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Bus Operator Workforce Management: Practitioner’s Guide (2023)

Chapter: Appendix A - Case Studies

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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APPENDIX A

Case Studies

Seven transit agencies are represented in the following case studies. These transit agencies were selected based on the following considerations: diversity of geographic regions; a mix of directly operated service, contracted service, or both; a mix of transit agency sizes based on the number of bus operators employed; use of novel practices as identified in existing literature or by those who described effective practices in another phase of research for this work; transit agency effectiveness in more than one topic area of workforce development and management according to earlier project research; the availability of multiple perspectives for interviews and additional research; and survey analysis.

The seven selected transit agencies and their case studies are the following:

  • Dallas Area Rapid Transit (DART) in Texas
  • Fairmont-Marion County Transit Authority (FMCTA) in West Virginia
  • Greater Cleveland Regional Transit Authority (GCRTA) in Ohio
  • NJ Transit in New Jersey
  • Pinellas Suncoast Transit Authority (PSTA) in Florida
  • River Cities Public Transit (RCPT) in South Dakota
  • Santa Clara Valley Transportation Authority (VTA) in California

Dallas Area Rapid Transit, TX

DART was chosen as a case study location due to information gathered through the survey and general research. Survey results indicated there was union and community involvement in recruitment, several workplace retention and morale-boosting programs, and it was indicated that DART was viewed positively by their community.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service Full-time Operators (Fixed Route and Paratransit) Part-time Operators (Fixed Route and Paratransit) Union Status
Large urban, small urban, rural FTA Region 6 (Arkansas, Louisiana, New Mexico, Oklahoma, Texas) Directly operated Purchased 1001 or more 101 to 500 ATU Local 1338
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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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Throughout a 700-square-mile service area, DART operates a fleet of 681 buses serving 128 bus routes and transports approximately 140,000 passengers each weekday. Bus operations provide local, express, crosstown, on-call, flex, feeder bus routes, site-specific shuttles, and GoLink Mobility on Demand services.241 As of 2021, bus operations employed 1363 bus operators.242

DART contracts with MV Transportation, Inc. for paratransit services. MV provides, operates, and maintains a fleet of 80 shuttles for DART service. MV also oversees and manages a fleet of 116 vans, which serve as taxi vehicles that are provided and operated by Irving Holdings.

DART has been the recipient of many awards such as the Forbes Magazine 2020 America’s Best-in State Employer and the Texas Transit Association (TTA) 2020 Outstanding Metropolitan Transit System in Texas.

ATU Local 1338 represents DART bus operators, mechanics, and call center personnel. Union membership is optional for employees. In one interview, it was estimated that approximately 80–90 percent of bus operators are represented by the union at DART. As a Texas governmental entity, DART is not legally permitted to collectively bargain or sign labor contracts with these employee representatives, but they do however meet and confer with ATU representatives on hourly employee issues, compensation, and benefits.

Workforce Needs Assessment

In the past, DART determined the number of bus operators needed by using Planning Department data including service hours, miles driven, and the number of available buses. The workforce needs projection was then sent to the budget office, which determined the final headcount. Recently, DART’s workforce needs assessments have been impacted by the COVID-19 pandemic, an “employee market,” a high turnover rate especially among younger workers, and future unknown service due to organization growth. The situation resulting from COVID-19 impacts created a very unusual environment for both workforce development and recruiting. Moreover, the workforce needs analysis is taking into account the fact that potential bus operators see more job opportunities with better pay and working conditions.

As a result of recent challenges, DART Bus Operations Department has been working more directly with the department responsible for scheduling and planning for a more comprehensive approach to workforce needs assessment. Additional considerations now accounted for include factors such as attrition rates, high turnover, benefit utilization, unscheduled events, and regulations. This additional analysis and multi-department approach has helped facilitate a more comprehensive workforce needs assessment.

Forecasting for future workforce needs is conducted twice annually. DART is a member of the American Bus Benchmarking Group (ABBG), a forum for mid-sized bus agencies to learn from each other. ABBG helps DART to improve its workforce needs comparisons forecasting.

The local union, ATU, is involved in workforce needs assessment. The union validates information and offers suggestions for adjusting schedules and routes based on its knowledge of the routes, traffic patterns, etc. This review and input are completed monthly via the Route Monitoring Task Force comprised of bus operators.

Recruitment

DART currently faces difficulties in the recruitment of bus operators. The employee market means that potential employees have access to jobs requiring lower skill levels and better pay, more accommodating schedules, and less challenging public interaction. Additionally, DART decided to implement a bus service redesign plan during the COVID-19 pandemic which called

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for additional 100 bus operators and service to be added to the bus network. In 2021, given the tight labor market, CDL drivers were consequently scarce. DART tried multiple recruiting strategies including holding hiring events, attending job fairs, hiring on the spot, utilizing social media, and replacing the student bus operator compensation rate with a first-year bus operator compensation rate. The last strategy proved particularly successful where all bus operators in training are now paid the first-year rate.

Two other recently approved recruiting strategies and incentives piloted at DART include a bus operator sign-on bonus and an employee referral program. Obtaining the DART Executive Board approval for these programs was challenging. However, sharing comparative information from other transit agencies facing similar situations and conducting similar programs helped to gain the Board’s support. The sign-on bonus and referral programs were approved as pilots for 90 days, and at the conclusion, their return on investment was tracked to assess for success. The advertisement of the signing bonus was distributed with a $2,000 signing bonus for bus operators already possessing a CDL.

In addition to trying new recruiting strategies, DART has been looking for ways to highlight the positive aspects of the job and the bus operator benefit package. DART is advertising on the sides of its buses and at transit centers to increase public awareness of their job opportunities. DART has a recruiting advantage because it provides training for those without a CDL.

The local union is involved in recruitment efforts independently of DART. If an individual expresses interest and contacts union personnel, the union will try to support the potential candidate and follow up with them upon application completion and employment.

Compensation

As earlier mentioned, to be competitive and for recruitment purposes, pay for those entering training was increased to that of a first-year bus operator. Previously, bus operators in training started at a lower wage and were given an increase after training was complete. Recently, pay for bus operators in training was raised from $17.36 per hour to $21.13 for the 8 weeks of onboarding training.

Compensation in the form of retention bonuses has recently been offered. Beginning in January 2022, the new retention bonus program consisted of a $3,000 bonus that was distributed over two payments if bus operators met certain criteria relating to attendance and performance.

Full-time bus operators are eligible for all benefits that DART offers including medical, dental, vision, retirement, life insurance policy, and disability. Part-time employees are typically not eligible for benefits unless they work more than 20 hours per week. If they meet this requirement, then they are eligible for pro-rated benefits. Bus operations monitors and evaluates the part-time bus operators for their eligibility.

According to one bus operator interviewed, issues between senior and new bus operators, like wage inequities, do not seem to exist in DART. A wage progression schedule has been established for bus operators at DART. There are six steps for bus operators to reach top pay, and they top out after 60 months. Most bus operators at DART are topped out. In addition, every year, and as long as the budget approves and depending on financial structure, hourly employees are given a wage increase. In 2020, with union support, a 4-percent wage increase was approved.

Hiring Processes

In response to the labor market challenges, high attrition, and an increase in hiring needs, DART has reviewed both its existing recruitment and selection processes for needed improvements.

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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Their previous selection process was slow and long with many required approvals in the requisition and hiring process. Background checks took a relatively long time, as did onboarding and initial training. During the first few attempts to recruit, in 2021, DART lost two-thirds of new hires by the start of training. DART evaluated the situation and concluded they needed to find a way to complete their application and selection process in half the time. To accomplish this, they worked with their medical compliance department and background check vendor, re-analyzed their requisition process for redundant efforts, and ultimately cut time in half for hiring. One DART employee interviewed believes these improvements in the application and selection process may have been one of their most successful accomplishments as a result of COVID-19 challenges.

Training

In 2020, DART’s Bus Operations trained 1,408 bus operators. The training staff includes eight training supervisors, two temporary training supervisors, and 37 bus operator instructors.243 The Bus Operations department has its own training department and delivers training “in-house.” Courses taught are shown in Table A-1.

Human Resource, Bus Operations, and the training departments all work together for the onboarding process. Normally, the bus operators spend a day at DART for departmental information sessions. The local union orients the new bus operators, emphasizing that the role of a bus operator is a career and not “just a job” and explaining DART’s employment benefits as well as ATU membership benefits. Starting on day two, they proceed to the training facility to begin classroom training with the training supervisors and instructors.

A challenge for new hires at DART sometimes involves familiarity with using technology for communication. Many of the newly hired bus operators are not accustomed to using email, so their consistent use of the technology is a challenge that is especially problematic since critical information for their employment is distributed regularly via email. Training on the use of these technologies and tools and emphasizing their importance are part of the onboarding process.

Table A-1. DART bus operations training courses.

Course Name Topic(s) and Timing of Delivery Average Annual Bus Operators Trained
New Operator Training 7-week program for Big Bus and Smart Bus Operators. 250
Collision Avoidance Courses Provided to bus operators after preventable accidents. 150
Return to Work Training Provided to bus operators having been classified as absent for 30 or more days. 160
Advance Customer Service Training Provided over 2 days for bus operators with three verified conduct complaints. 25
Refresher Bus Operator Training Courses Review of basic knowledge of bus operations policies and regulations; topics include 5-Star Customer Service, defensive driving, fatigue awareness, de-escalation, disability awareness sensitivity training, and dispatch. Required at least once every 2 years for all bus operators. 500

Source: DART. “FY 21 Business Plan.”

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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Mentorship is not a formal program offered by DART for bus operators, but they do offer programs to support bus operators informally such as the DART 5 Star Service Program244 which provides support for bus operators. Bus Operators Attracting for Supervision is another program supporting bus operators in the past and DART anticipates starting again in the near future. A union representative interviewed expressed a collective interest in starting a formal mentor training program.

As of now, the training department handles any issues that may come up during the onboarding process. After onboarding and the initial training are successfully completed, new hires will often reach out to senior or experienced bus operators for informal mentorship. In an interview, one experienced bus operator said this informal mentorship is somewhat effective, but believes it could be better. An issue that sometimes arises occurs when a new hire reaches out to a bus operator who may not be the most qualified and/or experienced for mentorship purposes. Consequently, and despite good intentions, the new hire may not get the best information and assistance in dealing with on-the-job challenges. This could contribute to a potential issue in retention. As noted by one bus operator, the classroom differs from what a bus operator may experience on a route. One DART interviewee explained that a mentorship program could help remind and reinforce new bus operators about available resources.

Refresher training takes place for both new and experienced bus operators. Training is required after a bus operator returns from a leave of absence. Corrective action training occurs after an accident. The Learning Institute offered by DART is an online learning management system that is available to all employees. It provides training that includes videos, PowerPoint slides, etc., and tracks employee participation. Quarterly employee meetings provide training to address safety issues and opportunities for bus operators to learn about DART initiatives such as marketing campaigns, health and wellness programs, and police issues. Bus operators are paid at their regular wage rate while attending these meetings.

Safety, Health, and Working Conditions

Bus Operations at DART holds regular bus safety committee meetings. The committee is comprised of bus operators as well as representatives from the training, engineering, and safety departments. With input from all attendees, the committee keeps up on regulations as well as measures to ensure that things are in a state of good repair and safety concerns are addressed. The committee tracks and reports on safety concerns.

