CHAPTER 8

Bus Operator Retention and Motivation

Retaining well-qualified workers is important for a transit agency’s ability to provide service and, ultimately, to attract new employees. With many older adult employees retiring, employee retention among younger workers is especially important now. Past research has indicated that turnover rates are highest within the first 3 years of employment and decline the longer an employee is with an organization.²¹⁴ The industry survey showed a similar trend: 44 percent of respondents answered that they believed the average length of employment for bus operators at their transit agency was more than 10 years (Table 10).

Even when transit agencies are able to hire a sufficient number of bus operators, they may not be able to retain an adequate number of bus operators due to high levels of bus operator turnover. Much of this turnover is attributed to voluntary terminations, as operators leverage their training to transfer to other positions in the transportation industry (i.e., trucking and logistics).²¹⁵ Retirements among older bus operators—the median age of the transit and intercity bus operators was 53.3 in 2021²¹⁶—are also a leading cause of high bus operator turnover.

Employee turnover can be voluntary, such as when the employee decides to leave the organization, or involuntary, such as when the employee is terminated. Voluntary turnover may ultimately be a reflection on the transit agency if, for example, employees feel that their value is not recognized by the organization, they do not have opportunities to grow, or the demands of the job are not met with appropriate incentives and rewards. Transit agencies with rewarding, safe work cultures and ongoing opportunities for professional growth and development are more likely to retain employees.

Not only are transit agencies losing a significant portion of their bus operator workforce as they become eligible to retire or voluntarily leave, but they are also losing the significant institutional knowledge and skills these employees possessed. Transit agencies will have to aim to attract newer, younger bus operators and find ways to manage and transfer the skills and knowledge of the outgoing workforce.²¹⁷

Turnover is particularly concentrated within the paratransit operator workforce. TCRP Report 142 found an average annual turnover rate of 30 percent among privately contracted operators, while the FTA has documented annual turnover rates as high as 80 percent for paratransit operations.²¹⁸

On average, it costs employers $4,129 to fill an open position across all occupations in the economy.²¹⁹ This cost does not include training, which for bus operators lasts 32 days on average.²²⁰ Retaining employees is thus a cost-saving measure for transit agencies. Employee retention is also critical to ensuring a well-trained and experienced bus operator workforce. In addition, according to a 2018 study, the longer the years of driving experience, the less probable bus and taxi drivers are involved in a traffic accident.²²¹

Table 10. Average length of bus operator employment.

Source: TCRP F-28 Industry Survey, Summer 2021.

8.1 Themes

Operator Engagement and Recognition Programs

The demands of driving a bus can be extremely high and, unlike many other jobs, bus operators are not in contact with their co-workers during their shifts. Operating a bus can be an isolating and thankless job, therefore it is of even greater importance to highlight the outstanding performance and service of bus operators through various recognition programs. Transit agencies can take steps to improve the working conditions for bus operators, thereby displaying their commitment to their employees and increasing job satisfaction. In a 2020 survey, bus operators who said they were committed to the company were less likely to have intentions of leaving. Therefore, to reduce turnover, transit agencies can pay more attention to drivers’ job satisfaction and implement strategies that demonstrate their commitment to drivers, in turn building up bus operators’ commitment to their employers.²²²

Employee engagement has been shown to impact employee turnover as well as several other elements of organizational performance, including customer satisfaction and safety. Highly engaged employees perform better and are less likely to leave an organization than employees who are not engaged.²²³ Programs that encourage bus operator engagement can include mentor programs, acknowledgment of career milestones, and rewards or incentive programs. Industry stakeholders also recommended involving employees in department meetings to learn about bus operator experiences and needs. Such meetings give bus operators a chance to be heard by the transit agency’s policy makers and provide bus operators a chance to highlight problems they face, some of which may have solutions that can be easily identified and implemented. Union involvement is also an important aspect of these joint meetings between bus operators and the transit agency.

The stresses of the job, combined with a lack of interaction and support from co-workers, supervisors, and the organization, can lead to emotional exhaustion and burnout for the bus operator. A 2020 survey indicated that mitigating these effects is possible through programs that provide and demonstrate organizational support and programs that facilitate coworker support. This can help to reduce emotional exhaustion while also encouraging bus operators to contribute to the transit agency and continue to work at the transit agency.²²⁴

Rewards programs can increase employee retention by providing an achievable goal to work toward and also by creating an environment in which employee behaviors are celebrated. Within the public transit industry, many transit agencies have implemented employee reward systems that incentivize good performance. Direct cash bonuses can be used to encourage desirable behaviors while also helping to make employees feel valued.²²⁵

Nineteen percent of respondents to the industry survey reported that they believed their transit agency has financial rewards/incentive programs. One stakeholder interviewed by the research team claimed that this is a particularly helpful strategy for retaining bus operators, especially if

the transit agency is unable to compensate at a higher rate. Additionally, some transit agencies have successfully used hazard pay to retain bus operators through the pandemic. However, the industry survey showed that the most widely reported engagement and recognition program at transit agencies that responded was acknowledgment of career or safety milestones, as indicated in Figure 15.

