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Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations (2010)

Chapter: Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues

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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
×
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Suggested Citation:"Chapter 2 - Understanding Vehicle Operator Recruitment and Retention Issues." National Academies of Sciences, Engineering, and Medicine. 2010. Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations. Washington, DC: The National Academies Press. doi: 10.17226/14415.
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8Literature Review The first task of the study was to conduct a search of the lit- erature related to vehicle operator recruitment, retention, and performance. The review encompassed paratransit-specific literature searches as well as a review of literature in vehicle operations, in public transit in general, and in the school bus and trucking sectors. Literature reviews in the limousine and taxi sectors were also conducted. While the review revealed a limited number of paratransit-specific studies, it did provide considerable information relevant to the focus of the current study. In addition to transportation industry literature, the review includes findings on how issues of employee recruit- ment, retention, and performance are being addressed within today’s marketplace in general. The first part of the literature review focuses on factors that affect the industry’s ability to maintain an experienced and sta- ble workforce of paratransit operators. Quite a number of writ- ings focus on internal factors related to these issues. External factors within the general work environment have also received significant attention. In some cases, the factors of recruitment, retention, and performance have been addressed singularly and other times the focus has been on the synergistic effect of these factors in maintaining a sufficient quantity of qualified paratransit operators. A list of references cited is provided at the end of this report. Throughout this chapter, the terms “vehicle operators” and “drivers” are sometimes used interchangeably since they were both used in the cited reports and articles. An Overview of Paratransit Vehicle Operator Issues Writings from a variety of sources speak to the current research topic: challenges facing providers of ADA comple- mentary paratransit service in maintaining an experienced and stable workforce—particularly vehicle operators. One source is a white paper prepared by the New York Public Transit Asso- ciation, Inc., (NYPTA), a not-for-profit association represent- ing the public transit industry throughout the state. The paper, entitled Key Issues and Concerns Facing New York State’s Transit Industry, discussed one step several New York transit agencies have taken to cut costs and improve operational effi- ciencies: analyzing and addressing high operator-related costs, including steps to improve operator retention rates, create performance objectives, reduce absenteeism rates, and reduce overtime costs (1). Surveys conducted by METRO Magazine for several years highlight challenges related to maintaining a sufficient number of qualified paratransit operators. The publication’s 2005 Para- transit Survey of 40 paratransit operators of varying sizes in the United States and Canada found respondents cited the recruit- ment and retention of operators as the most challenging operator-related concern. The 2006 survey of 36 randomly- selected paratransit providers in the United States and Canada again found that recruitment and retention of vehicle operators remained the chief operator-related issue plaguing providers. Likewise, in the 2007 survey, 70% of reporting organizations stated that operator recruitment and retention remained the “biggest operator-related” concern (2, 3, 4). In the 2005 National Council on Disability study report, The Current State of Transportation for People with Disabilities in the United States, a comparison between fixed-route and paratransit vehicle operators revealed that pay differences between the two groups have an impact on vehicle operator retention. As a general rule, pay and benefits for fixed-route bus operators are noted to be higher than for paratransit operators. The rationale often given for this pay discrepancy is that the fixed-route operator’s job is more difficult. The study found, however, that the salary differential is not nec- essarily based on any objective comparison of the two jobs, but rather, historic roots (5). The 2000 TRB report entitled State of the Art Paratransit noted that strategies adopted by transit agencies to reduce C H A P T E R 2 Understanding Vehicle Operator Recruitment and Retention Issues

labor costs have inadvertently, negatively impacted the abil- ity of agencies to recruit and retain qualified paratransit oper- ators. In the case of in-house paratransit operations, one strategy identified is the practice of implementing labor agree- ments with two wage scales—the usual fixed-route transit wage and a lower wage for paratransit operators. Another strategy for labor cost reduction is for transit agencies to contract for service with providers that typically pay lower wages, a practice that has unintentionally resulted in difficulties recruiting and retaining quality operators in both transit agency-run systems and contracted systems (6). State of the Art Paratransit also points out that paratransit operators driving larger vehicles must possess a commercial driver’s license, which places paratransit companies in com- petition with trucking and delivery companies that pay higher wages. The report states that the difficulty in hiring, training, and retaining qualified paratransit vehicle operators will continue until the industry finds a way to compensate qual- ity operators (6). TCRP Report 124: Guidebook for Measuring, Assessing, and Improving Performance of Demand-Responsive Transportation (2008) notes that wages and benefits for demand-responsive transportation (DRT) vehicle operators has become a key issue in recent years, particularly in systems where service provision is competitively procured (7). It indicates turnover rates of up to 50% and notes that shortages of operators and high turnover can impact DRT operations in several ways. Impacts cited include systems being unable to cover scheduled runs, high costs for ongoing recruitment and training, and the use of more inexperienced operators. The report states that “It is generally recognized that experienced DRT operators—who are familiar with the service area, understand their riders’ trip patterns, are knowledgeable about the system’s policies and procedures, and competent with in-vehicle technology—can contribute to improved performance, particularly productiv- ity and service quality, such as on-time performance.” TRB Special Report 275: The Workforce Challenge: Recruiting, Training, and Retaining Qualified Workers for Transportation and Transit Agencies lists the following factors as limitations in the ability of transit agencies to recruit and retain new operators: • The equipment used on transit buses and paratransit vehi- cles to accommodate people with disabilities, as well as the equipment used for various other operations like fare pro- cessing, automatic vehicle detecting, etc., are complicated and require extensive knowledge and training. • Most agencies cannot offer flexible work schedules to new operators. • New hires often have to work split-shifts. • Operators are held to very high standards of efficiency and public safety. • Often operators are part of collective bargaining units. • Operators must have special licensing. • Opportunities for advancement are scarce (8). FTA ADA Paratransit Compliance Reviews Recent compliance reviews of ADA paratransit services conducted by FTA have also documented issues with opera- tor availability and turnover. A review of final reports posted on FTA’s website identified recent service issues in the follow- ing systems: • A review conducted of the Metropolitan Transit System (MTS) in San Diego, California, in February 2008 indi- cated an 82% annual turnover rate among ADA paratran- sit vehicle operators (9). The report states that “This high turnover rate results in a high percentage of relatively in- experienced operators and may affect service efficiency and service quality.” • A review of Pierce Transit in Lakewood, Washington, in November 2007 indicated that the major private contractor, which provided about 74% of the service, was experiencing an 80% turnover rate among operators. Interestingly, Pierce Transit, which provides about a quarter of the service in- house, reported almost no vehicle operator turnover (no departures in 2007 and only a few operators retiring or leav- ing each year). A review of the in-house operator roster showed an average tenure of 14 years; the most inexperi- enced operator had 4 years of experience, and the senior operator had 26 years of experience (10). • A review of the Central Ohio Transit Authority in Colum- bus, Ohio, in February 2007 showed more moderate turn- over. Records of the private contractor which provides service in Columbus showed annual post-training turnover of about 25% (11). • A review of the City of Albuquerque Transit Department in Albuquerque, NM, conducted in September 2005 indicated only about a 10% annual turnover of ADA paratransit vehi- cle operators. The ADA paratransit service in Albuquerque is provided in-house with city employees (12). • A review of the Transportation District Commission of Hampton Roads (Hampton Roads Transit) in Hampton, VA, in October 2002 indicated an annual turnover of about 30%. The ADA paratransit service in Hampton was provided by private contractors (13). • A review of the City of Tucson Transit Services Division in Tucson, AZ, in March 2003 indicated an annual turnover of about 44%. This included only 9% turnover among the private contractor’s 65 full-time vehicle operators but 93% turnover among the 45 part-time operators (14). • A review of the Birmingham Jefferson County Transit Authority in Birmingham, AL, in April 2002 noted that 9

