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

Chapter: Chapter 6 - Bus Operator Training

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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CHAPTER 6

Bus Operator Training

Bus operator training and development begins with onboarding once new bus operators are hired and ideally lasts throughout employees’ careers. Training encompasses both hard skills training, meaning the development or improvement of skills required to understand and perform essential technological job tasks and/or new technologies, as well as soft skills, meaning the development or improvement of skills required for working and interacting with the riding public.

Training and development are strategies for both recruitment and retention. If employees feel that the training they receive through the onboarding process prepares them well for the day-to-day tasks of the job, they are more likely to continue to pursue employment with the organization.131 Likewise, if employees feel they have access to growth opportunities, they may be more likely to stay with an organization.132

Transit agencies face limited budgets to provide training and development opportunities. In response, a variety of training approaches ranging in expense and format have been developed over time to reduce costs. Yet, despite these efforts, training continues to be often cited as an area of opportunity among transit agencies. This section will describe the ways by which transit agencies address the challenges associated with training to keep pace with the evolving mobility and workplace trends.

6.1 Themes

Types of Training Available to Bus Operators

Hard skill development helps transit agencies maintain competitiveness by ensuring that bus operators are proficient in evolving technologies and core job responsibilities. In the context of a rapidly changing transportation environment, it is important that employees continually improve existing skills and adopt new ones.133 Among the challenges associated with developing technical skills is that there is often insufficient communication with original equipment manufacturers, training programs are not sufficiently funded, and there is not a robust culture of training in transit.134 Training programs for bus operators sometimes do not keep pace with the rate at which new technologies are adopted onto vehicles. A 2021 FTA report indicated that while much of the early high-level training for zero emission buses (ZEBs), for example, is provided by original equipment manufacturers, there remains a need for ongoing technical training on the deployment of ZEBs.135

Beyond the requisite technical skills needed to perform the job, bus operators must also possess a range of soft skills. These can include interpersonal skills for communicating with customers and co-workers, personal resilience, problem solving, and critical thinking.136 The training program at NJ Transit attempts to cover the whole gamut of bus operator experience,

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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and not just training to drive the bus. The program also incorporates modules on working with customers with disabilities, customer service, and human relations. According to interviewees from NJ Transit management, the breadth and scope of the training provided make it successful.

As indicated in Figure 9, mandatory training (e.g., safety and security, emergency preparedness), refresher training (i.e., training that happens after an incident), and required skills training (i.e., training for specific knowledge) were cited as the most common training and development opportunities offered to bus operators. These training options fall somewhat under the category of “hard” skills training, as does technical updates training, which was an option selected by 44 percent of respondents. When asked about “soft” skills training (e.g., problem solving, interpersonal, critical thinking, and communication skills), only 20 percent of respondents believed that this type of training was offered at their organization.

According to TCRP Research Report 199, many transit training programs are rooted in Instructional Systems Design (ISD).137 ISD draws from the fields of psychology and education to analyze the best approaches to developing learning objectives and instructional strategies that are most likely to result in effective and efficient learning.138

There are also two categories of national standards for transportation industry training: technical operating standards and workforce competency and qualification standards. The operating standards, which were developed by APTA and are supported by FTA and can help to achieve industry-wide instructional and training approaches.139 The workforce competency and qualification standards are created by the International Transportation Learning Center and APTA and help to improve training quality and enable resource sharing across transit agencies.140

A 2010 study indicated that ADA paratransit operators receive 127 hours of training, including 59 hours in the classroom and 68 on the road. However, there are vast differences in the amount of training between public and private operators: paratransit operators employed by public transportation agencies receive an average of 182 total hours of training and private contractors receive an average of 97 total hours of training.141 That study further indicated that among recruits, an average of 66 percent (77 percent among public transit agencies and 60 percent among private contractors) completed the training and started duties as bus operators. Common reasons listed for not completing the training were stress associated with the job as well as unanticipated responsibilities, as captured by one survey respondent’s statement, “Many applicants apply for a driving position and then realize it also requires a high level of customer service, patience, and compassion. Once they realize it is more than just driving, they tend to seek other employment.”142 The same trend was raised by several stakeholder interviewees in this research.

Classroom training for paratransit operators and fixed-route operators may cover topics like company policies, ADA requirements, vehicle and equipment orientation, customer service training, defensive driving, map reading, drug and alcohol program training, sexual harassment training, schedule and paperwork orientation, first aid, and CPR, and ideally, tests are administered after each training module.143 In focus group discussions for previous research, bus operators have indicated that more training is often needed for map reading, schedule reading, and understanding the features of advanced technologies like mobile computer systems.144 Basic training in digital skills may also be needed for bus operators to effectively interact with the transit agency. 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, which is especially problematic since critical information for their employment is distributed regularly through emails. Training on the use of these technologies and tools and emphasizing their importance are included as part of the onboarding process.