Acknowledgment of career milestones can highlight the service of bus operators and their dedication to the transit agency and their riders. Transit agencies may choose to publicly recognize bus operators in a variety of ways, including safe driving records and miles driven.²²⁶ These programs can increase bus operator job satisfaction and therefore reduce turnover because it demonstrates the bus operator’s importance to the transit agency. According to the National Rural Transit Assistance Program, the key to these programs is publicly awarding bus operators. Public acknowledgment creates a supportive workplace culture and highlights desirable behavior, creating a concrete goal for bus operators to work toward.²²⁷ According to the industry survey, 38 percent of the survey respondents reported that they believed their transit agency had a program for acknowledging career or safety milestones.

Respondents to the industry survey who said they represented a labor union were particularly negative in their assessment of programs that transit agencies use to boost employee morale. Gifts for milestones in driving or length of employment were among the few responses to the open-ended questions that had any positive feedback to provide. The consensus among these respondents was that morale is low and transit agency management has not done enough to change this. Low morale can also be due to the perceived “culture of discipline” within an organization, as indicated by participants in the stakeholder interviews and industry survey.

Given that many bus operators in U.S. transit systems are represented by unions, programs designed to increase employee engagement and satisfaction would benefit greatly from employee and union support. According to a 2012 study, only 57 percent of transit agencies with a safety-focused rewards program involved organized labor in the application of the program.²²⁸ Union involvement in these programs is essential.

Mentorship Programs

Mentorship programs provide bus operators with an opportunity to discuss the stresses of the job, get guidance on company policies, and obtain advice on how to approach difficult situations encountered on the job. The interactions between mentors and mentees can decrease the sense of isolation many bus operators report feeling. Mentorship programs increase employee engagement two-fold by encouraging experienced bus operators to apply to the transit agency to become a mentor and through providing new bus operators with a mentor who provides a personal connection and serves as a representative of both the local union and the transit agency. Mentors also receive a certain status and level of recognition as trusted members of the workforce.²²⁹ Furthermore, mentors can be better prepared for promotional opportunities.

Despite the widespread benefits of mentorship programs to transit agencies, new bus operators, and experienced bus operators, only 6 percent of respondents reported that their transit agency had mentorship programs in place, as shown in Figure 15.

As shown in Table 10, despite retention challenges, only 1.4 percent of industry survey respondents believed the average employment length at their transit agency was less than 1 year and another 26 percent responded that the average was 1 to 5 years. These responses indicate that retention rates are low for new bus operators but that once a bus operator has acclimated to the job, they are likely to stay with the transit agency for a significant period of time. The research team can infer that the initial years on the job are the most difficult and the point at which it is most likely that a bus operator will quit. By providing new bus operators with a mentor who can guide them, retention rates would likely improve.

Compensation

Compensation levels also impact retention. Once a bus operator has received training from the transit agency and has acquired a CDL, other job opportunities become available that may be more appealing. Forty-two percent of the industry survey respondents agreed or strongly agreed with the statement that the current bus operator compensation packages at their transit agency negatively affect bus operator retention. Additionally, 20 percent of those surveyed said that their transit agency never conducts wage comparisons with similar and major employers or industries in the geographic area. (See Chapter 4 for more details.)

Career Advancement

Opportunities for advancement within the transit agency can also positively contribute to retention. Employees tend to care more about their employer if it is perceived to be reciprocal. However, only 28 percent of respondents to the industry survey said that their transit agency offered career ladder programs and an additional 28 percent were unsure. Only 14 percent of respondents said that their transit agency offered career advancement training. (See Chapter 6 for more details.)

8.2 Forward-Thinking Approaches

The following approaches were identified in the research and stood out as valuable retention-related ideas that transit agencies can consider with respect to addressing retention and motivation issues.

Attend Industry Events and Competitions

APTA’s International Bus Roadeo provides bus operators with an opportunity to compete against and network with industry peers. Bus operators with the best accident record, demonstration of technical ability, and demonstration of customer service, among other skills and features, are selected to represent the transit agency at regional, national, and international competitions. The event features a driving skills competition where bus operators can compete against peers to win awards and monetary prizes.²³⁰ Some transit agencies have bus operators participate in industry-wide events like trainings and conferences. The Eno Center for Transportation’s MultiAgency Exchange program is one example of a best practice sharing program in which frontline workers can participate to learn from peer transit agencies.²³¹

Participate in Transit Driver Appreciation Day

Each year, transit agencies nationwide celebrate their bus operators during Transit Driver Appreciation Day. This is a day during which passengers are encouraged to publicly thank and praise their transit drivers. Some transit agencies have developed unique methods to encourage passengers to commend drivers. For example, King County Metro has developed an online platform where riders can send a note of praise to drivers.²³² Other transit agencies direct riders to social media platforms, where they can share photos of themselves and drivers.²³³

Cultivate a Cooperative Workplace Culture

The cultivated atmosphere at a transit agency goes a long way in determining the overall working environment. Leadership at GCRTA actively fosters a culture of teamwork to accomplish shared goals. Meetings between labor leaders and the chief executive officer (CEO) happen once per month, and the focus of these conversations has shifted from “checking a box” to accomplishing strategic goals. Employees and union members are made to feel included in and an integral part of management conversations and considerations.