19 of the private contractor’s 26 vehicle operators had less than 1 year of experience and 15 had 6 months or less time on the job (15). The report noted that contractor staff “indicated that operator turnover had been a significant issue until just recently when changes in hiring practices and compensation for paratransit operators were negoti- ated with the union. Prior to January 2002, hiring for all operators, both fixed route and paratransit, was combined. Paratransit operators were paid between $6.00 and $8.00 per hour and fixed-route operators were paid between $8.82 and $14.70 per hour. New fixed-route operator posi- tions were offered first to existing personnel and virtually all new fixed-route operators transferred from paratransit. Essentially, all new hires were assigned to paratransit ser- vice and many operators then quickly transferred to fixed- route service as openings became available. This resulted in very high paratransit operator turnover. The fixed-route seniority records between July 1 and December 31, 2001 indicated that a total of 23 operators had moved from VIP (paratransit) service to the fixed-route service during this 6-month period. This suggests a paratransit operator turn- over rate of about 88% per year. A new paratransit opera- tor contract was negotiated with the union effective January 2002. Under the new contract, operators are hired sepa- rately for the paratransit and fixed-route programs. Para- transit operator pay was also increased to range from $9.00 to $12.00 per hour. Records from January through March 2002 indicate that these changes appear to be lowering paratransit operator turnover. During this 3-month period, only five new paratransit operators were hired and trained, which suggests a turnover rate of 58% per year.” • A review of the Metropolitan Tulsa Transit Authority in Tulsa, OK, in March 2002 reported an annual turnover rate of about 50% per year. Low pay was $8.00 per hour at that time and was believed by the private contractor to be a major reason for the turnover (16). • A review of the Metropolitan Atlanta Rapid Transit Authority in Atlanta, GA, in September 2001 noted that “there are typically vacant ADA Complementary Paratran- sit operator positions even though MARTA is constantly hiring and training new operators” (17). The annual turn- over for this publicly-operated service was reported to be 46% a year. The report attributes much of the turnover to “ADA Complementary Paratransit operators moving into fixed-route positions that become available . . . ADA Com- plementary Paratransit operators receive $8.40 to $12.30 per hour and fixed-route operators receive $13.43 to $17.00 per hour.” • A review of the Milwaukee County Transit System in Mil- waukee, WI, in July 2001 reported turnover rates for the two private contractors that operated the service. One con- tractor was reported to have about 30% turnover per year among paratransit operators. The second was reported to have a turnover of 88% (18). • A review of the Connecticut Department of Transporta- tion/Greater Hartford Transit District in Hartford, CT, in June 2001 indicated about 7% to 17% annual turnover among ADA paratransit vehicle operators. The report notes that the private contractor cited fair compensation that included $10 to $12.50 per hour plus a 401(K) program, medical insurance, and holiday and vacation pay as factors that kept turnover low (19). Demographic Factors Affecting Availability of Qualified Workers The New York Public Transit Association Key Issues and Concerns white paper points out that the aging of the large baby boom generation has major implications for changing consumer demands for housing, goods, and services, includ- ing transportation. In addition to automobile travel, the impact on transportation systems will likely include greater demand for paratransit services (1). Other publications discuss the size and speed with which the baby boom generation is moving toward retirement. Some estimate that the number of federal workers at retirement age or eligible to retire in the next few years is as high as 53%. One recent study by the Rockefeller Institute of Government found that 42% of the 15.7 million state and local government employees are between 45 and 64 years old. Calling it the most “significant talent and brain drain ever experienced by government,” the Institute estimates that a full 40% of state and local government employees will be eligible to retire in the next 15 years (20). One federal lawmaker calls the work force problem “a cri- sis in human capital” and states that a compromised trans- portation work force would have serious repercussions for the U.S. economy. The demand for transportation continues to increase dramatically as the U.S. population has increased rapidly, and vehicle-miles traveled are increasing twice as fast as the population. If the workforce problem were confined to federal quarters, transportation policy-makers and managers could breathe a little easier, but it is not. The problem extends to the state and local transportation workforces as well. The competition for qualified workers will be fierce, as almost every sector of business, industry, and government grapples with the same problem. Although the challenge is not unique to transportation, the field does have its own set of compli- cating circumstances because the nation’s businesses and cit- izens are so dependent on the transportation system (20). The effects of the aging baby boom generation will mani- fest themselves in other ways, as well. Though a significant portion of baby boomers will retire, others will choose to remain in the workforce as “mature workers.” 10

In Challenges in Staffing, Furchtgott-Roth hypothesizes that changing demographics, workforce readiness, and global competition will continue to create staffing obstacles and opportunities for organizations. The aging of the workforce is one of the major issues the author identifies as potentially problematic. The proportion of Americans over age 55 will increase significantly along with increases in longevity, thus increasing the proportion of older Americans. The labor force participation of older Americans is increasing with older employees working full-time weekly schedules (21). Indeed, according to the Bureau of Labor Statistics (BLS), as cited by Burkert in his 2006 study, by 2012 the availability of older workers will increase by 56% (22). Research by the Society for Human Resources Management (SHRM), the international human resources trade organiza- tion, also cites the aging of the workforce as one of the three key trends that are shaping organizations today. Projected labor shortages and baby boomers continuing to work beyond the retirement age are other key factors. It is projected that approx- imately 20% of the workforce will be 55 years or older by 2010. Research reveals that traditional retirement has become the exception and not the rule. Additionally, the BLS, as referenced by Burkert in 2006, predicts that by 2012, the labor force will decline in younger age groups, while the availability of older workers will increase dramatically; this indicates that compa- nies must attract older workers to stay adequately staffed (22). Mature workers can play a key role in transferring organi- zational knowledge and essential skills to less experienced employees. Organizations can leverage this knowledge by promoting internal knowledge transfer and intergenerational learning. Failure to understand generational differences and align workplace policies to generational needs can negatively impact retention and productivity. Research by SHRM led authors to hypothesize that relationship fit is the primary need driving the level of job satisfaction of mature workers. Organizations that want to stay competitive must adapt their talent management practices in line with the shifting demo- graphics of today’s labor pool (23). To retain mature workers, employers must offer work arrangements and benefits that align with the needs of this labor pool. Incentives to retain mature workers include flex- ible work arrangements (e.g., telecommuting, compressed work weeks), training to upgrade skills, time off for volun- teerism, phased retirement, reduced shift work mentoring arrangements, and consulting positions. These workers have substantial experience that can be used with the aid of part-time, comp-time, and telecommuting policies. A study conducted by Ernst & Young found that hiring retirees as contractors or having an on-call pool of retirees had the high- est impact on the retention of mature workers (23). Burkert hypothesized that mature workers enter or return to the workforce seeking more than just wages, stability or steady hours. Any job that asks for more than they are willing to give in time will probably not be kept (22). Staffing is expected to increase in sectors that cater to the older generation. Furchtgott-Roth suggests that to meet the challenges of the next decade, organizations need to expand the flexibility of labor markets: make the workforce more attractive to senior citizens by allowing employers to offer part-time work without tax penalties and fixed costs; increase the mobility of the workforce by providing defined contribu- tion benefit plans. These tactics help pension portability for employees who can take plans with them and ease the finan- cial burden of company-sponsored pensions (21). Still, younger employees can also make up an important piece of transit staffing. In Business Insurance magazine, Fletcher reports that “experts consider helping [young] workers balance the demands of work and life vital to recruiting and retaining young employees” (24). According to Fletcher, Deloitte and Touche USA L.L.P. found that members of the younger work- force share the following workforce characteristics: • Value empowerment/excitement and are idealistic, • Are more loyal to one employer than Generation X, if they can have multiple experiences there, • Value open social networks that embrace honest commu- nication, and • See technology as a way of life (24). Also of note is the increasingly large role immigrants are playing in the transportation industry. In his study The Chang- ing Face of Taxi and Limousine Drivers, Schaller compiled sta- tistics provided by the U.S. Census Bureau for the past four census periods. Schaller found that, in the year 2000, 38% of U.S. taxi and limo drivers were immigrants, up from 8% in 1970 and 27% in 1990. Schaller calls this “one of the highest proportions of immigrant workers of any occupation in the U.S.” (25). Impact of Management Characteristics and Practices TCRP Synthesis 71: Paratransit Manager’s Skills, Qualifica- tions, and Needs, focuses on the characteristics of successful paratransit managers. In a survey of paratransit managers throughout the nation, respondents noted that a strong team of operators and dispatchers is the backbone of paratransit operations. Respondents cited the importance of managers to know and develop their staffs and to maintain a supportive employment culture. According to these paratransit profes- sionals, attention to these factors will allow the managers to spend less time on managing staff and hiring and training replacements. Good communication and delivering good 11