Bus operators may find their schedules a hindrance to healthy eating, and the nature of their job is sedentary. In an effort to support these health concerns and the workforce overall, DART has a robust Health and Wellness program to help support a healthy workforce. Perhaps the most notable wellness program at DART allows participating employees to earn points for their healthy habits and efforts, like routine physical exams, participating in a heart walk, joining a gym, and obtaining a flu shot. At the end of the year, the points are converted to cash with an annual $350 maximum payment per year. The Human Resources department provides education for the program. Wellness warriors are strategically included throughout the transit agency to spread the news about wellness and the program. There is over 80 percent participation in this wellness program.

Restroom access for bus operators depends on the route. Some routes have stops at the bus station which provides a convenient stop for a bus operator. If a line does not have a facility, the bus operator will call in and Report that they will be shutting the bus down for an emergency restroom break. Bus operators are provided with a list of businesses (that DART has an agreement with) for restroom access along routes. When business owners were reluctant to allow bus

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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operators to use their facilities during the COVID-19 pandemic, bus operators had to rely on personal relations developed with the business owners.

Breakroom areas where bus operators can take time to relax and gather information for their routes are provided by DART. Some facilities have kitchens where bus operators have the chance to prepare or heat food from home that can be healthier instead of having to rely on fast food options.

Interviewees indicated that route assignments are not really an issue in DART. Non-seniority bus operators tend to get mid-day and evening routes. Senior bus operators are usually provided with their first preference. According to one bus operator interviewed, this practice seems to be how systems work in most other transit agencies and is understood and accepted among bus operators at DART.

DART has an “open door” culture that helps to facilitate and enable communication between employees in various departments. For example, a bus operator interviewed for this study mentioned how he told the engineering and purchasing departments that they needed to consider various sizes of bus operators for new buses so that all bus operators could sit and operate the vehicles comfortably.

The union is proactive in helping to ensure bus operators have good working conditions including the need for greater police presence. Bus operators have complained about response time from police taking longer than normal to issues on buses. More assaults occur on buses than rail, since rail operators are inside a cabin while bus operators are more exposed.

Retention and Motivation

All interviews conducted for this case study indicated compensation and benefits are considered highly effective retention methods at DART. The career of a bus operator is not easy, and it can be the “little things,” such as acknowledgments, visibility of leadership, knowledge that they are heard, and surveys completed as part of employee engagement that really count the most for DART’s employees. After a recent survey where bus operators indicated they felt lacking in connection and input, Voices of DART Employees Matter (VODEM) began. This program sends monthly questionnaires to employees for their feedback. Every department under the Bus Operator Vice President has the opportunity to provide comments. Comprised of bus operations’ department managers and directors, the VODEM committee votes on the submitted recommendations or suggestions from operators, and the top five by majority vote receive a gift card for their feedback period. Each year, an initiative based on program input is completed and advertised. So far and according to one manager interviewed, the program has been a big motivator for employees of the department.

A challenge for bus operator workforce retention and motivation at DART is generational changes. The career of a bus operator is mostly a one-dimension type of job which is often a challenge for young people, today. One approach to this challenge has been to emphasize to younger bus operators how important the role is in providing service. With this approach, it has been observed that they begin to take ownership of the role.

Another challenge for retention is the large number of retirees. At the end of 2021, there was a very large number of retirements. This, coupled with the difficulty of retaining younger employees, was a big challenge at DART. New hires believe they understand the demands of the bus operator until they get into revenue service, and then many realize it is not for them. One interviewee stated that the majority of new bus operators are young, and they are not ready or prepared for encounters as bus operators in a big city. The large number of retirees also means fewer potential informal mentors.

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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Fairmont-Marion County Transit Authority, WV

FMCTA was chosen as a case study location because it was cited as an example of best practices during our stakeholder interview with the National Rural Transportation Assistance Program. The general manager responded to our survey and provided answers that met our case study criteria for recruitment, application, selection and onboarding, training and development, and compensation.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service Full-time Operators (Fixed Route and Paratransit) Part-time Operators (Fixed Route and Paratransit) Union Status
Rural, university FTA Region 3 (Delaware, District of Columbia, Maryland, Pennsylvania, Virginia, West Virginia) Directly Operated Directly Operated 50 or fewer 50 or fewer Bus operators not represented

FMCTA is a small transit agency serving a rural area in the northern part of West Virginia. FMCTA operates 14 fixed service routes Monday through Friday with only limited Saturday service. FMCTA employs 22 full-time bus and paratransit operators and 3 part-time bus and paratransit operators. Twelve of these operators run fixed-route service and the other ten operate paratransit service. The transit agency has a ¾ mile radius within which they provide paratransit trips. They also provide “dial-a-ride” for destinations that are farther than the ¾-mile limit.

Workforce Needs Assessment

Because of the size of FMCTA, workforce needs are more immediately obvious without a formal workforce needs assessment process. The transit agency hires on the basis of apparent need. If the transit agency is not able to provide all of the paratransit rides that are requested, for example, they know that they need to hire more bus and paratransit operators. The population of bus and paratransit operators is fairly fluid at FMCTA and they may switch roles periodically, which provides some flexibility for the agency in providing trips.

Recruitment

To recruit new bus and paratransit operators, FMCTA uses newspaper advertisements and has also placed ads on Facebook. According to an interviewee, newspaper ads have become less effective over time, and Facebook ads have been a more reliable recruitment tool. The transit agency also relies on word of mouth for recruiting bus and paratransit operators. The receptionist area at the transit agency headquarters serves as a recruitment tool as applications are clearly displayed for visitors to take.

FMCTA has several populations from which they primarily recruit. In addition, the transit agency attempts to hire residents of the county that they serve because this benefits the tax base for the county. FMCTA has done well recruiting from the veteran population and 25 percent of the operator workforce is composed of veterans. The transit agency has also been able to recruit some

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former employees of Fed-Ex or UPS because they can offer similar wages. Many of the bus and paratransit operators at FMCTA were school bus drivers that transitioned to the transit agency.

In general, the transit agency has not had much difficulty recruiting and hiring new bus and paratransit operators primarily due to the pipeline from the school system to the transit agency. However, an interviewee indicated that there are fewer people looking for jobs, especially part-time jobs. To address this, the transit agency has transitioned toward a workforce primarily of full-time bus and paratransit operators.

Compensation

FMCTA provides a competitive wage for the area according to FMCTA management. This has served as a recruitment tool, especially for people working other driving jobs. The wage structure may also benefit retention because there is no top-pay level. Instead, bus and paratransit operators receive a $0.10/hour increase every 5 years, an annual increase of $208 for a full-time operator.

The benefits offered by FMCTA are also competitive. Benefits are explained in detail in a guide as well as in the drivers’ manual, both of which are given to bus and paratransit operators when they are hired. Health insurance is mostly paid in full for operators, so the individual costs are low. Additionally, if a bus or paratransit operator has a separate source of insurance and therefore does not need insurance from the transit agency, the operator is paid back annually several hundred dollars from the savings gained by not providing insurance to that operator. The transit agency will also pay back an operator for any unused vacation days at the end of the year, providing 8 hours in pay for each vacation day. Part-time operators, however, do not receive benefits or vacation days.

FMCTA also offers several bonuses for their employees. At Thanksgiving, the transit agency gives each full-time bus and paratransit operator a bonus of $520 and an additional $50 for each year that an operator has worked at FMCTA. Part-time operators receive $260 and an additional $25 for each year of work. There is an additional bonus given at the end of the fiscal year if there are available funds left over in the budget. At the end of FY21, for example, operators received $0.75 for each hour worked. In the past, the amount had been as much as $1 for each hour worked. That amounts to $2080 a year for a full-time operator.

Hiring Processes

FMCTA uses a paper application for bus and paratransit positions. These can be picked up at the transit agency offices or a digital copy can be downloaded from the transit agency website. Once filled out, applicants must submit a hard copy of the application to the transit agency. For the most part, FMCTA hires one applicant at a time and there is no backlog of applicants.

Once an application is received, reviewed, and found to be acceptable, FMCTA conducts an interview and gives the applicant an overview of what the transit agency expects from its operators. Applicants that have a CDL or prior driving experience are more likely to be hired.

Training

When hiring an operator without prior driving experience, FMCTA uses a guide provided by the state Division of Public Transit development to structure the training. The Division of Public Transit is the state administering agency for all federal and state programs relating to public transportation. It is also the designated state organization for FTA funding.245 The guide

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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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provides an overview of the material that should be covered during classroom training, which FMCTA does in-house. The transit agency has two Passenger Service and Safety (PASS) certified trainers, who provide PASS and wheelchair securement training. FMCTA also uses training from the Community Transportation Association of America (CTAA).

After the initial classroom training, new operators are paired with a senior operator who provides informal on-the-job training. Senior bus operators are selected to provide the on-the-job training based on how responsible the transit agency feels they are and how qualified they are to provide the training. Bus operators are paired based on whether they have been hired primarily for paratransit or fixed-route service. The length of time that a new operator spends with the senior operator varies but is generally around 2 weeks. The length of on-the-job training depends on the level of experience of the new operator and how frequently the operator and senior bus operator can be paired based on schedules. The senior operator demonstrates practical skills to the new operator, such as how to tie down a wheelchair. For this initial training period, regardless of whether the new operator was hired to provide fixed route or paratransit service, the operator provides paratransit rides as these are thought to be less stressful for new operators due to the limited number of passengers and the absence of a fixed route timetable.

FMCTA provides refresher training courses annually. The state mandates a certain number of hours of training that an agency must provide per year. To fulfill the number of hours of refresher training provided annually, there are topics to choose from that are provided by the state and the FMCTA makes a choice based on what they feel operators would benefit most from. As a result, the subject of refresher training changes from year to year and is facilitated by an outside trainer, often provided by the state or requested from CTAA. FMCTA also provides training to ensure that operators maintain their certifications in CPR and first aid by providing refresher training on a semi-annual basis.

FMCTA also provides individual training to operators if there is a need. Management will review footage from the on-board cameras if the transit agency receives a complaint about a particular operator. If issues are observed, the operator will be given training to address the behavior.

To provide these training programs, FMCTA relies on monetary assistance and resources from a variety of sources. The state provides training programs for FMCTA, including the first aid program mentioned above, and helps to arrange additional training programs. For example, the state may send out a trainer to deliver a defensive driving training course. FMCTA also utilizes online programs from their workers’ compensation insurance provider and the third-party administrator of the state’s Medicaid funds, Modivcare. In addition, Marshall University, a public university in Huntington, WV has given FMCTA some federal dollars for training in the past, depending on how much funding the university received that year.

Trainers at FMCTA are trained by CTAA, the National Rural Transportation Assistance Program (RTAP), or the state. The state provides training, through contracts with organizations that specifically provide transit training, such as RLS & Associates, Inc. Generally, regardless of the organization providing the training, trainers are sent to FMCTA to provide the training on-site.

Safety, Health, and Working Conditions

FMCTA tries to be responsive to operator feedback regarding working conditions. At one point, the transit agency had a comment box for operators, but it was rarely used because operators already have and make use of more direct and informal communication with management. If an operator has a complaint, they bring it to management; this practice has become part of the workplace culture. One example of operator input can be seen in the uniforms that FMCTA operators wear. Operators requested jeans and polo shirts, and this became the required uniform. Rather than providing traditional uniforms, FMCTA will buy jeans and boots for the operators.