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Image
Figure 9. Bus operator training and development opportunities offered by transit agencies.
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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Training approaches that are varied in format and delivery may better meet the needs of different learning styles. This may entail use of adaptive learning, which adjusts training in real-time depending on how well the trainee is learning. It may also entail using different delivery approaches, like video game, mobile-, or social media–based simulations and trainings. These can be attractive to younger recruits, and they also allow training to be conducted anywhere. Simulation training is already used by many transit agencies, but approaches that incorporate video game elements like incentives and points may be particularly effective and engaging.145 Focus group discussions found that several transit agencies have been adapting to the COVID pandemic by blending multiple training approaches. Several have paired use of platforms such as Zoom or Microsoft Teams with bread-and-butter classroom training.

Budget Limitations

Many transit agencies, especially those that are short-staffed, have limited training capacity due to limited budgets.146 Existing transit training capacity can be inferred by the percentage of payroll invested in training, as indicated by the following analysis:

Transit’s human capital investment of less than 1 percent of payroll contrasts with an average among all U.S. industries of 2 percent of payroll invested in training. FHWA, noting the aging workforces and pending retirements in state departments of transportation (DOTs) recommended that they spend 3 percent of payroll on training their workforces, even without the prospect of a growing number of employees. . . . The most successful U.S. companies spend between 4 and 5 percent of payroll on training. The regional transit system in Paris, France (RATP) invests over 8 percent of payroll in training the workforce for its very safe and reliable transit system.147

Spending financial resources on training can also be a retention strategy, as employees who have been trained on skills may be more likely to remain with an organization.148 If employees do not stay with the transit agency because they are not trained effectively, this also creates an additional financial strain because now the transit agency must train new employees.

Most bus operators are hired with little or no bus operating experience and thus will most likely require more training than those with experience and/or CDL certification.149 The need for additional training will require a larger training budget, which may have implications for transit agency comprehensive budget planning and considerations.

Joint Labor–Management Partnerships

Unions are generally not involved in bus operator training. When asked in the industry survey how involved (on a scale of 1 to 10, with 10 being the highest level of involvement) they believed the union to be in training bus operators (for transit agencies whose bus operator workforce is represented by a union), respondents provided an average rating of 2.8 (n = 313).

However, joint labor–management partnerships have been used to address training and development opportunities associated with adopting new technologies. Examples include the several joint training consortia offered through the International Transportation Learning Center (signals, rail car, traction power, and transit elevator-escalator maintenance) as well as the Joint Workforce Initiative (JWI), a partnership run by VTA and ATU Local 265, which administers apprenticeship programs and supports workers.150

In an evaluation of workforce development programs receiving funding from the FTA’s Innovative Transit Workforce Development Program, involving labor partners early in the development and implementation of any workforce development program was listed as a major factor for program success.151 The report’s authors indicated that “such representatives can identify issues before they become problematic and help work through potential barriers to success.” For example,

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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labor perspectives should be included in national, regional, and local forums organized to assess opportunities associated with new technologies and strategies for mitigating the negative effects of those technologies through training and development opportunities.152

Mentorship and Apprenticeship Programs

Mentorship programs where new employees are paired with more tenured employees for formal or informal learning are used by some transit agencies as training and development opportunities. Because mentorship programs rely on institutional knowledge, they have been identified as cost-effective training approaches.153 Mentor–mentee pairs can be matched based on a number of criteria, including:154

  • Competency: a mentee is paired with an experienced employee that has more robust competency;
  • Job type: mentors and mentees both share the same job function; and
  • Demographic characteristics: mentors and mentees share at least one demographic characteristic, like gender, race, or language.

Exposing applicants to a real-life job setting may help them gain a better sense of the job responsibilities before deciding to continue to pursue the job. One study indicated that this approach may reduce drop-out rates later in the training process.155 Small and rural transit agencies with smaller staff sizes may benefit from cross-agency mentorship programs, where leaders at one organization are paired with new employees at another organization.156

Increasingly, transit agencies are formalizing mentorship programs by folding them into registered apprenticeship programs. Registered apprenticeships combine on-the-job learning with related technical instruction or classroom training. Mentors participate in scheduled “ride-alongs” with new bus operator mentees, perform periodic check-in calls, and can also serve as their mentee’s liaison as questions arise through the course of the mentee’s familiarization with the organization and the job.

These joint labor-management apprenticeship programs are governed by a document called the “standards of apprenticeship” co-signed by the heads of the transit agency and the local union; they are approved by either the U.S. Department of Labor, Office of Apprenticeship, or by a state approving transit agency, depending on the state.157 A “work process schedule,” which outlines the competencies an apprenticeship must master during the course of the program is included as an appendix to the standards of apprenticeship document.