and bad news early and honestly to all affected constituents was seen as essential for any person in the paratransit man- ager role (26). In 60 Ways to Improve Driver Recruitment and Retention, Burkert discusses the importance of good management char- acteristics and notes that vehicle operator surveys indicate that poor relationships, especially with management, account for a significant part of turnover. According to Burkert, every supervisor should be trained in human relations skills. Addi- tionally, Burkert notes that the responsibility for managing and cultivating a company relationship with operators often falls to the line supervisor, dispatcher, or operations manager and that no amount of programming, new ideas, pay raises, or incentive plans can overcome a bad dispatcher. Manage- ment support and positive feedback is consistently cited as integral to productive workforce relations (22). Shortage of Vehicle Operators in Other Sectors: Fixed-Route Transit, School Bus, and Trucking Fixed-Route Transit Research reported in the 2002 TCRP Report 77: Managing Transit’s Workforce in the New Millennium found that opera- tor positions are the most difficult positions in which to maintain employees. While the reasons for this difficulty vary, many agencies indicated that not being able to offer competitive wages caused difficulties in recruiting and retain- ing employees (27). As previously noted, many transit agen- cies must compete for employees with commercial enterprises that offer higher wages. A recent article in Mass Transit magazine highlights the impact of the vehicle operator shortage on one city, which is symbolic of a nationwide problem. Amarillo, Texas’ city bus system runs fixed routes as well as other transportation ser- vices, including transporting school children to and from school and to extracurricular activities. Due to the shortage of vehicle operators, school district supervisors and techni- cians have had to drive routes; transit employees have had to work numerous overtime shifts (causing exhaustion and ill health); and routes have been cancelled. Amarillo is using a multi-pronged approach to recruit and retain its operator workforce—recruit in locations that will allow more people to know about the job, hire retirees, and provide city benefits to all operators, including the additional benefit of being a member of the Texas Teacher Retirement System (28). In Fargo, North Dakota, city officials who were worried about a bus operator shortage that was causing missed routes requested that the company under contract to provide fixed- route and paratransit service to residents of Fargo increase starting wages for all operators. At the time of the request, local unemployment rates were low, as was the starting wage of bus operators, $7.00 per hour, as compared to other indus- tries (29). School Bus Fairfax and Prince William Counties, in Virginia, also have experience in dealing with severe bus operator shortages. In 2006, those counties were short about 180 school bus opera- tors, causing students to miss the start of their morning classes. Though the districts were offering up to $15 per hour for starting operator positions, many potential applicants were turned off by the perceived pressures of the job, such as the stress of daily driving and dealing with children. In response, the district offered operators $1,000 bonuses for recruiting other operators, and new operators who stayed at least 90 days received a $500 bonus. Additionally, Fairfax County began offering benefits to operators who worked only 20 hours per week (30). Literature on issues related to the recruitment and reten- tion of school bus operators shows some similarities to the issues faced by those providing complementary paratransit services. One study that involved interviews with a random sample of 50 transportation officials from public schools in Indiana revealed a widespread shortage of qualified bus oper- ators in that state. Between 51% and 77% of all Indiana pub- lic school transportation corporations experienced shortages of bus operators in the year prior to the study. Greater than 75% responded that the shortages were caused by the part- time nature of operator jobs. A variety of other reasons were cited as the causes for shortages of bus operators—qualified operators are also qualified for other work that pays more per hour, and operators do not want the responsibility of driving or dealing with children (30). Similarly, a 2001 study of South Carolina school bus oper- ator turnover revealed that the turnover rates in local school districts was 27%. Several factors contributed to high turn- over: low pay rates, unavailability of fringe benefits, lack of full-time employment, and equipment and student behavior problems (31). The study concluded that school bus opera- tors in that state were underpaid, especially for safety-related positions, leading to high turnover and a limited applicant pool. The Council suggested a bus operator pay increase of 13% to 45% (31). Trucking Industry Several publications highlight operator shortage and reten- tion as the most serious problem in the trucking industry, with no long-term strategy in place for solving the problem. An October 2005 article by Swain cited turnover rates of 100% or more, resulting in a continuous scramble to recruit 12