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In response to the pandemic, FMCTA initially installed shower curtains around the driver compartment on fixed-route buses and used plexiglass for paratransit rides for a COVID-positive passenger. FMCTA then partnered with neighboring transit agencies to get plexiglass permanently installed on all of the buses.

Retention and Motivation

FMCTA has several programs that are designed to demonstrate appreciation for the bus and paratransit operator workforce. These programs cultivate an atmosphere of community and camaraderie. Each year around the time of Thanksgiving, FMCTA arranges a dinner at which the annual bonuses are awarded. When the current general manager was hired, these dinners were held in FMCTA facilities, but he decided to move the dinners to a restaurant to provide a more special experience. During the summer, FMCTA arranges other events for operators. This may be a lunch, an ice cream social, or a group activity. Other, more informal, events are held at various points throughout the year and are usually arranged by the operators themselves. According to an interview with management, the group of operators is a tight-knit community.

FMCTA has purchased several disused buildings nearby to the main headquarters that were owned by the state. One of these buildings had been an apartment building, which the transit agency refurbished and, at the time of the interview with FMCTA management, was housing four employees. FMCTA only collects enough rent from these employees to cover the utility bills. Although the transit agency does not advertise this program, there is a consistent turnover of residents. Once an operator has saved up enough money, they generally move out to a new apartment; some have even bought a house. This frees up an apartment for another employee, generally an operator new to the job or going through a period of hardship.

Greater Cleveland Regional Transit Authority, OH

Greater Cleveland Regional Transit Authority (GCRTA) was chosen as a case study because the transit agency scored high on our selection criteria in every study topic area except recruitment. For example, GCRTA received high scores based on survey respondents’ indication of their successful experience using workforce needs assessments to plan for impending changes to their employee base. Survey respondents from GCRTA also pointed to success with a customized applicant selection tool that we would like to learn more about to determine if that approach is replicable for other properties. Finally, survey respondents indicated success with training and development offerings, including their regular post-onboarding training opportunities, mentorship program, and a temporary CDL training program partnership with a local community college.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service Full-time Operators (Fixed Route and Paratransit) Part-time Operators (Fixed Route and Paratransit) Union Status
Large Urban FTA Region 5 (Illinois, Indiana, Minnesota, Michigan, Ohio, Wisconsin) Directly Operated Directly Operated and Purchased 1001 or more 50 or fewer ATU Local 268
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Suggested Citation:"Appendix A - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2023. Bus Operator Workforce Management: Practitioner’s Guide. Washington, DC: The National Academies Press. doi: 10.17226/26842.
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GCRTA’s human resources division is comprised of three departments: Human Resources, Labor and Employee Relations, and Training and Employee Development departments. The division’s 2021 planned budget for the three departments was $7.6 million, an 8.4 percent increase over the 2020 budget allocated to the department. The human resources division is staffed by 57 personnel with 17 in the human resources department, nine in the labor and employee relations department, and 31 in the Training and Employee Development department.246

Workforce Needs Assessment

The human resources department conducts workforce forecasting analyses using tailored spreadsheets that determine how many employees are eligible for retirement based on the number of years they have been in their positions as well as their age. With this information, the GCRTA can predict, with some level of reliability at least to the level of probable retirements, how many job openings will most likely occur each year and thus can plan for budgets and operations.

In addition, GCRTA collects data to track bus operator training and learning opportunities and measured job performance and then uses the collected data to determine the skills that need to be reinforced through retraining.

Recruitment

Similar to other transit agencies in our research, GCRTA has faced challenges in recruitment efforts over recent years. To address these issues, GCRTA has incorporated some new strategies, including addressing the issue of CDL requirements, partnering with outside community organizations, and strengthening internal coordination between transit agency departments.

Interviewees indicated that GCRTA has adopted an approach of eliminating barriers that drive people away from becoming bus operators to help with recruitment efforts. Obtaining a CDL is a common pinch point for recruiting new bus operators who lack this certification, so GCRTA has taken steps to help potential bus operators obtain a CDL. For example, GCRTA relaxed requirements for recruits to have a permanent CDL to be hired. Additionally, the transit agency partners with the local Cuyahoga Community College (Tri-C) to provide temporary Commercial Learners Permit classroom (CLP) training. After the new hire obtains their CLP, the transit agency trains bus operators to receive their permanent CDL.

GCRTA frequently partners with community organizations to recruit new bus operators. For example, it works with Cuyahoga County’s workforce development agency to funnel skilled craftspeople into the transit agency’s application process. In response to the COVID-19 pandemic, GCRTA also expanded outreach to and partnerships with existing community partners to conduct virtual and in-person job fairs.

Better coordination between GCRTA departments is another strategy the transit agency is using to manage recruitment. Specifically, it states the need to “continue cross-functional collaboration” between Human Resources, Operations, Office of Management and Budget, and Marketing to improve recruitment and retention for several positions, including bus operators.247

Interviews with GCRTA employees indicate that outside of internal transit agency coordination, the local union currently has limited involvement in bus operator recruitment. However, interviews with union leaders indicated their desire to be more involved in the recruitment, hiring, and onboarding processes, based on their awareness of successful outcomes in other transit agencies who have partnered with their local unions for these purposes.

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Compensation

While GCRTA has a structured pay scale for bus operators, they are looking for ways to improve their competitive edge in the current market to attract and retain these employees. GCRTA currently has a six-step pay scale and is considering how to lower the steps to move up pay scales or increase dollar amounts at each pay scale to make starting wages more competitive with the current market. Previously, benefits were not available until the 6-month employment mark for all bus operators, but the transit agency recently lowered the period down to 60 days.

The GCRTA human resources department considers part of their responsibility to educate potential employees about total compensation, which includes not just informing employees on wages, but also how benefits are also a part of compensation. Their total compensation educational approach includes informing employees on how benefits can prepare them for retirement, how to make payments toward children’s future educations, and upward mobility opportunities within the transit agency.

Another way GCRTA is looking to improve its competitive edge for employee compensation is to offer non-traditional benefits like tuition reimbursement after 6 months of employment. They are currently requesting a budget increase for 2022 for that program.

Hiring Processes

Testing and assessments are widely used tools in transit agencies to identify individuals who potentially will be a good fit for the bus operator position. GCRTA has taken steps to refine its testing processes and is looking to further refine the process to also help target and improve training offerings.

GCRTA uses a customized pre-hire assessment test for bus operator candidates. They work with a testing vendor that developed an employability assessment validated specifically for GCRTA. The vendor provides an off-the-shelf test, but GCRTA felt they could develop a more comprehensive understanding of whether potential bus operators would be a good fit in the transit agency. Thus, together with this vendor, the transit agency determined success factors for good bus operators and created a test that allowed the transit agency to determine the specific points at which potential trainees do not make it further through the hiring process (e.g., criminal history background check, customer service skills). The use of this assessment tool in the hiring process is annually included in the transit agency’s operational budget.

To maximize resources and minimize budget expenditures, GCRTA is also currently working to tie the results from the assessment, described above, to broader retention issues in the hope that early identification of potential challenges among individual bus operators may help to target training efforts in particular topic areas.

While union representatives speak to new hires about their role during new hire orientation, there is a sense that new bus operators do not fully understand the union’s role. Union leaders interviewed during the case study indicated that additional union input in the orientation process will help new hires understand union membership and benefits, and could help in overall transit agency retention efforts, as well.

Training

GCRTA is an industry leader in training and development due to its partnerships, career ladder programs, leadership and efficiency improvements, and a union-led mentorship program.

In addition to partnering with Tri-C on the temporary CDL program, GCRTA partners with the educational institution as part of their community training and development Access Centers model. According to Tri-C’s website, Access Centers offer a range of services, like workforce

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success courses, basic computer skills, adult diploma programs, and English language courses, to provide low and no-cost educational and workforce planning.248

The transit agency has a robust culture for career ladders and considers promotional opportunities within the company to be a key driver of retention. According to one interviewee, “I want us to adopt a learning mindset. The basic foundation is that people come in with the intent of progressing within the organization. If I can say 50 percent of our workforce is promoted within the organization, that’s something to brag about.” Bus operators are GCRTA’s largest source of promotional opportunities. Therefore, they regularly assess how upcoming promotional opportunities will be filled by internal candidates by determining the promotion rate from within the company that leads to internal opportunities. Currently, about 45 percent of the workforce is promoted within the company.

New leadership in the training department sought to find more efficient ways to deliver training. One way the department improved efficiency was by conducting a survey of the average length of time other transit agencies use to train their bus operator workforces. Using the results of the assessment as a benchmark, GCRTA cut training time down to the industry average of 9–12 weeks. Additionally, they use safety statistics to ensure that important training processes critical for operation are not cut out from the program.

Lastly, GCRTA funds a mentorship program that is led by the union. The program is an emerging practice and has only been in place at GCRTA since 2020. The transit agency is working with the International Transportation Learning Center on the program. While the program is viewed as a tool for retaining employees, it has been a challenge to scale the program because it may require a bus operator selected to manage some aspects of the program to spend up to two-thirds of their time on the program that they otherwise would be spending on the road. The mentorship program currently focuses on bus operators in the first 5 years of their career but in the future GCRTA hopes to expand participation to those who have been on board longer to reduce burnout. From the union’s perspective, the mentorship program allows for a non-traditional approach to the first days of employment in which bus operators learn about not only skills reflective of basic job tasks but also skills that support and promote the transit agency culture. For example, new hires learn the transit agency’s general cultural expectations and behaviors such as greeting colleagues, making eye contact, and shaking hands.

Safety, Health, and Working Conditions

As part of the 2020 budget book, GCRTA reported results from a series of assessments to determine progress in meeting its long-term strategic objectives. One method the transit agency uses to address performance management is to conduct employee satisfaction surveys. The most recent survey for which there is publicly available data, conducted in May 2018, results indicated that bus operators cited “opportunities to weigh in on new vehicle or vehicle update decisions” as an area for transit agency improvement. Overall organization-wide results led the transit agency’s management to pursue the following engagement initiatives:249

  • Frontline supervisor training and development program
  • Labor relations training
  • Health fairs
  • Involvement of frontline bus operators in bus design and procurement
  • “Mystery shopper” ridership program to better understand the customer experience
  • Customer service trainings

GCRTA has taken steps including the development of an employee resource group and leadership fostering a team approach to help improve the bus operator’s work environment where morale is considered low.

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A women’s employee resource group, Elevating Women Together, was formed in 2020 by 10 women across GCRTA to serve as a support group. The group provides professional development, trainings, and casual conversation opportunities for women from different parts of the company. It is a grassroots, employee-led effort that has support from executive leadership.250

There is a sense among the organized workforce that new leadership at GCRTA is actively fostering a culture of teamwork to accomplish shared goals. Meetings between labor leaders and the 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 feel included in and are an integral part of management conversations and considerations.

Retention and Motivation

GCRTA is taking a wholistic approach of internal improvements and collaboration to retain bus operators and maintain effective service in the current competitive job market.