Registered apprenticeships are administered locally by a Joint Apprenticeship Committee (JAC) composed of equal numbers of labor and management. All apprenticeship activities fall within the confines of the collective bargaining agreement and applicable side agreements.

The U.S. Department of Labor has found a strong positive correlation between registered apprenticeship programs and several of the key performance indicators employers look for in their workforce. Notable among these are an “enhanced knowledge transfer through on-the-job learning from an experienced mentor, combined with education courses to support work-based learning”; a “safer workplace”; and “enhanced employee retention: 94 percent of apprentices that complete an apprenticeship are still employed 6 months later.”158

One of the benefits of a formalized mentor program is that it addresses the common issue of new bus operators getting inadequate or incorrect information and assistance in dealing with on-the-job challenges. In the absence of being paired with a trusted mentor, new bus operators may reach 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 negative experiences for the new bus operator and may impact retention.

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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.
×

Developing Career Ladders for Upward Mobility

Providing pathways for incumbent workers and prioritizing promotion from within ensures that growth opportunities are available to employees, and thus serves as a retention strategy (see Chapter 8 for more information). Typical promotional opportunities for bus operators include supervisory, dispatcher, and training positions. Offering robust career paths improves job satisfaction, employee motivation, and employee commitment.159 In particular, providing non-traditional and minority employees with clear and transparent opportunities for advancement within the organization can help to both retain those employees and to diversify the transit agency’s upper management.

Most new bus operators are hired from outside the transit agency and without prior bus driving experience. Typical rungs on a career ladder for bus operators can include bus or facilities maintenance, train operator, dispatcher, and frontline supervisor, with bus operators working up to each successive position. There are often also career paths available within the union itself.

Formal implementation of career ladder programs offering growth and development for bus operators is uneven across transit agencies. When asked if they believe their transit agency offers career ladder programs to provide bus operators with the ability to move up within an organization, 43 percent of respondents stated “no.”

Successful career ladder programs aim to retain institutional knowledge and foster an employee-centric culture by providing career advancement opportunities for frontline workers. One example listed in a stakeholder interview was a 6-month “leadership academy” where, each year, a small number of bus operators are selected to shadow a supervisor and learn the job. This gives those bus operators an advantage in applying for supervisor positions that open at the transit agency. In focus group discussions, the research team spoke with transit agencies that reported bus operators going through internal programs or additional training to become frontline supervisors, training instructors, dispatchers, or control center specialists. For those transit agencies with apprenticeships or similar technical training programs, there are opportunities for incumbent frontline workers to pursue maintenance positions or rail operator positions.160

Career Opportunities for Diverse Populations

Training activities and opportunities for advancement are important in addressing the lack of diversity at higher ranks within transit. Transit has a larger share of women employees than other transportation modes, but compared with the national working population, that share is still very low.161 Similarly, representation of African Americans and Latinos continues to be higher in lower-paying transit operator ranks than in the higher-paying, high-skilled jobs.162 Industry-wide, gender and racial equity are at their highest within the ranks of transit bus operators, but a general lack of upward mobility for minority and women bus operators to move into more skilled, better paid, and technical positions may have a negative impact on retention and morale. It is important that transit agencies ensure there is access to continuous training for career ladder opportunities for historically underserved populations. This research found examples of transit agencies intentionally reaching out to the communities they serve, including immigrant and refugee communities, not only to recruit new bus operators but also to ensure diverse representation among bus operators selected to participate in advancement or mentoring opportunities.

Balancing Service and Training

Much of the training a bus operator receives is front-loaded to send new bus operators out to provide service as soon as they attain their CDL and satisfactorily complete the transit agency’s

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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.
×

classroom and hands-on training program. In stakeholder interviews, training managers felt that training programs often emphasized classroom training too early, that is, before the new operator had been behind the wheel. These individuals felt that a mix of classroom and on-the-road training concurrently would help to contextualize what trainees were learning.

Many transit agencies that are already under-staffed, and especially smaller transit agencies, struggle to find time to allow employees to attend training sessions. Transit agencies can help overcome this challenge by leveraging e-learning and providing real-time training while bus operators are on the job.163 In this research, stakeholder interviewees indicated that there is sometimes a misconception among leadership at both large and small transit agencies that time out of the seat—even for training—is a waste of the transit agency’s budget. Yet, several stakeholder interviewees also underlined the strong correlation between good, ongoing training and increased operator retention.

6.2 Forward-Thinking Approaches

The following approaches were identified in the research and stood out as valuable ideas that transit agencies can consider related to bus operator training:

Offer Training Opportunities in a Variety of Formats

In focus group discussions, NJ Transit reported positive results blending in-person and virtual training and hopes to build on these successes by making use of a learning management system to allow for self-paced learning.

