Attracting, Retaining, and Developing the 2030 Transportation Workforce: Design, Construction, and Maintenance (2022)

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2022 N A T I O N A L C O O P E R A T I V E H I G H W A Y R E S E A R C H P R O G R A M NCHRP RESEARCH REPORT 1008 Attracting, Retaining, and Developing the 2030 Transportation Workforce DESIGN, CONSTRUCTION, AND MAINTENANCE Candace Blair Cronin Allison Alexander Grace Arnold Juan Carlos Batarse Kelly Dray Sasha Iliev Jessica Jenkins Erik Smallwood Rachel Smart Jake Streng ICF Fairfax, VA Mara Campbell Jacobs Consulting New Florence, MO Susan Gallagher Western Transportation Institute Montana State University Bozeman, MT Tyler Reeb Tom O’Brien Center for International Trade and Transportation California State University Long Beach, CA Glenn McRae Transportation Research Center University of Vermont Burlington, VT Subscriber Categories Administration and Management • Construction • Design Research sponsored by the American Association of State Highway and Transportation Ofcials in cooperation with the Federal Highway Administration

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM Systematic, well-designed, and implementable research is the most effective way to solve many problems facing state departments of transportation (DOTs) administrators and engineers. Often, highway problems are of local or regional interest and can best be studied by state DOTs individually or in cooperation with their state universities and others. However, the accelerating growth of highway transporta- tion results in increasingly complex problems of wide interest to high- way authorities. These problems are best studied through a coordinated program of cooperative research. Recognizing this need, the leadership of the American Association of State Highway and Transportation Officials (AASHTO) in 1962 ini- tiated an objective national highway research program using modern scientific techniques—the National Cooperative Highway Research Program (NCHRP). NCHRP is supported on a continuing basis by funds from participating member states of AASHTO and receives the full cooperation and support of the Federal Highway Administration (FHWA), United States Department of Transportation, under Agree- ment No. 693JJ31950003. The Transportation Research Board (TRB) of the National Academies of Sciences, Engineering, and Medicine was requested by AASHTO to administer the research program because of TRB’s recognized objectivity and understanding of modern research practices. TRB is uniquely suited for this purpose for many reasons: TRB maintains an extensive com- mittee structure from which authorities on any highway transportation subject may be drawn; TRB possesses avenues of communications and cooperation with federal, state, and local governmental agencies, univer- sities, and industry; TRB’s relationship to the National Academies is an insurance of objectivity; and TRB maintains a full-time staff of special- ists in highway transportation matters to bring the findings of research directly to those in a position to use them. The program is developed on the basis of research needs iden- tified by chief administrators and other staff of the highway and transportation departments, by committees of AASHTO, and by the FHWA. Topics of the highest merit are selected by the AASHTO Special Committee on Research and Innovation (R&I), and each year R&I’s recommendations are proposed to the AASHTO Board of Direc- tors and the National Academies. Research projects to address these topics are defined by NCHRP, and qualified research agencies are selected from submitted proposals. Administration and surveillance of research contracts are the responsibilities of the National Academies and TRB. The needs for highway research are many, and NCHRP can make significant contributions to solving highway transportation problems of mutual concern to many responsible groups. The program, however, is intended to complement, rather than to substitute for or duplicate, other highway research programs. Published research reports of the NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM are available from Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet by going to https://www.mytrb.org/MyTRB/Store/default.aspx Printed in the United States of America NCHRP RESEARCH REPORT 1008 Project 02-25 ISSN 2572-3766 (Print) ISSN 2572-3774 (Online) ISBN 978-0-309-68732-4 Library of Congress Control Number 2022944813 © 2022 by the National Academy of Sciences. National Academies of Sciences, Engineering, and Medicine and the graphical logo are trade- marks of the National Academy of Sciences. All rights reserved. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, APTA, FAA, FHWA, FTA, GHSA, or NHTSA endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The research report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the National Academies of Sciences, Engineering, and Medicine. The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; the FHWA; or the program sponsors. The Transportation Research Board does not develop, issue, or publish standards or specifi- cations. The Transportation Research Board manages applied research projects which pro- vide the scientific foundation that may be used by Transportation Research Board sponsors, industry associations, or other organizations as the basis for revised practices, procedures, or specifications. The Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; and the sponsors of the National Cooperative Highway Research Program do not endorse products or manufacturers. Trade or manufacturers’ names or logos appear herein solely because they are considered essential to the object of the report.