and re-train new operators. Swain hypothesized that opera- tor recruitment is not the issue; the issue is one of retention. The alleged “proven fact” is that operators leave companies because they perceive a lack of communication and believe that they are not respected or valued. Operators complain that companies do not treat them well (33). In addition to fair treatment, vehicle operators want to know what is expected of them, whom they work for, how they are doing, how to resolve problems, and what is going on in the company that will affect them (33). A report by the Gallup organization, commissioned by the American Trucking Association Foundation, included inter- views with 801 truck operators to determine activities that most influence operator satisfaction. Operators identified a number of factors: support from the company when on the road, friendliness of managers, company expectations around schedules, fairness of the managers, amount of physical load- ing and unloading, amount of general non-driving work, schedule, and most especially, time away from home (32). In another study of truck operator retention, which involved an extensive literature review on operator turnover, brain- storming sessions with truck operators, and a review of oper- ator exit interviews, researchers reported that dispatcher responsiveness has a greater impact on operator retention than was originally realized (33). Successful Approaches to Recruiting and Retaining Transit Vehicle Operators Literature related to recruiting and retaining transit vehi- cle operators has increased quite a bit in the past decade. Some writings provide paratransit-specific information. For instance, recommendations resulting from the 2005 National Council on Disability research study, The Current State of Transportation for People with Disabilities in the United States, include • Equalize salaries and benefits of fixed-route and paratran- sit operators, with the rationale that research has docu- mented that such action can reduce chronic paratransit problems such as high turnover and difficulties in main- taining a stable, skilled force of operators. • Consider training operators on both service modes and rotate operators between fixed-route and paratransit service. • Undertake studies to determine the impact of the discrep- ancy in employee wages and benefits between fixed-route operators and paratransit operators on service quality and other factors (5). In TCRP Synthesis 40, the authors cite a number of innova- tive recruiting methods for securing bus operator applicants. Well-planned and highly targeted graphically appealing adver- tising and outreach programs can be successful in this regard. Some agencies award bonuses to employees who recruit new bus operators. Others display promotional buses at major pub- lic and sporting events and have bus operators available to talk to prospective operators. Other tactics, which apply to all organizations and most job categories, include providing web- site access for potential recruits; focusing on inside sources, current or former employees, and internal job postings; and seeking recruits through schools and fraternal, religious, and community organizations. The report also emphasizes the importance of a realistic job preview as a factor in attracting applicants and retaining new hires (34). TCRP Report 77: Managing Transit’s Workforce in the New Millennium cited a number of best practices in this regard. For example, Pierce Transit gives each new bus operator applicant a handout that describes typical scenarios in the work life of a vehicle operator. This practice seems to cut down on the number of dropouts during the new employee orientation period (27). TCRP Report 77 also identified one successful strategy for recruiting operators that included interviewing, administering drug tests, and signing up new employees in one day. Another approach is to partner with community colleges and offer classes on-site as a recruitment and retention incentive. Accord- ing to the transit systems highlighted in the report, internal and external partnering appears to lead to higher retention rates. Partnering approaches include working with outside organi- zations; partnering new employees with seasoned operators (mentor programs); and partnering among different depart- ments within an organization in ways that lead to information sharing in the community and among employees (27). TRB Special Report 275 recommends more partnering be- tween community organizations like high schools and com- munity colleges—potential sources of applicants. It further suggests making human resources a priority in transit agen- cies. The report also stresses the importance of high-quality training. Although Congress allows 0.5% of funding to tran- sit agencies to be used for training, most agencies do not use any of it. According to the authors of the report, successful transit organizations spend 2% of their payroll on training (8). TCRP Synthesis Report 52: Transit Operator Health and Wellness Programs found that quite a number of transit agen- cies embrace the health and wellness of operators as a critical employee development and retention issue. Six case studies of transit agencies in this report highlight various approaches for retaining a healthy operator workforce through compre- hensive health and wellness programs (35). Literature from abroad provides a view of similarities between successful recruitment and retention practices in the United States and the United Kingdom. Best practices used in the United Kingdom are a comprehensive induction (orientation) period including focused training, support 13

from mentors, and regular performance reviews, all of which have been found to reduce turnover of new hires. In addition, increased pay and benchmarking pay rates against other driv- ing jobs reduce costs in the long run by reducing training and managing of new hires (36). First Group, an international transportation firm based in the United Kingdom, has worked to increase retention of transit operators with the implementation of a mentoring and coaching element as part of its retention strategy. The company experienced a reduction in turnover of 9% over a 2-year period. Under this scenario, each new operator is assigned a “buddy” to mentor and coach them informally in the first two weeks on the job. Operators are then given an Assessor who coaches and assesses them for approximately 6 months and until they achieve a designated level of com- petency as an operator (36). Similar retention approaches have been in place at a num- ber of U.S. transit agencies for some time. The following two examples are cited in TCRP Report 77: • At Citifare in Reno, Nevada, mentors are selected from among veteran operators who have good records and show potential for teaching others what they know. Through an extended mentor training program, potential mentors develop skills in how to support new operators in each aspect of their jobs. • At Duluth Transit Authority in Duluth, Minnesota, the mentoring program, in which each new employee is assigned a veteran operator as a mentor, serves as a bridge for new operators into the agency culture and work environment. The mentor helps the new operator acclimate to the agency, and serves as a source of information about operational poli- cies and procedures, schedules, vehicles, and agency events. The mentor also provides a safe resource for questions and concerns the new operator may have (27). The study in TCRP Report 77 also identifies ways to enhance or establish partnering relationships between management and labor leadership as mechanisms for attracting, training, and maintaining a qualified workforce. Thirteen transit-agency case studies revealed commonalities and differences in how transit agencies respond to the challenge of maintaining a qual- ified workforce, especially in difficult-to-recruit and -retain positions. The 55-page Human Resources Guide included in this report is a reference tool of best practices that transit agen- cies throughout the nation have found effective in recruiting and retaining a qualified workforce (27). Employee retention is not a new issue, but the increasing mobility of the work force presents a stronger challenge to the retention of qualified workers. Factors that enhance retention range from quality-of-life improvements to a greater com- mitment to training and development. Retention has always been important, but it is taking on a new focus as competi- tion to find and retain top-quality employees intensifies. TCRP Report 77 concluded that while increased attention has been paid to recruiting qualified transit workers, little attention has been given to retaining employees. None of the 13 case studies of best practice organizations had a specific strategy for retaining employees in difficult-to-recruit and -retain positions. Each employed practices that have been helpful in this regard, but specific attention to retention was lacking (27). Financial compensation is still a primary consideration for most workers. However, they also want opportunities to pursue their own interests and personal growth. Employer contributions to workers’ quality of life and job satisfaction often include flex-time as well as a greater commitment to innovative approaches to recognize and reward their work- ers. Organizations that excel in these areas are seeing a posi- tive difference in productivity gains and in retaining quality people (20). TCRP Report 124 notes that some transit providers have increased compensation for demand response vehicle opera- tors to make it more in line with fixed-route operator com- pensation. It also notes that some systems have taken steps in the procurement of services to ensure more stable vehicle operator workforces—such as specifying minimum levels of pay or requiring that, if there is a change in service providers, qualified vehicle operators be retained. (7) Workforce Planning: A Tool for Facilitating Vehicle Operator Availability The increasing number of baby boom retirements is expected to have a dramatic effect on the transportation indus- try. Planning for and developing a new workforce must begin in earnest but with a clear recognition that the new genera- tion of employees will bring a different set of priorities, val- ues, and talents to the work place. This generation grew up in the electronic age, is more comfortable with change, has greater expectations for job satisfaction, and is willing to chal- lenge authority and be challenged by the demands of their work. The success of the new generation will depend to a great extent on the ability of employers to use their attributes and introduce the emerging work force to innovative approaches to work force planning and development (20). The TRB Special Report 275 emphasizes that in recruiting and retaining transit agency employees, one size does not fit all. Successful recruitment and retention practices depend largely on projecting the strategic needs of the organization and applying a diverse mixture of measures to meet those needs (8). One report produced by the Motor Carrier Coun- cil of Canada emphasized the importance of human resources planning in maintaining a qualified bus operator workforce. 14

