resource models for training; it also included interviews and a survey to gather information from public transportation agencies on best and innovative frontline training practices and programs. These activities produced those practices that met the baseline principles for a best practice, as described above. Evaluation Summary This framework points to the types of evaluation questions that should be asked about training programs to determine their effectiveness, such as the most transactional at Kirkpatrick Level 1 (i.e., whether participants enjoyed the training) and moving up to Levels 2 and 3, which Organization Training Resource/Program Shared-Training Model Center for Urban Transportation Research (CUTR) Certified Transit Technician Program (classroom, virtual, and hands-on training) Interagency partnership* Educational Data Systems, Inc. (EDSI) Classroom ILT and asynchronous WBT courses Interagency partnership** Metra Mechanical Workforce Annual Learning Event—Doors (classroom ILT) Interagency partnership** National Rural Transit Assistance Program (RTAP) Asynchronous WBT courses; training materials available for print and download Federally organized partnership; online learning center National Highway Institute (NHI) Classroom ILT, synchronous WBT, and asynchronous WBT courses Federally organized partnership; online learning center Southern California Regional Transit Training Consortium (SCRTTC) Classroom ILT and WBT courses Consortium Transportation Curriculum Coordination Council (TC3) Asynchronous WBT courses Federally organized partnership; online learning center Transit Training Network (TTN) Transportation Learning Center CBT resources Consortium; online learning center Washington Metropolitan Area Transit Authority (WMATA) Bus Maintenance Training and Personnel Development (classroom ILT, simulation, and CBT courses) Interagency partnership** *This program is currently only offered to Florida transit employees, but could potentially be expanded to employees in other states. **These programs are currently only offered in-house, but can be shared at the agency’s discretion and to the extent feasible for agencies interested in participating. Exhibit 1. Shared-training programs and resources in transit.

Introduction 9 ensures the training results in desired skill acquisition and subsequent performance changes, respectively. Best practice suggests Levels 2 and 3 evaluations are good starting points for assess- ment of innovative training programs for the shared resource model. For example, it will be important to compare costs of the program to benefits, such as actual demonstration of skill development. Other important evidence for innovative programs, including whether the train- ing incorporates opportunities for practice of skills, behavioral assessments to support skill acquisition, and success case examples, are included in the final guidebook. Organization of the Guidebook The following chapters present nine identified focus areas (i.e., current training barriers) that are essential for consideration when developing and implementing technical/frontline training. Within each section, the challenges and barriers associated with the focus area are described and best practices are defined. This guidebook covers focus areas and best practices associated with delivering training within a transit agency (Chapters 3 and 4) as well as those for maintaining a successful shared-training In addition, training that has already reproduced the desired outcome within the originating organization is an indicator of a best practice because it suggests the practice itself can be consistently replicated. A practice that resulted in positive outcomes in multiple instances, whether within or outside the original organization, is a strong indicator for best practice. 3. Practice/program can be evaluated The practice should be structured so that it may be assessed against intended results. Evaluation evidence may be gathered from a variety of sources, such as the five Kirkpatrick Model levels. For example, learning can be or has been transferred (Kirkpatrick Level 2) and positive behavior change on the job is expected or has occurred (Level 3). At the highest evaluation level, the practice would indicate training benefits that outweigh the cost of the practice constitute a strong best practice (Level 5). A practice that does not have evaluation structure—for instance, simply listening to a CEO speech given by another transit agency—would not be included. 4. Practice/program implementation elements can be/are described in detail An important component of any best practice is that the elements of implementation are described in detail so that others can reliably implement them and obtain similar outcomes. The guidebook developed during the second phase of this project will serve as a means to disseminate these best-practice implementation procedures. Criteria Description 1. Practice/program has achieved/achieves positive workforce development outcomes Evidence suggests that the practice beneficially influences workforce development objectives. These outcomes may materialize slightly differently from implementation to implementation, but there should be confidence that the practice will effectively attain the goal(s) for workforce development as intended, based on past implementations. 2. Practice/program can be replicated The practice should demonstrate the ability to be replicated outside its current implementation to effectively contribute to a shared- training model. For example, implementation should not require a unique or restrictive setting that other organizations are unlikely to have access to, such as implementation at a specific training site. Exhibit 2. Elements of best-practice training program/practice definitions.

10 Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training model (Chapter 5). The guidebook organization is summarized in Exhibit 3, which also highlights that the transit and shared model best practices must coexist for successful training delivery. Tools for Applying Best Practices Throughout each chapter of this guidebook, training best practices are presented along with user-friendly tools to assist and support transit agencies in applying the best practices. These tools reflect effective training practices applicable to any training topic and format. Additionally, they reflect existing best practices shared by transit agencies and transit training providers. The tools were designed to overcome barriers and challenges to frontline transit training that were uncovered through research. Although this guidebook addresses several industry-wide training challenges, transit agen- cies also face many diverse and individualized challenges based on region or location, funding, resources, size, and more. Therefore, the tools have been developed in such a way that they can be easily adapted by varying types of transit agencies, based on agency-level needs and challenges. Exhibit 3. Graphic overview of the guidebook. Successful Training DeliveryTransit Agency Level Best Practices Shared Model Level Best Practices Focus 1: Understanding of Training Needs and Learning Tendencies Focus 2: Infrastructure, Equipment, and Lost Productivity Costs Focus 3: Capacity for Training and Instructor Evaluation Focus 4: Access to Innovative Training Technology Focus 5: Awareness of Available Shared-Training Resources and Courses Focus 6: Training Content is Outdated Focus 7: Training Not Aligned with Needs Focus 9: Lack of Adequate Resources Focus 8: Legal Risks of Shared-Training Models Exhibit 3. Graphic overview of the guidebook.