e National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, non- governmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. e National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. John L. Anderson is president. e National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. e three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. e National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org. e Transportation Research Board is one of seven major programs of the National Academies of Sciences, Engineering, and Medicine. e mission of the Transportation Research Board is to provide leadership in transportation improvements and innovation through trusted, timely, impartial, and evidence-based information exchange, research, and advice regarding all modes of transportation. e Board’s varied activities annually engage about 8,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. e program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. Learn more about the Transportation Research Board at www.TRB.org.

C O O P E R A T I V E R E S E A R C H P R O G R A M S CRP STAFF FOR NCHRP RESEARCH REPORT 1008 Christopher J. Hedges, Director, Cooperative Research Programs Lori L. Sundstrom, Deputy Director, Cooperative Research Programs Waseem Dekelbab, Associate Program Manager, Project Delivery, National Cooperative Highway Research Program Sid Mohan, Associate Program Manager, Implementation and Technology Transfer, National Cooperative High- way Research Program Jennifer L. Weeks, Senior Program Officer Anthony P. Avery, Senior Program Assistant Natalie Barnes, Director of Publications Heather DiAngelis, Associate Director of Publications NCHRP PROJECT 02-25 PANEL Field of Administration—Area of Economics Pamela Rae Simon, Illinois Department of Transportation, Springfield, IL (Chair) Amitabha Bandyopadhyay, Farmingdale State College—State University of New York, Farmingdale, NY Alyssa M. Gradus, Baltimore, MD Ryan Griffith, Kentucky Transportation Cabinet, Frankfort, KY Christine Hetzel, Vermont Agency of Transportation, Montpelier, VT Amanda R. Holland, Holland Enterprise Resource Solutions, LLC, Kirkland, WA Diana Lea Long, Appalachian Transportation Institute, Gallatin, TN Jeff Pelton, Washington State Department of Transportation, Olympia, WA Karen Bobo, FHWA Liaison Virginia Tsu, FHWA Liaison

NCHRP Research Report 1008: Attracting, Retaining, and Developing the 2030 Transportation Workforce: Design, Construction, and Maintenance provides a guide to facilitate the develop- ment and maintenance of a high-quality workforce in transportation design, construc- tion, and maintenance. The Guide provides a roadmap and decision tree to help agencies analyze their unique workforce needs and navigate the practical strategies within the Guide. Together, these resources will be of immediate interest to state departments of transpor- tation (DOTs) seeking easily implementable strategies and tools to develop and sustain a high-quality, stable, and skilled workforce in transportation system design, construction, and maintenance. State DOTs are responsible for providing a safe, efficient, and effective transportation system of infrastructure and services. To meet these responsibilities, transportation agencies need a highly skilled workforce with the expertise required to identify and address current transportation needs while also being prepared to address the challenges of the future. The speed and intensity with which the transportation industry is introducing new technology are particularly challenging to DOT leadership. Examples of recent trends that demand DOT attention include rapidly changing transportation modal technology, communications technology, tastes and preferences of the traveling public, and the need for resiliency plan- ning to mitigate the effects of climate change. Under NCHRP Project 02-25, ICF Incorporated was tasked with researching the trends and factors affecting workforce needs in state DOTs with a focus on design, construction, and maintenance jobs. Through a combination of literature reviews, surveys, and interviews with transportation workforce professionals, the research identified a set of 10 workforce challenges that state DOTs are experiencing as a result of a changing economy and labor market. The team developed a practical guide with 22 specific strategies and action plans for agencies to implement in their efforts to identify and address the specific workforce needs of their organizations through 2030 and beyond. The strategies span recruitment, retention, and training and development. In addition to the guide published as NCHRP Research Report 1008, several additional deliverables are available. They include a stand-alone executive summary, a report docu- menting the research process, a PowerPoint presentation with an overview of the Guide for managers and practitioners, and a technical memorandum on the implementation of the research. These can be accessed on the National Academies Press website (www.nap.edu) by searching for NCHRP Research Report 1008. F O R E W O R D By Jennifer L. Weeks Staff Officer Transportation Research Board