Using planning tools and keeping up to date with economic and demographic changes and internal workforce character- istics can play a large part in securing and retaining the cur- rent and future workforce (37). TCRP Synthesis Report 40: A Challenged Employment System: Hiring, Training, Performance Evaluation, and Retention of Bus Operators cites proactive bus operator workforce planning models at two transit agencies—San Diego Transit and Utah Transit Authority. At both agencies, these models address con- siderations such as agency historical experience, operating requirements, service changes, service variability, absenteeism rates, turnover, training and transition-to-work turnover, selection time frame, and training duration. While such mod- els can be helpful, in order for them to reach their full poten- tial, they require regular maintenance and data updating (34). TCRP Report 77: Managing Transit’s Workforce in the New Millennium provides guidelines that enable employers to assess their own workforce needs, especially in difficult-to-recruit and difficult-to-retain positions. The guidelines are presented in the form of a self-assessment tool that allows the user to examine policies, practices, and other factors that may influ- ence a transit agency’s ability to maintain a qualified workforce. The tool views recruiting and retaining a qualified workforce from a total system perspective, which requires an organiza- tional team effort for maximum benefit of its use (27). One aspect of workforce planning that organizations have begun to embrace is to begin planting the seeds to cultivate interest in young people much earlier. Reaching out to schools, vocational programs, and universities is an increas- ingly popular approach (20). Successful Approaches Cited in Other Transportation Sectors In 10 Ways to Reduce Driver Turnover, Smith suggests that truck operator recruiters need more training and better tools. Recruiters are under pressure to hire anyone who qualifies under USDOT rules. The cost of poorly targeted advertising, unprofessional interviewing, and poorly defined and enforced qualification standards, followed by inadequate post-hiring training, all contribute to the high price of recruitment and retention. Smith says that organizations can remedy this dilemma by automating some of the tasks and providing recruiters with help on administrative details. Today’s tech- nology allows recruiters to build an operator information file as they talk with the operator. Automation can also give com- panies a readily accessible database of potential candidates. To address this issue, some companies are using “behavioral tests that evaluate key personality characteristics such as aggressiveness, sociability, patience and conformity.” Smith goes on to state that the employer should create and clearly define and articulate career paths within the organization. In addition, new and existing operators should be recognized for their experience, good performance, skills, and tenure within the company (38). New employee orientation has received considerable atten- tion in literature as critical for new trucker assimilation. New employee orientation is the very first step of retention that prepares the new hire to feel like a part of the organization. Literature about new truck operator orientation suggests that operators should receive properly designed orientation train- ing with clearly defined job expectations. Authors agree that strong orientation takes the guesswork out of a new job and provides guidelines for behavior so that new operators know from the start what is expected from them and what they can expect from the company. Macklin suggested approaches to a basic orientation include a welcome from a senior officer, completion of the administrative requirements for the hiring process and job specific subjects such as safety, benefits, com- pensation, company operations, maintenance procedures, tour of the facility, and hands-on demonstrations (39). According to trucking estimates, as much as 75% of a car- rier’s turnover comes in the first 90 days after an operator is hired. Misunderstandings are a big factor in turnover during the first 90 days. Many believe it is due to poor orientation (40). Orientation should be the time when truck operators start forming relationships with others in the company. Fleet exec- utives should visit each new orientation class and include a tour of the company to help operators connect with the whole com- pany, not just their classroom. Operators should also meet their assigned dispatchers or fleet managers who are the oper- ator’s connection with the company on a daily basis (33, 40). Belin and Lackwood suggested that the orientation should be spread over several weeks and include more than just a cursory introduction to the organization’s policies and pro- cedures. Their 2006 study, sponsored by SHRM, provides detailed guidelines for the development of an effective orien- tation program (40). The study focused on the concept of orientation as effective onboarding that enables the new employee to learn the organi- zational culture and behavior. Retaining newcomers is a chal- lenge and many leave within the first few months. The research focuses on socialization, “a process in which an individual acquires the attitudes, behaviors and knowledge needed to successfully participate as an organizational member.” A typ- ical socialization process includes the following three stages: • Anticipatory socialization occurs before the new employee joins the organization. Through interactions with represen- tatives of the business, such as recruiters and managers, the employee forms expectations about the organization and the job prior to entry. • The encounter stage starts when the new employee begins a new job and starts to learn about job tasks and receives 15

training. At this point, managers can exert their influence by helping the new employee understand specific roles and duties. Also, by understanding the stresses and issues that newcomers experience, managers can help cultivate a high- quality work relationship with each newcomer. • Settling in occurs when the new employee begins to feel comfortable with the demands of the new position and social relationships with fellow employees. The employee will be interested in learning how his or her performance will be evaluated and potential internal career opportunities (41). The importance of management training and actions has received increased attention in employee retention literature. It is generally agreed that managers should be trained in peo- ple skills and how to recognize the signs of stress in them- selves and in operators, and how to do something about it before it becomes problematic. Training should also include negotiation skills. Look for the win-win situation and solu- tion. Vehicle operators also want to be shown appreciation and respect. A simple “thank you” can lead to a culture of “people appreciating people” and a great place to work. Reg- ular performance reviews are also important. Reviews should note areas where operators excel and where performance can be improved, along with suggestions that help them make those improvements. Operators should also be able to bring up problems or issues that concern them (40). According to Brandon, recruitment branding is a work- force planning concept that is gaining prominence in employ- ment circles. The key to success is honestly portraying an organization’s strengths and culture. The author suggests that the image an employer projects for potential hires should be honest. Employers should develop a list of five to 10 top, hon- est messages that the candidate needs to know: opportunity for advancement; chance to help in an important cause; the opportunity to develop highly prized skills; the respect of working for an industry leader; or the ability to reap benefits and perks. Hiring managers are no longer able to attract employees with just salary and benefits. Employees are look- ing for employers who are truthful on the front end. And since recruitment drives retention, employers may enjoy greater retention with honesty (42). In 60 Ways to Improve Driver Recruitment and Retention, Burkert provides an in-depth analysis of vehicle operator recruitment and retention issues in the trucking industry (22). While some of the information is specific to trucking, much is also applicable to bus and paratransit services. Burkert points out that the potential employees sought by truck and bus employers are also sought by manufacturers, service establishments, construction employers, and dozens of other types of businesses. He notes that companies need to make themselves “stand out” to be successful in recruiting. Wages need to be competitive with these other job sectors or the pool of potential applicants will be reduced. He adds that it is also essential that companies “stand out” in terms of non- wage “people issues.” Pay alone is not always the answer since other companies will probably be willing to match increases. Burkert observes that job vacancies offer the temptation to fill a position with a less than ideal candidate but suggests that this can have disastrous consequences. Failing to hire prop- erly may shift and delay costs and consequences, but it does not eliminate them. He states that “In the face of chronic operator shortages and strong customer demand for service, carriers first decline to discipline their vehicle operators, and then refuse to terminate, even in the face of poor perfor- mance, and finally and inevitably, lower their standards of conduct for the operators in their employ. This downward spiral is one that impacts company revenue, profits, employee productivity and, perhaps worst of all, operational safety.” Burkert also notes that hiring new employees isn’t free, no matter how you do it. He states that estimates of the cost of hiring and placement range broadly but are almost always measured in the thousands of dollars. This claim is also sup- ported by Diane Arthur in The Employee Recruitment and Retention Handbook, who notes that research indicates that the average cost per employee hired and trained is about 25% of that employee’s annual salary (42). Burkert points out that recruitment and retention are two sides of the same coin. Actions taken to retain current vehicle operators, assuming they are effective and meaningful, are often the same things that will attract job seekers. He offers the following three general strategies for being successful in recruitment and retention: • Make your company a desirable place to work, • Provide competitive wages and compensation, and • Offer careers instead of jobs. Burkert suggests that companies must first be realistic in analyzing which positive and negative factors and forces are in place to make an applicant feel that the company is either a desirable place to work or an unattractive one. He states that it is essential that promises to recruits be in line with reality. If new employees aren’t going to get the best runs or hours they need, don’t say they will. He states that “A swinging door that fills the ‘bottom rung’ of the company roster contributes nothing but additional costs.” Burkert cites studies that suggest that there are only a few things that really attract employees to companies, such as the following: • Trust—a business and supervisors that employee can have faith in; • Compatibility with peers—co-workers one can appreciate and take pride in; and 16