New leadership in several key management positions has driven a transit agency-wide emphasis on a culture of learning and change management. In an interview, the GCRTA CEO stated that “in order to better serve the community, we have to be willing to seek better versions of ourselves internally first.”251 Among the ways to do that, in her view, are to foster in employees the mindset of being willing to give knowledge to others in the organization and to prepare the next generation.252

According to one interviewee, GCRTA’s goal as reflected in these new management positions is to marry the organization’s strategic initiatives with the workforce by emphasizing employee engagement and breaking down internal company silos. To do this, new processes have been put in place to help employees see how their roles support specific task items related to the organization’s strategic plan. According to the interviewee, “I know what the CEO wants to be done and all deputies have initiatives that drive the CEO’s plan.”

As one interviewee stated, “it’s not enough to increase the number of hires and not change the things about the organization that are driving people out.” To improve retention, GCRTA implemented a regular focus group of managers from each department to hold difficult discussions about what was causing bus operators to leave. According to this person, “when we started having difficult conversations, it was hard to deny that we aren’t all participating in the problem.” One of the issues uncovered by the group was that bus operator scheduling was a major cause of turnover. Bus operators go straight from 40-hour training weeks to regular shift days lasting as long as 14 hours. Recognizing this, GCRTA is looking to implement a “reserve board” that would allow union dispatchers to create customized runs of 40-hour/week schedules in the interim phase before bus operators are eligible to vie for their preferred routes.

New Jersey Transit, NJ

New Jersey Transit (NJ Transit) was chosen as a case study location due to information gathered through the survey and focus group discussions. A representative from NJ Transit participated in the focus group discussions and provided insights on that transit agency’s effective practices on workforce needs assessments, which have changed somewhat in response to the COVID-19 pandemic. Based on the focus group discussions and survey responses from that transit agency, the research team was also interested in diving deeper into NJ Transit’s hiring practices, training and development, compensation, and work schedules and working conditions. For both hiring practices and training, the transit agency listed a blend of technology and “human touch” approaches that have proven effective for them.

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Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service Full-time Operators (Fixed Route and Paratransit) Part-time Operators (Fixed Route and Paratransit) Union Status
Large urban, small urban, statewide FTA Region 2 (New York, New Jersey) Directly operated and purchased Purchased 501 to 1000 50 or fewer ATU Locals 880, 823, 821, 824, 819, 825, 822, 540, 820

NJ Transit provides service across the entire state including several urban areas (Newark, Jersey City, Elizabeth) as well as to New York City, NY. NJ Transit has 2,221 buses on 253 bus routes as well as 12 rail lines, providing almost 270 million passenger trips per year.253 Bus operators at NJ Transit are represented by several ATU locals. For this reason, there is a state council of elected representatives that acts on behalf of these locals in the relationship with NJ Transit.

Workforce Needs Assessment

NJ Transit determines the target size of the workforce through a formula based on the number of service hours that the transit agency operates (above 6,000,000 hours per year) divided by the number of hours a full-time employee works in a year, taking into account factors like absenteeism.

Bus operator staffing levels are reassessed every quarter using current numbers of service hours as the number of routes that need to be filled and the average number of people out sick fluctuate. The Human Resources Department uses a 4.5-percent absenteeism factor and may increase the percentage based on the number of bus operators out for more than 30 days to help determine the number of bus operators the transit agency needs to hire in that quarter. Numbers can vary a lot throughout the course of a year.

In our 2022 interviews, NJ Transit management said that absenteeism was especially high due to COVID. The absenteeism factor used in the workforce needs assessment formula grew from around 4.5 percent in the years prior to the pandemic to 13.5 percent in 2020/2021. This meant that NJ Transit would have needed to hire 9 percent more bus operators in 2021 than prior to the pandemic to maintain the same levels of service.

Recruitment

Recruitment efforts at NJ Transit, like most transit agencies, have become more crucial as increased retirements have coincided with a labor shortage, creating a larger number of vacant positions. The transit agency has the common difficulty of competition with delivery companies for drivers, somewhat exacerbated by the proximity of a busy port. New Jersey has one of the busiest ports in the world, which means that trucking is a big competitor as well.

One recruitment effort that worked well for the transit agency was directly contacting CDL holders. Because NJ Transit is a state agency, they were able to get addresses for all the CDL holders in the state. The transit agency mailed out postcards to let CDL holders know that NJ Transit is hiring and offering a bonus to new employees that have a CDL.

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In 2022, the ATU State Council started to work with NJ Transit to initiate a new recruitment effort in which union officers go out into communities and hand out flyers with information about the good union jobs offered at NJ Transit. At the time of our interviews with the state council, the state council chairman was in daily contact with upper management at NJ Transit; this recruitment effort is the product of meeting with management and proposing the idea.

Compensation

As of March 2022, new bus operators at NJ Transit made $22 per hour and reached the top pay level of $33 per hour after 4 years of employment. This change brings the bus operator starting hourly wage close to the statewide median hourly wage of $23.17.254 According to the ATU State Council, the Council’s goal is to reduce the time to reach top pay from 4 years to 3 years. New bus operators are more focused on the hourly wage than other aspects of compensation and this change will make the job more attractive to prospective applicants.

NJ Transit offers a compensation package that includes several types of incentives to attract and retain bus operators. The first is a $6,000 hiring bonus for applicants with a CDL and $3,000 for applicants with a CDL permit. To incentivize operators to stay with NJ Transit, half of this bonus is paid 6 months after the date of hire and half after 1 year of employment. The transit agency also offers a perfect attendance bonus, awarded every 6 months.

The benefits package at NJ Transit was described as comprehensive by interviewees and includes 401k, a defined benefit pension, full medical and dental insurance, and an eyeglasses program. Employees learn about the suite of benefits during the orientation program. Although the transit agency employs about 100 part-time bus operators, the benefits package is only available to full-time employees.

Hiring Processes

The application process for a bus operator position at NJ Transit begins online. The transit agency posts its applications online on its website. Prospective applicants often link to this page from Google or through advertisements on LinkedIn. They may also access the link after seeing it advertised on a billboard or bus.

Due to the COVID-19 pandemic, NJ Transit began conducting interviews virtually. During the interview, the applicant is assessed in English fluency and reading comprehension. This takes the place of a more formal assessment test. In addition to soliciting responses from the interviewee, the interview is a chance for the transit agency to provide more information on the next steps in the onboarding process, should the applicant be selected. With this goal in mind, the interview time was recently lengthened from 45 minutes to 1 hour.

Prior to the interview, an online information session is conducted with the applicant. The information session is an hour in length and provides applicants with a realistic description of the job and responsibilities, as well as the type of schedule they can expect when first employed.

Online, rather than in-person, interviews have their benefits and challenges. One of the challenges that came up during an interview with NJ Transit management is that there is a loss of personal rapport with the applicant and that it can be more difficult to communicate the next steps and instructions in the onboarding process. One of the challenges that the information session and the longer interview time attempt to address is a frequent lack of follow-through from applicants in filling out online forms and submitting them electronically. This difficulty may be due to an applicant’s lack of access to the technology or the skills required. Clear explanations have made a difference. A new union recruitment effort may also help because it involves distributing flyers that will have a phone number that applicants are directed to call if they have any questions.

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Training

All new full-time bus operators at NJ Transit will attend a 21-day or 25-day training program, depending upon their assigned garage. New bus operators will become proficient on NJ Transit equipment as well as transit agency policies, procedures, and applicable State and Federal law. If new hires do not possess a Commercial Drivers’ License (CDL), they are provided with training to prepare for the test; additionally, training is offered to potential bus operator candidates who require a CDL permit prior to being hired. New bus operators must have qualifying documents on Day 1 of Training. They then take a road test with the New Jersey Motor Vehicle Commission (NJMVC) on Day 10 of training to obtain their CDL.

NJ Transit Operational Training covers numerous topics including defensive driving of the transit agency’s fleet of buses, fare collection, serving customers with disabilities and ADA law, policies and requirements, and customer service. According to interviewees from NJ Transit management, the breadth and scope of the training make it successful. The program teaches important driving techniques; for example, they cover how to safely manage the driving environment, review the proper turning sequence for right and left turns, and review emergency procedures.

All instructors started out as bus operators. Interviewees felt this makes a positive difference in how they teach and relate to the new bus operators. Instructors can understand the complexities of the position and know how to teach about the entire range of job responsibilities and challenges that are involved.

In 2018, NJ Transit created the “Operator as Trainers Program” in which a select group of senior bus operators act as trainers for the last 5 days of training to help with wildcatting (i.e., route training) on lines. Interviewees felt that since the bus operator trainers are out on routes every day doing what they are teaching, they can effectively communicate the experience of driving the bus in the real world. The bus operator instructors are union members, and candidates for the positions are recommended by the union. NJ Transit management reviews the records of the employees on the list and either approves the list or asks for more names. This program enables NJ Transit to train more bus operators because it decreases the load on the training department staff.

Refresher training is offered on topics ranging from serving customers with disabilities and troubleshooting to defensive driving. Bus operators can request refresher training via garage management or garage management can request refresher training for a particular bus operator through Operational Training. Garage management can assist bus operators that need training by looking at customer complaints via Salesforce (NJ Transit utilizes Salesforce as a method of receiving customer feedback). The supervisor can send operators to classes such as Working with the Public, Serving Customers with Disabilities, or other courses that may serve to enhance skills. Garage supervisors know their bus operators and recommend refresher courses based on issues they are seeing. If a bus operator is assigned training as a result of complaints generated through Salesforce, this training is considered mandatory. In other cases, bus operators may come to management if they need information on certain subjects and would like to take a refresher course. NJ Transit provides a monthly calendar of refresher trainings that bus operators can request to take.

Some refresher training is mandatory for all bus operators. This includes new equipment training and new courses on important topics offered at each garage. An example given by an interviewee of the new courses offered is a course titled, De-escalation Tools for Operators. This topic is also covered during the initial operator training, but this new, in-depth course is being offered garage by garage and every bus operator is required to attend.

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NJ Transit offers various levels of defensive driving refresher training, and a determination on what training is required is made using a bus operator’s accident history. For example, Collision Reduction refresher training is assigned based on garage management’s assessment, using data on near-miss accidents or minor accidents; the intention is to strengthen skills to avoid future accidents. NJ Transit’s Accident Grading course is based on a point system. Every preventable or partially preventable accident is assigned a certain number of points. When the point threshold is reached, a bus operator must attend Accident Grading Day 1, which is a full day of classroom training. If a bus operator has a higher number of points, they are required to complete Accident Grading Day 1, followed by Accident Grading Day 2, which is one-on-one in the field with an instructor.

NJ Transit uses data from cameras on board buses to monitor incidents and concerns including following distance, maintaining safe speed, etc. The cameras used at NJ Transit have sensors to record the g-force of a hard brake, and the cameras’ software flags these incidents as an indicator for management to examine footage of a bus operator, looking for risky behaviors that could lead to an accident. Using reports provided by the camera system vendor, risk scores are assigned. Trainers work one-on-one with individuals with higher risk scores on a quarterly basis and customize training to correct issues that have been observed. This method has had good results; during an interview, NJ Transit management indicated that reports from the quarter following an individual’s training generally show at least an 80-percent reduction of points from before training to after training.