1 Chapter 1 Introduction 2 Profiles for DOT Priority Jobs in Design, Construction, and Maintenance 16 Identified Industry Challenges 16 Future Scenarios That State DOTs May Face 16 Presentation of Workforce Capacity-Building Strategies 22 Workforce 2030 Roadmap 24 How to Use This Guide 25 Action Plan Decision Tree 30 Chapter 2 Building a Qualified Workforce: Attracting Employees 30 Challenges Related to Attracting Employees to State DOTs 31 Chapter Overview 31 Action Plans for Attracting Employees 33 Partner with Educational Institutions to Market Jobs 43 Develop a Brand to Attract New Applicants 54 Use a Focused Social Media Presence to Engage Applicants 64 Adopt Equitable Recruitment Practices to Hire Underrepresented Individuals 76 Assess Workforce Policies to Ensure Support for Diversity and Inclusion 86 Create and/or Revise Job Descriptions to Accurately Market Jobs 100 Chapter 3 Sustaining a Strong Workforce: Retaining Employees 100 Challenges Related to Retaining Employees in State DOTs 100 Chapter Overview 101 Action Plans for Retaining Employees 103 Develop Performance Management Strategies with Industry Partners to Communicate Expectations 113 Construct Effective Teams to Maximize Staff Productivity 123 Enable Employees to Share Ideas to Foster Workplace Innovation 130 Integrate Critical Skills into Career Paths to Demonstrate Career Advancement Opportunities 145 Establish Standard Operating Procedures for Data Management to Ensure Efficient and Secure Access 152 Create Flexible Work Arrangements to Accommodate Employee Needs 163 Implement Diversity and Inclusion Training to Ensure a Healthy Work Environment C O N T E N T S

175 Chapter 4 Developing a Talented Workforce: Training Employees 175 Challenges Related to Training Employees in State DOTs 175 Chapter Overview 176 Action Plans for Training and Developing Employees 178 Create Communities of Practice with Local Institutions to Encourage Knowledge Sharing 187 Develop Robust Training Programs to Bridge Workforce Skill Gaps 197 Upskill Existing Employees to Prepare Them for New Roles 203 Partner with Mobility Service Providers to Increase Coordination 210 Implement Internal Knowledge-Sharing Forums to Improve Knowledge Transfer 221 Conduct Cross-Functional Action Learning Projects to Facilitate Internal Collaboration 229 Create an Information Repository to Foster Resiliency Planning Communication Across DOTs 237 Provide Leadership Development Opportunities to Build a Leader Pipeline 247 Establish a Reciprocal Mentoring Program to Encourage Internal Knowledge Transfer 264 Chapter 5 Establishing a Community of Influencers to Support Industrywide Workforce Capacity-Building 264 Identification of Industry Stakeholders 264 Opportunities for Industry Stakeholders to Support DOTs 270 How to Form Partnerships with Industry Stakeholders 272 Chapter 6 Putting Strategies into Action 272 Guide in Review 272 Taking Action: Incorporating the Guide’s Strategies 273 The Change Management Framework 278 Conclusion Note: Photographs, figures, and tables in this report may have been converted from color to grayscale for printing. The electronic version of the report (posted on the web at www.nap.edu) retains the color versions.