• Character of the work—challenges accompanied by man- agement support. He also claims studies show that what operators want and need from their jobs are the following: • Appreciation of their efforts; • Insight and information—being “in on things;” • Recognition—not only awards and bonuses but recogni- tion of their company decisions that take employee prefer- ences into consideration to the extent possible; • Respect—courtesy, equality and explanation; • Pride in the job done; • Adequate compensation; • Security; • A better balance between home and work time—one of the most frequent complaints about driving (in trucking) is the overwhelming demands on the individual’s time; • Better pay for the work done; • Fringe benefits—“health insurance is the king;” • Relationships with co-workers—build mechanisms for employees to interact; and • Training opportunities. Burkert points out that not all employees are driven by the “top dollar.” Other factors are also important. But the wage must be competitive. He notes that higher wages are most beneficial to expand the labor pool from which a company might be able to draw applicants. He claims that competitive wages are critical to successful recruitment but notes that wages are only one of many factors in retention. He suggests that even with higher wages, other factors such as a negative work environment will still cause turnover. At the same time, he emphasizes the importance of a reasonable wage, stating: “No amount of company programming, feel-good incen- tives, image-building and ‘friendly workplace’ efforts will replace a livable wage. A job must allow employees to meet the basic needs of themselves and their families.” Burkert emphasizes the need to “hire attitude and train skills.” He highlights a case study of a successful company that “began to hire persons with good attitudes and trained those individuals to drive” rather than just hiring “experienced” operators from other companies. Burkert also emphasizes the need to offer vehicle operators opportunities for advancement. He states that in his opinion the difference between careers and jobs causes the worst of the trucking industry’s operator shortage problem. He sug- gests that to really address the issue, companies must consider ways to create more “careers” and offer fewer and fewer “jobs.” This means finding those who are seeking to make a long- term commitment to the job and giving them an opportunity to grow and earn. Burkert indicates that another key part of the operator turnover problem is poor relationships between operators and supervisors, dispatchers, and managers. He emphasizes that supervisors, dispatchers, and managers must “talk, listen and respond” to operators. Burkert lists the following 18 questions that he encourages companies to ask themselves if they are interested in reduc- ing turnover: 1. Have you assured your wages are adequate and in line with prevailing labor rates? How do you know for sure? 2. Have you verified that the number of hours worked by employees meets their expectations? 3. Have you found ways to reduce downtime and time away from home? (mainly a trucking issue) 4. Have you provided personal growth through skill and knowl- edge training? 5. Have you considered “Hire an attitude, teach a skill?” 6. When was the last time you tried to learn what parts of the job your employees liked the most and the least? 7. If you have up-to-date information about employee likes and dislikes, what did you do about them? 8. What avenues have you provided for the operator to achieve personal status or recognition? 9. How have you enriched the vehicle operator’s job? 10. How have you made driving at your company a career instead of a job? 11. Have you instituted a longevity incentive or bonus scheme? 12. Have your supervisors been trained in human relations skills? 13. Is there an effective system for internal two-way communi- cation? 14. How do you keep employees informed about the company, its business and events and their role in each of these things? 15. How do you know there is no better place to work in your region? 16. Does your trip or route job assignment system meet both customer and employee needs? 17. Is there a means for operators to learn, grow and become more skilled? 18. Have you upgraded your standards so employees can take pride in where they work? Finally, Burkert lists 60 ideas for helping with recruitment and retention of operators. While some are specific to the trucking industry, the following are applicable to bus and para- transit operations: • Referral bonuses: should be about one week’s typical pay. • Pay referral bonuses incrementally based on new hire longevity. • Diverse advertising through multiple advertising media. • Multiple toll-free numbers linked to each advertising media so you can determine which is working best. • Use recruiting websites: Don’t overlook online recruiting and respond quickly to internet responses. • Make quick hiring decisions to avoid losing the best applicants. 17

• Listen to the “buzz” in the industry about your company and working for your company. • Recruiting telephone lines should be staffed by knowledge- able people who are there when calls come in and who can respond to questions; never put an employment call on hold; and staff on recruitment lines should have good tele- phone manners. • Consider ex-military applicants and use post-military recruiting programs. • Be sure that applicant expectations and descriptions given of the job match the reality. • Emphasize hiring an attitude and then training the skills. • Use applicant tests to assure a good match. • Consider selective advertising on applicant pools that may have people with the right attitudes. • Provide good training and use this as a recruitment feature and provide ongoing training opportunities. • Attend job fairs. • Try to design shifts that are attractive. • Train supervisors in good management skills. • Build a team and co-worker relationship. • Offer trip assignments in a way that more evenly distrib- utes the most desirable work. • Sponsor company breakfasts and lunches and develop company social events. • Distribute awards at public events attended by worker families. • Seek input from vehicle operators. • Develop opportunities for feedback and company inter- action. • Create a news and information system about the company. • Give operators access (open-door policies). • Avoid mediocre job and employee performance require- ments. • Create a suggestion box. • Pay attention to the company image. Focus Group Findings Input on recruitment and retention was also obtained from operators, front-line supervisors, and managers through a series of focus group meetings. To allow for a broad cross-section of participants, the focus groups were conducted remotely via conference calls. Participants from across the country were identified, contacted, and asked to call in to the meetings. Four focus groups were conducted—two with operators, one with supervisors of operators, and one with managers of paratransit services, representing nine transit systems. Two objectives formed the basis for questions asked during the focus groups: (1) to get views of participants on factors that affect paratransit vehicle operator recruitment and (2) to get views on factors that affect retention of vehicle operators. The participating systems were identified and selected with the assistance of the project’s Expert Panel. One group of oper- ators was selected from systems considered stable from the standpoint of recruitment and retention of paratransit opera- tors. A second focus group was conducted with operators from agencies considered challenged in the areas of recruitment and retention of operators. In three of the systems considered sta- ble, operators were employed to drive both paratransit and fixed-routes. In the challenged systems, operators were hired solely to drive paratransit vehicles. For both groups, two oper- ators were selected from each agency. In order to get the views of both newer and veteran operators, the team, with the assis- tance of provider managers, selected from each agency one operator with less than two years of service and one with more than three years of service. In most cases, both operators who had been selected joined in on the focus group call. Each par- ticipant received a $50 stipend for their participation. The nine participants in the supervisor focus group were all direct supervisors of vehicle operators. The manager focus group consisted of a combination of nine operations man- agers and general managers. At the beginning of each focus group, the moderator made overview comments, which are summarized in the following statements: • Each session was scheduled for two hours, with a 5-minute break midway through the session. • A series of pre-approved questions was asked during this session. Each person was to give their first name with each response to ensure comments were accurately recorded. • The session was being recorded digitally to facilitate accu- rate recording and analysis of comments made during the session. • If there was time left at the end of the session, participants would be given an opportunity to provide additional infor- mation that may help the research team better understand issues related to paratransit vehicle operator recruitment and retention. Subsequent to the introductory remarks, the moderator asked participants to introduce themselves and tell how long they had been employed in paratransit services and how long they had been in their current positions. The following sec- tion captures the essence of focus group findings. Attractiveness of the Operator Position Operators in both groups reported that they were attracted to the position of paratransit vehicle operator for a variety of reasons. The most frequent response was the desire to help people, followed by liking to drive, being outside, and being independent. While the most frequent position previously 18