The belief that everything starts and ends with training was communicated to the research team during interviews with NJ Transit management. This approach is apparent in how training is prioritized. According to management interviewees, the training program is an integral part of the NJ Transit operating budget; in the event of budget cuts, training would not be affected. All training is done in-house by NJ Transit employees. NJ Transit plans for training needs by looking at the projected number of new hires and aiming for a 2:1 ratio of students to instructors. Additional instructors are currently being sourced to accommodate anticipated increases in operator hiring.

An interviewee stated that as of March 2022, NJ Transit had hired over 1,200 bus operators since 2018. Despite needing to increase capacity to hire and train such a large number of bus operators, interviewees from NJ Transit management stated that the standards of the training have remained critical to the training department and quality has never been compromised.

According to interviewees, some of the successful practices embedded in NJ Transit’s bus operator training stemmed from the transit agency’s involvement in the Transit Green Jobs Training Partnership. In 2010, NJ Transit became a partner of one of the Green Jobs grantees, the International Transportation Learning Center (ITLC). A skills gap analysis was conducted by the ITLC at NJ Transit and, as a result, the transit agency put part of its training funds into bus operator training with a focus on customer service, a strategy designed to increase Transit ridership. Based on the skills gap analysis results, NJ Transit created posters and flyers to reinforce the steps in pre-trip inspections and fare collection procedures that operators must perform on a bus.255 These changes and others are still in place today as part of the training program for bus operators.

Safety, Health, and Working Conditions

NJ Transit has been proactive in addressing issues with working conditions. For example, during the COVID-19 pandemic, the transit agency reevaluated all 200 directly operated bus routes. The routes were broken apart and reassembled to ensure that bus operators have sufficient time to complete the route and sufficient time between runs in which to eat, make a phone call, use the restroom, etc. This has helped to provide a better work-day balance and has improved on-time performance.

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The ATU State Council plays an important role in ensuring good working conditions for bus operators and is an advocate on behalf of its members for improvements that will address health and safety issues. NJ Transit recognizes this and collaborates with the ATU State Council to address safety issues. The union encourages bus operators to Report issues immediately by telling their direct supervisor and letting the union know so that the union can provide additional support. The union is also involved in the transit agency’s safety committee, which is comprised of union and transit agency members and meets monthly to go over any outstanding safety issues.

NJ Transit provides several amenities for bus operators that are designed to make the time between runs and breaks between shifts more comfortable and enjoyable. These include clean and well-maintained game rooms, quiet rooms, and lounges with vending machines, microwaves, and dining tables.

According to NJ Transit management, restroom breaks for bus operators are flexible. The transit agency has agreements with businesses along routes that allow bus operators to use their restrooms. Every bus operator receives a book that lists the available restrooms on all bus routes. Typically, a bus operator will wait until the end of the line as this is the most convenient option. However, at any point on a route, a bus operator can follow the required procedures and notify the control center that they are leaving the bus to use the restroom.

Retention and Motivation

NJ Transit management, like many transit agencies, has faced an increased number of employees leaving the job after only a short period and sees the need to focus on the retention of bus operators. The transit agency has several programs that address this goal. According to an interviewee, the most important factor in retention is making sure that bus operators feel that NJ Transit has their best interest at heart and is taking steps to reduce stress and create better working conditions.

NJ Transit management has worked to ensure that bus operators feel safe and that their complaints are heard and addressed. In response to COVID-19, the transit agency set up a barrier system, provided PPE, and had a mandated testing program. Because of these precautions, bus operators could feel confident that their co-workers were COVID-free and that they were protected from the wider public. Interviewees also stated that having clean, new, state-of-the-art equipment shows bus operators that NJ Transit cares about them and their working environment. The focus on training was also mentioned as a retention tool, especially training that gives bus operators the tools and skills to react confidently to difficult situations, e.g., such as the de-escalation training noted above. According to interviewees, the pay structure and pension are geared toward longevity. In addition, the bonus provided to CDL holders is a retention tool because it is awarded over time, as described above.

NJ Transit has recognized that the rise of assaults on bus operators affects retention negatively. Interviewees from management said the transit agency is doing all it can to address any complaints that bus operators have and to protect bus operators from assaults. The cameras on board buses are a way to help bus operators feel safer. In addition, the transit agency provides legal assistance to bus operators in the event of an assault. The safety committee recognized the problem that if a bus operator is assaulted and the perpetrator is arrested and taken to court, the bus operator is alone during the proceedings. NJ Transit now has a court advocate (an attorney) on staff to help manage those cases. If a bus operator is assaulted, they are contacted by the NJ Transit director of operations, human resources, and the court advocate to explain the court process and all the benefits available through the employee assistance program and determine if any medical outreach is needed. The court advocate then helps the bus operator prepare and appears with the operator in court. According to interviewees, this program has been very

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well-received. NJ Transit is also working to change legislation so that the transit agency is able to ban assaulters from continuing to ride.

NJ Transit also has retention programs that are fairly typical among transit agencies. These programs highlight bus operators’ achievements and recognize bus operators who have gone above and beyond the requirements of the job. Awards for service, safe driving, and Bus Roadeo contests are handed out at an annual banquet.

Pinellas Suncoast Transit Authority, FL

Pinellas Suncoast Transit Authority (PSTA) was chosen as a case study location due to information gathered through the survey and general research as well as availability of employees to participate in case study interviews. Survey results indicated robust responses from multiple sources across all topic areas. Respondents also indicated that PSTA was viewed positively by their community. Further discussion with labor experts who were familiar with PSTA revealed PSTA’s involvement in national-level professional organizations as well as innovative practices in response to challenges faced by many transit agencies across the United States. When contacted, PSTA immediately responded, and interviews were scheduled and completed within a week.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service Full-time Operators (Fixed Route and Paratransit) Part-time Operators (Fixed Route and Paratransit) Union Status
Suburban FTA Region 4 (Alabama, Florida, Georgia, Kentucky, Mississippi, North Carolina, South Carolina, Tennessee, The Commonwealth of Puerto Rico, the U.S. Virgin Islands) Directly operated Purchased 101 to 500 50 or fewer SEIU

PSTA originated in 1903 with a streetcar line that ran from St. Petersburg, FL, to Disston City, known today as Gulfport. Today, PSTA operates 40 bus routes including 2 express routes to neighboring Hillsborough County, maintains 4,379 bus stops, and operates a fleet of 220 buses with an average daily ridership of approximately 30,000.

Pinellas is located on the west central coast of Florida. It is the state’s most densely populated county and its population was 959,000 in the 2020 census.

Workforce Needs Assessment

Results from 2021 survey respondents indicated that internal surveys, focus group discussions, union and management gatherings, and a hired firm that conducts and scores employee engagement responses are all utilized as a part of assessing workforce needs at PSTA; and survey respondents indicated that on a scale of 1–10, these efforts rate as a 6 in effectiveness.

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With a goal of targeting numbers of bus operators needed for service in the short term, the Scheduling Planning, Human Resources, and Transportation departments collaborate to complete workforce needs assessment. Continual conversations occur between these departments to determine and target head counts by group. Routinely analyzed turnover data helps PSTA plan for future workforce needs. Forecasting out involves balancing timeline variables of when to launch a new hire class, anticipated graduation, and turnover rates. PSTA utilizes spreadsheets to help analyze and forecast so that new hires are ready to enter service when needed.

Recruitment

Recruitment in PSTA is generally conducted by its Human Resources department. Due to a changing labor market with increasing local competition and wage increases, recruitment has been completely overhauled in the last few years. Before 2021, PSTA’s recruiting tools included posting employment opportunities to the agency’s website and career websites (such as Indeed. com), sending promotional emails to local community organizations and workforce development organizations (such as Career Source, the local Urban League, and Pinellas Technical Community College) as well as attending job fairs. PSTA employed one recruiter for all departments. This single recruiter and methods for recruiting worked relatively well attracting qualified candidates for training classes.

In 2021, PSTA began to recruit and advertise more broadly. This new approach was facilitated by an innovative application tracking system that PSTA implemented. With only the click of a few boxes, PSTA could post to a wide variety of internet career sites, such as Monster. In using this new system, they were able to gain a broader audience.

Since Summer 2021, the human resources department has been working to broaden its recruiting efforts. It is investing more in recruitment than ever before. As part of this increase in efforts, it has worked with its Marketing Department to begin promoting and advertising in non-traditional ways including:

  • Media day, when local news reporters were invited to drive the bus and show how easy it is to learn. The news coverage from multiple media outlets generated more than 8 million views and tripled the number of applicants for the following training class.
  • Frequent regular and sponsored social media posts on PSTA’s Twitter, LinkedIn, and other branded sites.
  • Video advertisement of a “Day in the Life of a PSTA Bus Operator” created by an in-house videographer and made available by paid Google ads and YouTube ads, as well as digital streaming ads such as Roku and Paramount Plus.
  • 50,000 targeted emails were sent to local job seekers in April 2022 via local media organizations.
  • Bus wrap advertisements.
  • Advertisements on the interior of buses.
  • Advertisements on the PSTA headquarters property, visible to passing traffic.
  • Large, printed advertisements at bus stops and stations.

Of these new recruitment strategies, the media day, targeted emails, and digital streaming ads appear to be the most effective.

Additional recruiting strategies PSTA is also looking to implement include radio ads and, although costly, possibly, billboards. For the last two contracts between the bus operator union and PSTA, an increase in pay rate to remain competitive had been included as part of the contract negotiations, and another pay rate increase was added 6 months after the most recent contract negotiation with a special adjustment to address inflation. As of March 2022, PSTA bus operators were the highest paid in the state of Florida. Compensation will be covered in greater

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detail in the later sections. This competitive pay rate is also included in their advertising and recruiting efforts.

For future recruitment efforts, PSTA is working to further develop community partnerships through personal outreach efforts and thus transition from email distribution lists to closer relationships built with organizations who serve more broadly throughout the community PSTA serves.

As of March 2022, PSTA is hopeful that higher wages and new outreach methods will help reverse a recent decline in applicants. They have also added another recruiter who is solely focused on bus operators, which one interviewee felt was a very important investment. PSTA is getting more applications from drivers working at distribution centers who do not want to be involved in deliveries. PSTA also sees applicants from other fields such as retail, home nursing, restaurants, gas stations, and convenience stores. Many of the positions in these fields offer lower wages with fewer benefits.

Since the middle of 2021, PSTA has offered a referral award to employees who refer to PSTA new bus operators who make it through training and a 6-month probationary period. Four awards have been handed out so far, and the program seems to be taking off as rewards are handed out and the program gains increased visibility across the transit agency.