At FMCTA, the workplace culture allows increased communication between bus operators and management. While formal feedback systems exist, bus operators feel comfortable enough to go directly and in-person to management supervisors with issues.

RCPT’s approach to retention and motivation is to keep morale high among all its frontline workers and to foster a “family-oriented” workplace. The transit agency hosts a number of special events for workers and their families. There is an annual Christmas party with prizes and cash giveaways; in the summertime, they host a family picnic at a farm with trapshooting, games, and activities for children. They also have organized a number of fundraisers for bus operators and family members of drivers facing serious health issues.

The relationship between the union local and management contributes to the atmosphere and culture at a transit agency. At VTA, the existence of the JWI, which requires and is built on collaboration and dedicated partnership between labor and management, has helped to create a supportive atmosphere.

Create Apprenticeship Programs

Registered apprenticeship programs for bus operators provide new bus operators with experienced mentors that have been chosen by a committee of both union members and management employees. They are therefore individuals trusted by both parties to help a new bus operator through the most challenging time of their career—the first year. New bus operators can turn to their mentors for guidance on navigating difficult schedules and policies. Apprenticeship programs take mentoring a step further by formalizing and registering the program and allowing the apprentices to potentially earn college credits. The apprenticeship also elevates the status of the occupation of bus operator through its registration with the U.S. Department of Labor and the apprentice’s award of a certificate of completion as well as college credits once the apprenticeship is successfully completed. AC Transit and VTA have bus operator apprenticeship programs that have had positive impacts on retention.

Develop Existing Employees Through Career Ladder Programs

At New York City Transit, the transit agency and local union, Transport Workers Union (TWU) Local 100, has a well-developed training program aimed at providing members options for upward mobility. The TWU Local 100 NYCTA Training & Upgrading Fund (TUF) offers college preparation, professional workshops, as well as classes on computers, basic math, English, and writing. Union members can study to take civil service exams and to advance in their careers. Several of the TUF courses come with college credit through the City University of New York.²³⁴ Similarly, VTA and ATU Local 265, thorough JWI, offers an innovative program called “Transit Apprenticeships for Professional Career Advancement.” The program is designed as a “Career Lattice/Ladder” system and gives both new and incumbent workers the opportunity to grow their careers. The program includes Coach Operator, Service Mechanic, Track Worker, and Overhead Line Worker apprenticeship.

Another innovative program is “Workforce Initiative Now—Los Angeles (WIN-LA)” at Los Angeles Metro. Created in 2017, this program was in response to the understanding that LA Metro was entering a period of expansion and that a considerable percentage of its workforce would soon be eligible for retirement. This career pathways program includes construction and non-construction opportunities in operations/maintenance, administration, and professional services. It “provide[s] support for participants in areas such as life skills development, skill set enhancement and educational attainment services through a collaboration of program partners.”²³⁵

GCRTA prides itself on a robust culture for career progression and considers promotional opportunities within the company to be a key driver of retention. Bus operators are GCRTA’s largest source of promotional opportunities. The transit agency regularly assesses the proportion of upcoming promotional opportunities that will be filled by internal candidates by determining the promotion rate from within the company. Currently, about 45 percent of the workforce has been promoted from within the transit agency.

Monitor Reasons for Retention Issues

GCRTA has implemented a regular focus group of managers from each department to discuss the reasons given by bus operators for leaving the transit agency. One of the issues uncovered by the focus group was that bus operator scheduling was a major cause of turnover. At PSTA, careful analysis and attention showed that the length of training and onboarding was a big factor in the retention of new hires.

Consider Scheduling Changes

Scheduling can impact retention, especially for new hires since bus operators with more seniority are given first pick of their routes. GCRTA is looking to implement a “reserve board” that would allow dispatchers to create customized runs of 40-hour-per-week schedules in the interim phase before bus operators are eligible to vie for their preferred routes. At DART, the union provides input on adjusting schedules and routes based on their knowledge of the conditions on the ground for bus operators.

Consider the Length of New Bus Operator Training and Onboarding

Providing the right amount of training helps to retain new hires. Onboarding is a crucial part of bus operator workforce development at PSTA and has also proved to be a big factor in the retention of new hires. In the past, some new hires were leaving within the first few days of onboarding and PSTA was losing up to 20 percent of new bus operators before the end of

the initial 6-week training period. COVID-19 widened the gap. After some trial and error with different lengths of classes, PSTA settled on a 10-week training that, coupled with a welcoming culture and the earlier mentioned mentoring program, proved to be the length and combination of training that led to well-prepared new bus operators and much-improved retention rates.

8.3 Resources

• Aspen Institute. “Cost of Turnover Tool.” 2019.
• Souza, C. “How to Recruit and Retain Drivers.” Community Transportation Digital, Summer 2016, 34–36.
• National Rural Transit Assistance Program. “Driver Recruitment, Training, and Retention.” 2020.