held was in retail or a similar level job, some took the opera- tor position because of the opportunity for a post-retirement career change. Operators from challenged systems unanimously agreed that they were attracted to the job and remain on the job because they liked driving and/or working with people with disabilities. The following are examples of statements made by participants: • “I enjoy serving my clients. It’s rewarding.” • “I enjoy helping people who might not have anyone else.” • “Working with people with disabilities you get to know them well.” • “I love working with people with disabilities and seniors.” • “I like being out here by myself.” Operators concurred on what they felt typically attracts other applicants to the position of vehicle operator. The desire to help others was listed most often. In a few cases, the repu- tation of the transit agency or contracting company was listed as a factor that attracts applicants. In systems where the level of pay was described as “good,” this was seen as attractive to applicants. The same factors that attract other operators were mentioned as the reasons they stay on as operators, with some focus group participants remaining on the job for up to 15 years or more. In addition to the reasons that were men- tioned for being attracted to the position, the relationships operators form with clients over a period of months or years were cited as reasons some people stay on the job. Two partic- ipants in the stable group mentioned the good pay and bene- fits as well as the transit agency being like a family as factors contributing to longevity of operators. The views of the majority (75%) of supervisors on what attracts people to apply for paratransit operator positions paralleled those of operators. They concurred that the desire to help others is the primary attraction to the position. Two supervisors mentioned that often people do not know what the job entails before completing an application. It is their belief that sometimes job seekers see a sign for a job opening and because of difficult economic times apply for the para- transit operator job in search of job security. Why Some Do Not Apply Operators in the challenged group unanimously agreed that the wage level for paratransit operators is a major barrier to recruiting and retaining paratransit operators stating the following: “The pay needs to be raised for all we do. The pay is too low and the responsibility so big. The job does not pay much unless you are with the company for a long time.” In addition, the uncertainty of schedules was cited as a possible reason that others do not apply. Several operators in the challenged and stable system groups mentioned inability or lack of desire to work with people with disabilities or the mentally challenged as reasons that some people may not apply. One operator stated, “It isn’t for every- one.” The inability to read maps was cited as a deterrent to some applying for the position. Other factors cited by opera- tors were the lack of knowledge of the service area, followed by low pay and benefits, and licensing requirements. Supervisors expressed the belief that not knowing the layout of the service area is the primary reason people do not apply for the operator position. In addition, low pay and licensing requirements were cited as deterrents to attracting applicants. Several supervisors stated that overall benefits packages for paratransit operators are pretty bleak compared to those of fixed-route operators and adversely impact recruitment. In areas where the pay and benefits are considered good and are comparable to fixed-route operators, such as occurs in the sta- ble systems, maintaining a satisfactory applicant pool is not considered a problem. Managers in challenged systems also saw the pay structure and poor benefits as the primary issues in attracting operators. One person described the pay as being “the same wages as Wal- Mart.” The initial training pay is also a problem because in most cases, training wages are less than post-training pay. Lack of customer service skills were cited by managers in challenged and stable systems as a problem in attracting the right type of people to the job. How Providers Attract Applicants Operators in both groups identified a number of approaches that their employers use to attract vehicle operator applicants, with varying degrees of success. Ads on buses, banners in front of the transit facilities, newspaper ads, and word of mouth are some of the most frequently used. The operators felt that word of mouth was one of the most effective recruiting tools. They mentioned that as they are driving their routes, people ask them about their jobs and inquire about openings. In this way, operators become informal recruiters for their employers. Some providers offer employee referral programs, in which the referring operator receives a bonus when the person they refer is hired, and a second payment if the person remains with the provider for a certain period of time. Several managers also spoke about the importance of word of mouth as a recruiting tool. Five described formal- ized employee referral programs to encourage employees to spread the word about job opportunities at their agencies. Through referral bonuses given at various intervals, employ- ees have an incentive to identify potential operators. Five managers also mentioned the practice of placing ads on Internet sites such as the contractor’s website, Craigslist, Monster, Career Builder, and in unemployment offices and 19