Compensation

The most recent union contract went into effect on October 1, 2021, and included step pay increases for all bargaining unit employees, including bus operators. Bus operators qualifying for top-rate pay (49+ months of seniority in the position) would receive 3.25-percent pay raises each year, reaching $27.55 in Fiscal Year 2024. This pay increase was initially viewed as favorable by all. However, frontline workers asked to return to the bargaining table in February 2022 when raises for PSTA administrative employees were viewed as not equitable in comparison to bargaining unit pay raises. With mounting pressure from SEIU union members attending PSTA board meetings, PSTA staff and union leadership met and mutually agreed not to reopen the contract and to waive bargaining as well in order to reach mutual agreement on additional pay adjustments in order to make the changes quickly and not draw out the dispute longer than necessary. After a unanimous vote by PSTA’s Board of Directors, PSTA’s top rate pay bus operators became the highest paid in Florida at $27.60 per hour effective February 2022. The second and third highest-paid top-line bus operators in Florida at that time include Fort Lauderdale at $27.58 and Miami at $27.21 per hour. The new structured wages deal boosted top-operator pay to nearly $30 by the end of the labor contract, going to $28.50 effective October 2022 and $29.43 effective October 2023. In an effort to retain bus operators, the new pay schedule will allow bus operators to reach top pay in 49 months rather than 55 months with a much higher starting wage, both of which help with recruitment and retention.256

PSTA conducts salary surveys on average every 3 to 5 years. Contract negotiations are held every 3 years and comparative salary survey data is available and utilized as part of those negotiations.

Benefits are offered to full-time PSTA employees. Benefits include medical, dental, and vision. PSTA is part of the state retirement program. Bus operators are provided with ten paid holidays including a birthday. Vacation accrual begins at 2 weeks a year and gradually grows to 5 weeks a year. Tuition reimbursement, or in some cases advancement, is offered. Life insurance as well as three medical insurance options are provided, with one offering a zero-cost monthly premium for a high deductible plan. Part-time employees are not offered benefits. There has been little interest in part-time work and, currently, there are no part-time operators.

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Hiring Processes

The PSTA bus operator job description provides details for how applicants will be selected. In addition to the listed job requirements, PSTA looks for customer service in any capacity and a stable job history in bus operator applicants. PSTA will hire individuals without their CDL and provide training for the required certification before new bus operators enter the field. Hiring without a CDL and providing training has greatly opened the applicant pool.

Applicant interviews at PSTA were conducted using an online meeting platform during the COVID-19 pandemic but have more recently returned to in-person interviews. No other assessment tests are used. The 30- to 45-minute interviews are usually conducted with a panel comprised of a representative from the Human Resources Department and a representative from the Transportation Department. During the interviews, a standard panel of questions is used relating to customer service abilities, safe driving, and decision-making scenarios that may be encountered on the road. PSTA also shares realistic job details including potential challenges such as schedules, strict attendance policies, and road challenges.

In the past, approximately 20 percent of candidates have dropped out of training due to a variety of reasons that include attendance, family reasons, difficulty with the CDL portion of training, and a better understanding of the job and realization that it is not for them. While it is not PSTA’s intent to scare away potential candidates, they want to provide a “realistic picture” of what the job entails so potential bus operator candidates have an opportunity to make an informed decision while minimizing PSTA’s training costs.

Job benefits including compensation details, health insurance, and retirement options along with the caring culture offered at PSTA are also explained during the interview for interviewee comprehensive consideration. Along with the interview, selected candidates must be able to pass a DOT physical, DOT drug test, and obtain a CDL-B permit with a passenger endorsement.

In addition to the number of bus operator applications declining, PSTA also recently realized many new hires were dropping out while waiting for training to begin. To overcome this challenge, PSTA initiated an Early Start Program which allows new hires to begin in a paid position like a paid internship immediately when hired. The program not only provides income to the new bus operator but also allows them to begin early training with work tasks that assist the transit agency but do not require as much skill as the bus operator position. Work experiences that a new bus operator in the Early Start Program may gain include route familiarization and customer service through ride-alongs with senior bus operators and face-to-face customer assistance with the public outreach team. Since PTSA began this new program, no one has dropped out between hiring and the start of training.

Training

Formal training at PSTA begins with instructing newly hired bus operators. After recently trying different approaches as a result of the changing job market, PSTA now offers a 10-week training process with 8 weeks of instruction and 2 weeks of on-the-job (OJT) training. The initial 8-week training combines classroom and on-the-road training with a focus on preparation for the CDL test. The last 2 weeks of OJT are on an actual route with an experienced bus operator. These experienced bus operators who support the new hires during their initial OJT receive an additional $1.75 per hour for the time spent with the new bus operator. One week of OJT had been tried, but PSTA found that 2 weeks helps build the required confidence the best. All new hires go through the complete initial training process regardless of whether they possess a CDL. There was consideration for shortening the training for CDL holders. However, many who

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possess a CDL may not have utilized their license in some time; do not have experience with transit buses, passenger engagement, customer service, or ADA knowledge; or if from another transit agency, are not familiar with PSTA standards and practices.

As part of their training program and as they begin revenue service, PSTA provides a formal mentorship program. After OJT, each new hire is assigned to a mentor as they begin their route assignment. The mentors come from the transportation supervisor’s group. Transportation supervisors are frontline employees who manage the day-to-day work on the road and are responsible for jobs such as radio, dispatch, scheduling, and road calls. The mentor is responsible for checking in on the new hire and providing pep talks as needed. This mentoring approach provides the new bus operator with a soft transition from training to being on their own. The mentor program does not end at a specified time, but rather when the bus operator gains comfort on their route. The mentor program is also available for bus operators who reach out for additional support at a later time after their formal mentorship is completed. These more experienced bus operators seeking help may be paired with another bus operator for a re-visit of OJT or with an instructor for more targeted training. Mentors are not provided with additional compensation.

Instructors also tend to stay involved with new bus operators at PSTA, often through new bus operator outreach back to the instructors. During one interview with a PSTA employee, their view was that the instructors do a phenomenal job developing trust with the new bus operators. The supervisors also work to gain the trust of the new bus operators. This sense of trust further helps to strengthen the training program at PSTA.

Refresher training is on an as-need basis and targets preventable accidents or repeated struggles.

In response to COVID-19 and related outcomes, changes in training have been required. Between a tight labor market and higher turnover rates, PSTA has tried to increase training capacity (now known at PSTA as Super Classes) to allow for more bus operators to begin sooner and to ensure that those who are hired are also retained beyond training. So as of the Spring of 2022, there were 20 participants per class rather than the previous 10. To accommodate for the larger numbers and need, an instructing team staff member has been added, training is now conducted in a larger room to accommodate for the larger class as well as for COVID-19 spacing purposes, and they have lengthened the training from 8 to 10 weeks to add more hands-on OJT. The Human Resources department and the Training Department worked together to make these changes happen.

Safety, Health, and Working Conditions

Health and wellness are robustly promoted at PSTA to help ensure a healthy workforce. In one interview with a PSTA employee, the success of health and wellness programs for bus operators is a result of effective leadership, a team-effort approach, forward thinking, and open mindedness. One of the biggest challenges PSTA faces is making bus operators aware of common health risks and the steps they can take to address them. PSTA works to keep the interest of their employees in health-related matters by staying “out-in-front” and helping them to have easy access to support and education for health and especially for related concerns for bus operators.

In response to a national survey that revealed transit workers have higher blood pressure than workers in most other fields, a blood pressure station is provided at PSTA. An annual biometric screening is conducted at PSTA, and gift cards are awarded to those who participate. PSTA partners with their benefits vendors for employee access to online health tools that provide health assessments, health-related classes and support, gym discounts, and video doctor visits. Online access to these health support services is especially helpful for bus operators who have challenging schedules.

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To further assist bus operators with weight management (an issue that can sometimes be a challenge with sedentary work), PSTA offers walking and weight loss challenges and prizes throughout the year. PSTA sponsors the purchase of a free or deeply discounted fitness tracker, and employees on the High Deductible Health Plan who participate in the PSTA fitness tracker group receive additional funds in their health savings accounts (HSA) for daily step and activity goals. According to a senior manager interviewed, the program has been running successfully for approximately 4 years. PSTA offers an on-site gym available for free to employees. The gym contains a combination of weight machines, cardiovascular equipment, mats, televisions, locker rooms with showers, and towel service. Outdoor fitness equipment along with an outdoor walking track can be found at PSTA. Filtered water stations are located around the transit agency campus. Signs with messages encouraging employees to use the stairs are around the transit agency. Other digital signs at the transit agency allow for health-related messages, such as current initiatives and challenge winners, to be shared to help maintain awareness and can easily be changed to remain current.

PSTA’s health insurance costs have increased 4.7 percent annually since 2018. In an effort to ensure insurance availability is sustainable for the long term, PSTA leadership regularly monitors and studies insurance quarterly reports. This analysis is then used to help select topics for PSTA to focus on for health and wellness promotion across the transit agency, to keep costs as low as possible, and to help their bus operator workforce remain healthy. PSTA’s health insurance broker assists employees with claim questions, including advocating for claims that have been denied by the insurance carrier.

The local union is involved in PSTA’s health insurance decision making as well. Union representatives are included in transit agency meetings about benefits and are participants on the health insurance procurement evaluation team. The involvement of employees in the process further raises health awareness. During open enrollment, insurance representatives are available at the transit agency to educate employees and show how to use their benefits better, which is something the transit agency has realized many bus operators benefit from.

PSTA considers safety for bus operators from multiple perspectives, including bodily injury prevention, crash avoidance techniques, on-board hazard mitigation, and equipment safety. The transit agency is also proactive in identifying potential threats to the safety, security, and well-being of bus operators and passengers. PSTA maintains safety committees and a system that allows and empowers any employee to identify and Report any hazard. Everyone is encouraged to Report hazards through injury prevention campaigns led by managers.

When incidents occur, PSTA is proactive from any lessons learned. Likewise, PSTA monitors and analyzes incidents in neighboring transit agencies to improve bus operator safety where needed as well. Examples of recent adjustments include the addition of defibrillators around the transit agency and enhanced gym safety. Other ways PSTA helps to ensure a safe working environment is to maintain first aid kits, ensure supervisors receive CPR training, and provide protocols to help facilitate quick responses. Open communication is encouraged at PSTA; supervisors and managers take the lead in ensuring that it is part of the transit agency culture. Union employees and PSTA leadership also communicate regarding safety, and PSTA management encourages union members to make their concerns known.

Route safety is an important consideration in PSTA. After any incident at PSTA, there is outreach to the affected bus operator. A half million dollars a year is invested in terminal security safety improvements which have included in recent years additional terminal security and patrolling as well as additional lighting and fencing which has been especially helpful for early morning and late-night shifts. PSTA provides training for bus operators on safety awareness that includes how to manage incidents. Surveillance cameras have played a huge role in deterring

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safety threats to bus operators and helping to analyze any security issues. Safety is monitored through monthly tracking of assaults as well as any major or minor incidents. If needed, PSTA will ban passengers who threaten bus operators and prevent them from trespassing on PSTA in the future. PSTA maintains good relations with law enforcement.

PSTA bus operations analyzes safety at a macro and micro level for slips, trips, and falls mitigation. At a macro level, the Transportation Department works quarterly with the Risk Department to review and analyze all data related to safety. From the analysis, a task list is created to address any indicated needs. At a micro level, any injury on the job must have accident paperwork completed which is reported to the Risk Department. Bus operations managers review each Report and determine what course to take going forward at that point in time. Equipment related to bus operations is routinely monitored for safety concerns.

According to an interviewee, there have been very few complaints regarding restroom access by bus operators in PSTA. A general rule for restroom access for PSTA bus operators is to find the next safest place to stop. A list of restrooms by route that PSTA has deemed convenient is distributed to bus operators. PSTA has a protocol for utilizing restrooms at an off-site location in which bus operators call in to dispatch before leaving a bus unattended, and if they are located in an area of concern, buses should be secured and turned off before the operator exits the bus. Operators may also access restrooms located in every terminal. All buses go through hubs owned by PSTA, and there is a layover area at headquarters where extra restrooms can be located. The union helps to ensure restroom access for operators.