Introduction 11 They can also be adapted based on the training topic, objectives, and format (e.g., web-based and classroom-based). Each tool will be presented with examples of how they can be adapted. The tools were developed in a variety of formats depending on the purpose, such as fillable templates and forms, step-by-step instructions for conducting various types of training evalua- tions and assessments, checklists, and more. Exhibit 4 provides a list of each tool, how it aligns with each focus area of the guidebook, and where it is located in the appendices. Each section of the guidebook also contains a more detailed description of the tool, how it should be used, benefits of using the tool, and how it has been used at other transit agencies (if applicable). Pilot Studies This project involved two pilot studies conducted with CTtransit and Metropolitan Atlanta Rapid Transit Authority (MARTA). Although the best practices contained in this guidebook are supported by research and literature, the pilot studies provided the opportunity to directly assess the feasibility and value of the best practices with two different transit agencies in the field. During the pilots, the research team’s role was to assist the two agencies in selecting a training that met their needs and then to provide sample, innovative shared-training implementation tools and resources that are being offered in this Best Practices Report. The goal was to assess how well 1. the implementation resources assist in building training capacity, 2. the tools function in “real-world” training environments, and 3. the best-practice templates support agency training providers. The sample resources and tools used in the pilot were developed to address three of the most critical training challenges facing transit agencies. These challenge areas included the following: • Aligning training with agency needs. Agencies may be reluctant to use shared training due to a perception that the topics available are not aligned with their individual needs. In some cases, the concerns may be focused on shared training not adequately capturing the unique require- ments of individual agencies (e.g., local regulations and agency-specific practices or equipment). Agencies may believe, consequently, that training must be developed in-house in order to fully address their needs. Yet, there are often practices and resources that agencies can leverage to help ensure shared training is applicable and tailored to their local situation. Related sample tools were assessed during the pilot. • Building capacity for training and instructor evaluation. Transit organizations often invest in workforce development programs; however, it can be difficult for them to quantify or clearly discern whether the investment has been fruitful. Still, it is critical for agencies to demonstrate the value of training and make refinements to their training programs based on accurate assessments. Successfully evaluating employee training requires structured evaluation Focus 1 Level 3 Training Evaluation Tool—Appendix H Training Needs Assessment and Selection Tool—Appendix B Focus 2 Shared-Training Readiness Checklist—Appendix C Focus 3 Level 4 Training Evaluation Tool—Appendix I Level 5 Training Evaluation Tool—Appendix J Focus 4 Blended Learning Checklist—Appendix D Focus 5 Transit Industry Course Catalog—See Chapter 2 Focus 6 Level 1 Training Evaluation Tool—Appendix F Focus 7 Level 2 Training Evaluation Tool—Appendix G Focus 8 N/A Focus 9 N/A Exhibit 4. Overview of tools for applying best practices.

12 Transit Technical Training, Volume 2: Guide to Overcoming Barriers to Implementing Best and Innovative Training designs, baseline data, a culture that supports evaluation, and a team that can support continu- ous improvements, all of which can be hard to come by in the industry. Thus, access to shared evaluation templates that can be adapted to local agency needs is beneficial. Sample shared evaluation tools were administered and evaluated during the pilots. • Effectively integrating innovative training techniques and technology. Technological development over the past two decades has enabled a revolution in the way that training is designed, developed, delivered, and evaluated. Although there are examples of cutting-edge and innovative training technologies in the transit industry, the industry in general has been slow overall to adopt, especially at smaller, suburban, or rural agencies. Content that lever- ages technology is also available, but it is scattered across numerous different sources, and it can be difficult for training leaders to identify what is available, applicable to their workforce, good quality, and good value compared to other offerings or developing training in-house. In the pilots, we assessed sample tools that agencies can use locally to better integrate innovative training techniques. Following the pilot training implementation, our team administered surveys and conducted focus groups with CTtransit and MARTA to collect feedback on each practice and resource using a structured set of criteria. The core objectives of the evaluation included the following: • Confirming that provided recommendations and best practices are suitable for full-scale implementation within a variety of transit agencies • Obtaining transit agency feedback to refine the best-practice recommendations • Obtaining transit agency feedback to refine resources, templates, and additional guidance developed to support the best-practice recommendations • Ensuring evaluation techniques are valid and comprehensive so future shared-training implementation efforts can also be assessed Results of the pilot were used to determine which practices are included in this guidebook and to develop the recommendations, practice descriptions, templates, tools, and resources included. Findings are shared throughout the remainder of this report.