Utilize Experienced Drivers as On-the-Job Training Providers

Several of the transit agencies selected as case studies use this practice. After the initial classroom training, new bus operators at FMCTA are paired with a senior operator who provides informal on-the-job training. Senior bus and paratransit operators are selected to provide on-the-job training based on how responsible the transit agency feels they are and how qualified they are. Bus operators are paired based on whether they have been hired primarily for paratransit or fixed-route. The length of time that an operator spends with the senior operator varies but is generally around 2 weeks.

NJ Transit also has a program in which existing bus operators act as trainers for routes. After individuals get their CDL, they work with an operator trainer to learn the job. Because operator trainers are out on routes every day doing what they are teaching, they can also effectively communicate the experience of driving the bus in the real world.

After completing online and classroom training, new bus operators at RCPT are paired with one of the transit agency’s more seasoned drivers to learn the bus and operator’s tablet device for receiving fares and navigation.

Include a Union Role in Training

At VTA, the union facilitates a 3-hour session during new 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 local union at DART also plays a role during new bus operator training and orientation, 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.

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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.
×

Use Data to Inform Training Process

NJ Transit used a skills gap analysis survey to assess the knowledge of its existing operator workforce. Based on the results of a skills gap analysis, NJ Transit made changes to its training program for new bus operators.

In order to improve efficiency, the training department at GCRTA conducted an assessment 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 to 12 weeks. The transit agency uses safety statistics to ensure that important training processes critical for operation are not cut out from the program.

Leverage Partnership Opportunities Between the Transit Agency, Labor, and Other Community Partners

In California, a statewide consortium of transit agencies, labor unions, and community colleges known as California Transit Works! (CTW) provides training and development programs, including programs aimed at fostering health and wellness among bus operators. In addition to serving as a convening body, CTW documents best practices in workforce development and provides online training resources.164

Create Formalized Mentorship Programs

Because of the many benefits resulting from mentorship of bus operators, many transit agencies have chosen to create formal mentorship programs for bus operators, whether as part of a registered apprenticeship, as a transit agency-led initiative, or as a program managed largely by the union. GCRTA funds a mentorship program that is led by the union. The mentorship program currently focuses on bus operators in the first 5 years of their careers. From the union’s perspective, the mentorship program allows for the transfer of knowledge about not only skills reflective of basic job tasks but also skills that support and promote the culture of the transit agency. For example, new hires learn the transit agency’s general cultural expectations and behaviors such as greeting colleagues, making eye contact, and shaking hands.

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Suggested Citation:"Chapter 6 - Bus Operator Training." 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.
×

Register an Apprenticeship Program

Transit agencies may also use the apprenticeship model to institute a mentorship program. Successful bus operator apprenticeships operate on a joint labor-management basis in San Jose, CA (VTA and ATU Local 265), Oakland, CA (AC Transit and ATU Local 191), and Minneapolis–Saint Paul, MN (Metro Transit and ATU Local 1005). 165 One stakeholder interviewee familiar with these programs indicated that they effectively extend training beyond the classroom and initial on-the-job instructor-aided training by pairing new bus operators with a mentor who reinforces their training over a year or 18 months, depending on the location, and brings the union into the training process as a stakeholder. Apprenticeship programs can provide many benefits, some of which were recorded and measured by VTA at the start of their program. For example, there were fewer road calls per operator among the bus operators enrolled in the apprenticeship program.

6.3 Resources

  • Community Transportation Association of America online training class titled “Recruiting, Building and Retaining a Sustainable Driver Workforce” (available to members).
  • The National Rural Transit Assistance Program e-Learning portal (available to members) allows employees to access trainings from other organizations when internal options are limited.
  • The Urban Institute. “Competency-Based Occupational Framework for Registered Apprenticeship: Transit Coach Operator.” August 2017; The Urban Institute, “Competency-Based Occupational Framework for Registered Apprenticeship: Work Process Schedule,” August 2017. https://www.urban.org/policy-centers/center-labor-human-services-and-population/projects/national-occupational-frameworks-registered-apprenticeships/transportation.
  • Weisenford, J., B. Cronin, S. Ortiz, E. Majumdar, C. Thompson, J. Jenkins, C. Riches, C. Heasley, B. Wolf, D. Long, A. Bond, R. Lazaro, and V. Lazaro. 2018. TCRP Research Report 199: Transit Technical Training, Volume 1: Guide to Applying Best Practices and Sharing Resources. Transportation Research Board, Washington, DC.
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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Suggested Citation:"Chapter 6 - Bus Operator Training." 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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Next: Chapter 7 - Bus Operator Safety, Health, and Working Conditions »
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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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