Retention and Motivation

Retention is an area PSTA continues to work on. With a bus operator shortage across the United States and competition with other organizations, PSTA wants to attract good candidates while also ensuring that when a bus operator is hired, they will remain for a long time. To make this possible, and as earlier explained, PSTA has analyzed and made respective adjustments in recruitment practices, the interview process, training, and compensation.

PSTA feels employee recognition is very important as part of their retention efforts. Some employee recognition programs which include both recognition and monetary awards at PSTA include Bus Operator of the Quarter and Bus Operator of the Year. Longevity pay begins at 20 years of service.

As earlier explained, onboarding is a crucial part of bus operator workforce development at PSTA and, through careful analysis and attention, 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.

Retention of newly hired bus operators at PSTA is further enhanced with welcome packages. These packages are intended to let the new bus operator know the transit agency and the community appreciate them and to introduce them to the PSTA culture. As one interviewee mentioned, PSTA strives for a warm, welcoming, friendly, and caring culture, and it is the little things that sometimes mean the most when it comes to retention.

PSTA has also found that by providing amenities, such as sleep lounges, a 24/7 coffee station, a fully equipped gym with lockers and showers, a game room, and open markets for fresh food

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with multiple beverage options, along with softening the environment (e.g., cable TV, overstuffed lounge chairs, work stations, mobile device plug-in stations) makes employees feel more comfortable and that the work environment is safe as well as hospitable. PSTA hopes that by adding some of these extra features, it will demonstrate to bus operators, as well as frontline employees and administrative staff, that their well-being is a priority of the agency, which in turn may hopefully boost retention numbers as well as employee job satisfaction and employee engagement overall.

PSTA also utilizes communication as a retention strategy. Managers are encouraged to listen and partner with the local union members in productive ways to help each other. To seek input for retention purposes, the Human Resources Department conducts exit interviews and a triannual employee engagement survey.

River Cities Public Transit, SD

River Cities Public Transit (RCPT) is a small non-profit transit agency in central South Dakota serving small urban, rural, and tribal areas which includes the Pierre and Fort Pierre area and the surrounding eleven counties, as well as the Lower Brule and Cheyenne River Sioux tribes. Through cooperative agreements, RCPT provides medical rides to veterans living in the roughly 35 South Dakota counties classified as “highly rural.” The general public may also schedule rides. Additionally, RCPT is contracted to manage Yankton Transit, a separate transit agency with its own federal ID number.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service # Full-time Operators (Fixed Route and Paratransit) # Part-time Operators (Fixed Route and Paratransit) Union Status
Rural FTA Region 8 (Colorado, Montana, North Dakota, South Dakota, Utah, Wyoming) Directly Operated Directly Operated 100 or fewer 50 or fewer Bus operators not represented

Excluding Yankton Transit, RCPT employs over 70 full-time and part-time bus and paratransit operators. It provides over 300,000 trips per year. Its service is primarily comprised of demand response and pre-scheduled trips, but also includes some regularly scheduled routes that closely resemble fixed-route service. In its central area of service, which includes the city of Pierre/Fort Pierre and the surrounding area, RCPT runs service 24 hours a day, 7 days a week, including holidays, and operates in an area without formal school bus or taxi service, all of which add to its need to maintain a sizable and reliable bus and paratransit operator workforce.

Workforce Needs Assessment

RCPT uses a scheduling software system that optimizes rides for all demand response trips and scheduled trips. When determining whether bus operators need to be added to a shift, they pay close attention to the level of demand, including identifying peak demand times, their on-time

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performance, as well as firsthand feedback from transit agency dispatchers and bus operators. And because there is no school bus system in the area, they also factor in school calendars and, during the summer, youth programming to help forecast their bus operator workforce needs.

Recruitment

RCPT employs a marketing and media professional whose duties include advertising open bus operator positions on social media, online job boards, and through local workforce centers. In some of the smaller communities served by the transit agency, they also advertise in local newspapers. RCPT runs an incentive program with its bus and paratransit operators to bring in referrals. Employees receive $500 when a bus operator is hired and another $400 after the bus operator has been with the transit agency for 6 months. The transit agency’s Yankton operations (governed by a different board) offers double that amount. RCPT has also had some success bringing in retired state employees who could save on health insurance costs.

In the last few years, RCPT has made it possible to apply for driving positions directly through its website. RCPT does its own vinyl bus wrapping which allows them to advertise for bus operator positions on the buses themselves. The advertisements include a QR code that sends potential applicants to the transit agency website. The transit agency includes a QR code or its web address in all its recruiting advertising.

Compensation

Full-time bus and paratransit operators at RCPT receive paid individual health insurance coverage, dental insurance, and life insurance as well as a 3 percent match on a Simple IRA. According to interviewees, starting pay is competitive for the area, and time spent in training is paid. Starting pay is $17 an hour or up to $18.25 with full endorsements.257 The median hourly wage for all occupations in the state is $18.13.258 With headquarters in the state capital, RCPT makes every effort to make its benefits package competitive with the numerous federal, state, and local government jobs in the immediate area. As a non-profit, its employees do not qualify for the state employee’s retirement plan, for example, but government employees have to pay more out-of-pocket for health insurance than full-time RCPT employees. Starting in 2023, RCPT will implement a new retirement plan and double the employer matching contribution.

Hiring Processes

RCPT has a fairly standard, but informal, interview process; bus operator applicants are interviewed by a representative from human resources and by the transit agency’s “lead driver.” After the interview, in situations where both parties are still interested in moving forward, the bus operator applicant is paired with one of RCPT’s drivers for an hour of ride-along experience to get a better feel for the position.

Training

In response to COVID-19, much of a bus operator’s training was delivered online; this included training for new vehicle operators as well as many of the recertification trainings required for incumbent bus and paratransit operators. Initial training takes place during the new bus operator’s first few days on the job in the office and includes first aid and CPR, defensive driving, and Community Transportation Association of America’s (CTAA) Passenger Service and Safety (PASS) training. After that, the focus of training becomes more hands-on, allowing bus operators in training to interact with the vehicles, mobility devices, and with customers.

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After completing online and classroom training, a new bus operator will be paired with one of the RCPT’s more seasoned drivers to learn the bus and the bus operator’s tablet device for receiving fares and navigation. Then, the new bus operator spends time with the transit agency’s “lead driver” who rides with the trainee for several runs to act as a mentor and help them become familiar with the position. After a new bus operator has been out on their own for a week or so, the lead driver will again spend time on the bus accompanying the new bus operator to answer remaining questions, to assess the bus operator’s retention of training protocols and, to raise any safety concerns that come up. RCPT employs one lead driver who is paid a wage premium for performing these additional duties. In addition to the lead driver, RCPT has trained a number of its experienced bus operators based in various locations far from their Pierre headquarters to be trainers. This allows RCPT to respond agilely to any bus-operator-related issues, particularly around safety, which may arise in its outer service areas – it also allows RCPT to provide more one-on-one training and mentoring to bus operators hired to work out of these further-flung satellite hubs.

Re-trainings are typically recommended by a committee in response to an accident, incident, or customer complaint. RCPT applies for Rural Transportation Assistance Program (RTAP) funding to cover the bulk of its recertification trainings.

Retention and Motivation

RCPT’s approach to retention and motivation is to keep morale high among all its frontline workers and to foster a “family-oriented” workplace. One interviewee was quoted saying: “If there’s a ballgame, you go to it; if there’s an illness, you try to be with that person.” To accommodate bus and paratransit operators on all shifts, RCPT holds three safety meetings 1 day each month. The meetings are in-person at its Pierre headquarters and bus and paratransit operators based in satellite locations can participate via Zoom/MS Teams. The meetings allow management to go over issues and raise any safety issues, but they are also a forum for bus operators to share their own concerns and ideas with management. Food is provided at each of the safety meetings and for all locations. Feeding workers during meetings or at special functions is an important part of RCPT’s workplace morale strategy. RCPT 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, RCPT hosts a family picnic at a farm with trapshooting, games, and activities for children. The agency has also organized a number of fundraisers for bus and paratransit operators and their family members facing serious health issues.

Every year in July and August RCPT holds a “safety week.” It is designed to be a fun learning event where the transit agency brings in all their bus and paratransit operators and other employees from all of its locations and goes over everything they have learned and collected throughout the previous year related to driving and safety, including any new types of wheelchairs or chair securements or new technologies among other issues, and they put on their own internal “Bus Roadeo” event. Bus operators are given the chance to work with any new equipment and compete in the Bus Roadeo against their peers. Additionally, RCPT allows bus operators and dispatchers to compete in each other’s events. For example, dispatchers are given the chance to drive the roadeo course and to compete in timed events, such as securing a wheelchair—this helps create a level of awareness between bus and paratransit operators and dispatchers so that, in this case, dispatchers better understand how long the processes are for drivers transporting an ADA passenger. The roadeo and safety week then culminate in a company picnic open to all employees and their families. Prizes are awarded to top performing bus operators. The top 10 bus operators are given the chance to compete at the Dakota Transit Association’s (DTA) roadeo, which brings together top drivers from transit agencies in North and South Dakota. RCPT also

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writes and submits letters of recommendation for its outstanding drivers to be officially recognized by the DTA on a yearly basis.

Santa Clara Valley Transportation Authority, CA

VTA provides bus, light rail, and paratransit service in the San Francisco Bay Area. VTA is also responsible for countywide transportation planning, including congestion management, design and construction of specific highway, pedestrian, and bicycle improvement projects, as well as promotion of transit-oriented development. VTA employs over 2,000 people, has 65 bus routes, and 3,241 bus stops. Bus operators at VTA are represented by ATU Local 265.

Transit Agency Background Information

Geographic Area FTA Region Fixed Route Bus Service Demand Response Bus Service # Full-time Operators (Fixed Route and Paratransit) # Part-time Operators (Paratransit) Union Status
Large urban FTA Region 9 (Arizona, California, Hawaii, Nevada, American Samoa, Guam, Commonwealth of the Northern Mariana Islands) Directly Operated N/A 1001 or more 50 or fewer (not represented by ATU Local 265) ATU Local 265

Workforce Needs Assessment

To understand workforce needs, VTA management analyzes the average number of service hours that bus operators provide in a given period multiplied by the number of bus operators currently employed against the total hours of service that will be needed. The difference indicates hiring needs. The number of service hours per bus operator has fluctuated over time and under different service models. This data has also changed substantially due to the pandemic and the transit agency has had to adjust their estimates based on an absenteeism rate that is consistently higher than in the past.

Bus operator shortages at VTA have also had an impact on the workforce needs of the transit agency. VTA has recognized that when the transit agency is fully staffed, the average number of service hours per bus operator goes up. This is because there is more flexibility in scheduling for the bus operators so they are willing to work more. This compounding issue has underscored for VTA the importance of recruitment and efficient hiring practices.

Recruitment

Prior to the COVID-19 pandemic, VTA had no shortage of applicants. Because of this, recruitment efforts had not been a top priority. However, the pandemic caused high absenteeism rates in the existing workforce and diminished the pool of applicants. VTA had to quickly create a recruitment campaign where very little attention had been paid in the past.

VTA has developed online, radio, TV, and print media advertisements and has started a campaign to encourage bus operators to recruit applicants through word of mouth. VTA has also

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worked to make the position more attractive to prospective applicants. Although entry-level driver pay is fairly uniform in the region, including at VTA, the transit agency has changed its pay scale to be more attractive to potential applicants. Effective February 2022, and as a result of ATU negotiation, VTA increased the starting pay to $25.76 per hour and eliminated the trainee wage, which had been set at 55 percent of the top rate of pay (55 percent of $39.54). The amount of time to reach the top rate of pay was also reduced from 4 years to 3. If merit qualifications are met, the time can be further decreased, possibly down to 2 years.

VTA also began focusing on building relationships with community organizations and schools to promote transit occupations as careers. According to an interviewee, the transit agency feels that it is important to interact with youth so that the idea of working in transit is planted early on. These strategies do not have immediate results but will contribute to a sustainable pool of applicants in the future.

The union has been involved in recruitment in several ways. According to an interviewee, the primary function of the union in terms of recruitment is to advocate on behalf of its past, present and future members for better benefits (e.g., wages, medical, pension, etc.) and improved working conditions (e.g., COVID PPE, safety equipment/tools, safe work environment, etc.). As far as advertisement goes, the union is limited by financial resources but has word-of-mouth campaigns, advertises with labor-friendly entities, and plans to start recruitment drives at the union hall. The Joint Workforce Investment (JWI), a partnership between ATU Local 265 and VTA, has also asked mentors to participate in recruitment efforts. As a result, several of the mentors involved in the bus operator apprenticeship program have been featured in advertisements and have provided suggestions for VTA recruitment campaigns.

Compensation

Bus operator compensation has been discussed above in connection to recruitment and its use as a recruitment strategy. In general, VTA provides bus operators with a fairly typical benefits package. Of note are several provisions. VTA offers a tuition reimbursement program, includes mental health coverage in its benefits package, and provides trauma leave after an accident occurs. As part of the mental health coverage package, and due to funding provided under CA SB 129, VTA is instituting an allowance of 3 days per year for mental health leave. An interviewee indicated that the paid vacation and sick leave policies at the VTA are generous and that the accrual rate increases with length of employment. After the probation period, all bus operators are represented by the union.

Hiring Processes

VTA’s application can be completed and submitted online. Most applicants link to the application from online advertisements or job boards. In addition, an online assessment test is used to objectively screen candidates. A performance test is also used to view candidates in the work environment and ensure that they can follow instructions and physically navigate through the interior of a bus. Upon successful completion of these tests, VTA conducts an interview, which focuses on personality, customer service, and ability to handle difficult situations.

Once applicants have received a preliminary job offer, there are a number of steps to complete before hiring. This includes a physical examination to qualify for a medical card from the DOT, acquiring a CDL permit, completing a background check, and taking a drug test. This process can take 4 to 6 weeks.

The length of this process can be a deterrent for applicants and some attrition occurs when applicants become aware of all of the requirements. VTA has begun a new program to engage

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with applicants at the very beginning of the process. The JWI has agreed to arrange for bus operators to meet with new applicants to walk them through the process to complete all of the requirements. This interaction also gives applicants a chance to ask any questions they might have and helps to create realistic expectations of the job. Bus operators, because of their personal experience, are able to answer questions that Human Resources staff cannot.

Training

VTA has been agile in tweaking bus operator training to improve outcomes. Initial training for new bus operators lasts 9 weeks. The first 3 days of training are new employee orientation that every VTA employee must attend. In the past, these classes were held on a set schedule, meaning bus operators could attend at different points over the course of the 9-week training period or after they start providing service. In order to prevent situations where bus operators would be pulled from their route schedule to attend new employee orientation, VTA now schedules these classes to line up with the start of new operator training. This change was made because of the increased volume of vacancies that the transit agency needs to fill.

The union facilitates a 3-hour session during new bus operator training, in which a union representative gives an overview of what to expect over the course of the first few months of employment. The history of the local union, an overview of the benefits, and training expectations are also covered. This session also provides information on other positions that can be accessed at VTA after completing the apprenticeship. The union feels that this session is particularly valuable to new bus operators because it gives them a chance to ask questions that they may not feel comfortable asking management directly. This session provides an open forum for new bus operators and gives the union’s perspective on various aspects of training and employment at the transit agency. According to an interviewee, this would not be possible without a strong relationship between the transit agency and the union.

VTA incorporates several elements into training that serve to improve the bus operator’s experience in training and increase the sense of professionalism of the position. New bus operator training at VTA is registered as an 18-month apprenticeship program, meaning that bus operators receive a certificate from the Department of Labor upon completion. In addition, through a partnership with Mission College, bus operator training modules have been assigned college credit. Employees who complete the training receive a Certificate of Achievement in Transportation from the college and 18 credits that can be applied toward a higher degree.259

The classroom portion of the new bus operator training is concluded quickly, according to an interviewee, so that the majority of training can take place on the bus. After the classroom training is completed, new bus operators receive on-the-job training with line instructors. These instructors are union members and, while acting in this role, those employees receive a 10 percent wage premium. During the latter part of training, employees are required to comply with the bus operator dress code and are in uniform from that point on. At the conclusion of a new bus operator training class, VTA holds a graduation ceremony for new bus operators and their families.

VTA’s registered bus operator apprenticeship primarily consists of a strong mentorship program. This program is run by the JWI. New bus operators are paired with experienced bus operators that have applied and been selected by the JWI. Apprentices are paired with mentors that work in the division that they will be entering and that have complementary schedules. Once mentors and mentees are paired, they are given contact information for each other and then mentors are instructed to reach out to the mentee. After the mentee has made initial contact, it is left up to the pair to decide how to continue the relationship. Mentor relationships abide by what is called the “Vegas rule,” meaning that what is said between mentors and their mentees is not reported to management. According to an interviewee from the local, it was important to make

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this policy a part of the program, a stipulation that the transit agency also agreed with because it allows complete honesty between the mentors and apprentices. This principle is primarily about building trust between the mentor and mentee as well as between management and labor. Both sides have an interest in and benefit from the improved trust and communication that the “Vegas rule” creates for the JWI.

There are several components to the apprenticeship in addition to and outside of the largely unmonitored mentor/mentee relationship. There are three occasions that mentors are required to ride on the bus while the mentee is driving a route and observe them to offer advice and encouragement. These “ride-alongs” happen at intervals during the course of the apprenticeship with the first occurring just before the apprentice starts operating routes alone. Additionally, there are quarterly mentor/mentee meetings attended by all of the participants in the program. These meetings provide an opportunity for mentors and mentees to share common issues and get advice from their peers on how to handle certain situations.

Each bus operator is entitled to 8 hours of training per year. VTA provides annual refresher training that fulfills the state of California’s verification requirement, while also covering a variety of pertinent topics. The union plays a role in the type of refresher training offered by proposing topics that may be particularly needed by its members. For example, the union is involved in the safety committee and, through this avenue, suggested de-escalation training as a refresher course.

Safety, Health, and Working Conditions

Union and management work together on improving working conditions. For any equipment upgrades, VTA management works with the union to select products and implement them effectively. VTA and Local 265 have a joint safety committee with subcommittees that focus on individual topics. For example, there is a subcommittee focused on reducing bus operator assault. Many changes have occurred as a result of discussions started in the safety committee. For example, VTA listened to requests for barriers around the bus operator compartment and installed them in all buses; all future bus procurements will include bus operator barriers.

The union has worked to advocate for better conditions for its members and has worked with VTA to come to agreeable solutions. Through the joint safety committee, the union repeatedly brought up instances where conflicts with passengers started after bus operators state the fare to a passenger, which was required by company policy. After hearing about the details of this issue from the union through the safety committee, a supervisor with experience of the stress that bus operators face, joined the push for a change to transit agency policy. As a result, the policy was changed so that bus operators are now only required to state the fare if asked by a passenger. Bus operators are not bound by VTA policy to say anything, which helps to avoid conflicts by giving them the freedom to respond appropriately. The partnership in the safety committee has helped to raise issues that could have been ignored and has facilitated the role of management employees to spearhead and lead efforts to correct or improve.

Retention and Motivation

In an interview, VTA management credited the JWI apprenticeship program with the transit agency’s relatively high retention rate. At the start of the mentorship program, VTA had a near 100 percent retention rate through the training period. When starting the program in 2008, VTA did not have the resources to have all new bus operator cohorts in the program. As a result, there are comparison classes that indicate the increase in retention caused by the JWI program. Table A-2 shows this early comparison of several key performance indicators in JWI and non-JWI cohorts.

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Table A-2. Comparison of bus operator classes participating in the JWI program.

JWI Non-JWI JWI Non-JWI
April through June, 2008 April through June, 2009
Absenteeism 2.7% 6.6% 3.4% 8.5%
Retention 100.0% 84.3% 100.0% 84.3%
Road calls per Bus Operator 1.3 2.1 1.3 2.1
Road calls per Bus Operator (LOS) 0.4 0.8 0.4 0.8
October through December, October through
2008 December, 2009
Absenteeism 5.6% 7.9% 6.6% 9.6%
Retention 96.2% 75.5% 96.9% 87.0%
Road calls per Bus Operator 1.1 1.8 1.9 1.9
Road calls per Bus Operator (LOS) 0.4 0.7 0.6 0.7

Source: Balance Point Strategic Services, 2016.

Although the retention rate has reduced due to factors unrelated to the quality of the JWI program, the existence of the program has helped to sustain the relatively high number of bus operators who stay past the training period.

VTA has worked to ensure that there are no “dead-end” jobs at the transit agency. Career ladder programs have been created so that there is a clear path to getting the training needed for different positions within VTA. This helps with retention, especially because operations is the main entry point into employment at the transit agency and after being hired as operators, employees do not feel stuck in that position.

According to an interview with a union member, the bus operators at VTA take pride in what they do. VTA recognizes its bus operators and instances of their outstanding performance with several programs and awards, such as safe driving awards. These programs celebrate the professionalism of the bus operators, which the JWI has worked to foster, as discussed above.

The supportive atmosphere at VTA is due, in part, to the existence of the JWI, which requires a dedicated partnership between labor and management. The apprenticeship, and mentorship component in particular, has created a network of employees who have experience in and feel capable of being a listening ear and offering their own experiences for comparison. In the wake of the mass shooting that occurred on May 26, 2021, the mentors played a supportive role for the rest of the employees. The mentors are specifically trained to listen and provide perspective but not to counsel, advise, or try to fix issues. Through the mentor program, many valuable relationships between employees had been created and this contributed to a sense of community. Mentors checked in on others and were there to listen and help process the tragedy.

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Bus Operator Workforce Management: Practitioner’s Guide Get This Book
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As of 2020, nearly 50 percent of the bus-operator workforce was over 55. Evidence indicates that many younger job seekers are often not aware of the potential career opportunities and employee benefits that are available at transit agencies.

TCRP Research Report 240: Bus Operator Workforce Management: Practitioner’s Guide, from TRB's Transit Cooperative Research Program, provides recommendations and resources enabling transit agencies to better assess, plan, and implement their operator workforce management programs.

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