job placement centers. One manager stated that the system has had very positive results using one particular Internet source to secure applicants, especially younger computer savvy job seekers. Why Operators Leave Operators from challenged systems stated that a major bar- rier to retaining operators is the lack of recognition by the employer. One operator stated, “They are so used to manag- ing turnover, they have forgotten how to manage people.” At one system the operator stated, “Every now and then they might give us a barbeque but other than that, they don’t do anything to try to keep you.” Another operator from a chal- lenged system reported that there is a once-a-year banquet, but only the fixed-route operators get recognized. Operators in the challenged group identified the way their employer makes shift assignments as a major reason people leave claiming that they will “schedule you a day off and then will draft you to work on your off day.” Shifts based on senior- ity were also identified as barriers to retention. One operator, a female, reported that late night flex shifts are “discouraging and kind of frightening since the system operates until midnight.” Approximately 80% of operators in the challenged group commented that fringe benefits for paratransit operators are inadequate. The following are quotes from the group: “We need better benefits. Always changing insurance and giving us bad benefits.” One operator commented, “The people who drive the big buses get more holidays than the paratransit operators.” Operators in the stable group had more difficulty stating why most people leave their employment because there is very low turnover at their agencies. In most of these cases, operators drive both fixed-route and paratransit assignments. These operators feel that the most common reason operators leave is that they cannot deal with the stress of working with people who are different or with disabilities. Some feel that operators may leave because they are looking for something different. Schedules and the inability to read a map were cited by more than one operator as possible factors contributing to people leaving. In one locale with a number of transit agencies to select from, operators move from one system to another for higher pay. It is not uncommon for operators to come to an agency, get their Commercial Driver’s License, and go else- where, presumably for higher pay. Six of the nine supervisors (67%) gave poor attendance as the primary reason for involuntary termination of operators. The next most frequent reason given is accidents, which three participants highlighted. Fifty percent stated that they have difficulty covering runs, with some runs having to be distrib- uted as add-ons. In some cases, supervisors and managers must cover runs. Two supervisors stated they have a sufficient number of operators available, one with an extensive extra- board (shared with fixed-route). Supervisors estimate annual turnover rates range from under 20% to 50%, with the major- ity ranging between 35% and 50%. Managers reported hours of work and working on week- ends as other reasons operators leave the company. Thirty- seven percent of the managers stated that operators leave for more money. One manager stated that some use operator pay as a second income. Another stated that turnover seems to occur most often at the bottom of the pay scale. Managers unanimously reported that attendance was the primary rea- son for involuntary termination. One manager added that accidents and relocation due to the rising cost of living were also frequent reasons. Managers report that initial training for operators ranges from 1.5 to 8 weeks in length. Those with 4 weeks or less con- cur that training should be longer. Four managers estimated that 50% of new hires do not complete training. One partic- ular area of concern is the need for more time learning to read maps. Those with training lasting up to 8 weeks typically are training for paratransit and fixed-route runs at the same time. Factors Adversely Affecting Operator Satisfaction and Performance According to the supervisor group, scheduling is the most frequently cited source of frustration for paratransit operators, with seven of nine supervisors making statements in that regard. In cases where an organization other than the service provider develops the schedule, the problem is exacerbated. The most common complaint is that the schedules are “too tight” with not enough time to get from one point to another safely. In addition, the number of unscheduled trips, in one case up to 53 a day, is an ongoing challenge for operators. One supervisor stated that 99% of operator complaints are about scheduling. The second most frequent source of dissatisfaction reported by operators is the disrespectful behavior of dispatchers. The major complaint from challenged systems operators regarding operating policies and practices revolved around the attitude and support of dispatchers. Operators stated that dispatchers take a long time to respond to their calls. One operator stated: “You don’t get help from them. They don’t know the city themselves. It is frustrating when you can’t do what you could do because of poor planning.” The degree of operator frustration is illustrated in the following comments: • “Scheduling is not good.” • “Lots of favoritism—better routes go to the people they get along with.” • “Will send two buses to one house for two people.” • “Not enough time allotted to do the run; then they do an add-on.” 20

• “Dispatchers are disrespectful and rude.” • “Dispatchers sometimes don’t sympathize with what the operators are dealing with.” Managers also identified scheduling as an issue that impacts operator satisfaction. Participants reported that operators leave due to unfavorable work hours and the schedules. Oper- ators want weekends and holidays off. One manager stated that changes in the schedule could result in starting 30 min- utes earlier than originally scheduled and ending as much as 90 minutes later than scheduled. Managers concurred with operators that disrespectful dispatchers negatively impact oper- ator job satisfaction. Improvement of Job Satisfaction and Performance Several systems allow operator trainees additional time to master the knowledge and skills to become proficient and comfortable with the position. Those systems that do a real- istic job preview during the application process and early on in training seem to have better success at retaining operators. Supervisors described a number of approaches their em- ployers use to improve vehicle operator job satisfaction and performance. Most were described in terms of incentives: 55% (5) give safety awards; 33% (3) give attendance awards; 33% (3) recognize the employee of the month and/or employee of the year; and 33% (3) issue team rather than individual awards. In several cases, employers use a combination of incentives to recognize employees. The types of awards vary from system to system: plaques, rings, pendants, cash bonuses (up to $250), tee shirts, and gift certificates. One manager reported that the employer cannot afford to give bonuses; however, operators were recognized with pro- motions and at safety meetings. Another reported quarterly bonuses ($250) and a corporate bonus of an extra $100. A third manager stated that if goals are met, the employee receives $50 per goal met. Similar to supervisor comments, managers cited recognition programs to include commenda- tions, gatherings off property, employee of the month, pre- ferred parking, recognition pins, bi-monthly bonus for safety and attendance, customer commendations, and regional oper- ator of the year competition. Other examples given included regularly scheduled open forums in which operators get to talk about anything they want to discuss. Operators who receive customer commendations also receive a letter and certificate from the general manager, and the commendation is posted on the company bulletin board. In most cases, supervisors and managers stated that opera- tors can take their concerns to their supervisor or manager. In some cases, committees are in place for the airing of concerns. Quality of Processes for Resolving Operator Issues Supervisors rated the quality of the processes used to resolve operator issues on a scale of 1 to 5, with five being the highest rating possible. While the ratings ranged from 3 to 5, the average rating was 4.3, and only two gave ratings below 4. Supervisors cited things like open policies, monthly safety meetings, and union meetings—“We do a lot of listening, a lot of avenues—safety committees, run-cutting committees, culture club.” Managers expressed their desire to make employees feel they are appreciated and listened to, and that they provide opportunities that encourage operators to communicate their concerns. These programs include monthly lunches to say thank you (for example, Circle of Excellence), an anonymous call line, and an open door policy. Managers state they spend time with operators, have suggestion boxes, and mentoring programs. On the same scale of 1 to 5 used by supervisors, managers rated the effectiveness of current procedures in handling operator complaints at an average of 3.5. One operator reported that although management says they have an open door policy, when suggestions are made, they respond by saying “we can’t do it that way.” Implications of Findings The public service nature of ADA paratransit and the impor- tance to operators of providing an important service was a strong theme throughout the discussions. The sense that many individuals leave the position because they are not people- oriented reinforces this theme and underscores the importance of recruiting individuals who are customer-service oriented. The expressed opinions that some individuals take the job thinking it is a “driving” job, only to find out it involves much more, suggests a need for improved pre-screening of candi- dates and for more accurate previews of the job. The low level of compensation, both wages and limited benefits, was also a clear theme. The differences in compensa- tion between fixed-route operators and paratransit operators were also mentioned. Compensation in contracted services, in particular, appears to be an issue that will require innovative procurement and contracting efforts. Tight scheduling and the frustrations of having to perform difficult schedules also proved to be an important factor. Given that tight resources and tight scheduling are likely to be a long-term phenomenon, a realistic approach may be to develop more effective lines of communication that “take the pressure off ” vehicle operators. Developing a “team” attitude toward the difficulties of the situation, rather than allowing operators to feel like they are failing individually, may be important in systems that are facing capacity and scheduling 21

pressures. Dispatch, supervisor and management support in these cases would seem to be crucial. Ongoing recognition of the efforts made by operators would also seem to be vital. Poor work shifts for those without seniority was a noted fac- tor. Alternative ways to structure shifts to better share the bur- den of weekend and evening capacity needs may be needed. Incentives or pay differentials for less desirable shifts might also be considered. Problems that can be more easily addressed include issues people may have with map reading as well as operators leav- ing or not applying because they do not know the area. The findings suggest a need for better pre-screening of applicants to identify individuals who have a reasonable sense of direc- tion and map reading skills. Greater use of tools for identify- ing applicants who have map reading and directional skills seems to be needed. To address these issues, more extensive training in map reading and orientation to the service may be helpful. Advanced technologies such as GPS systems could also assist vehicle operators who might have greater difficulty reading and understanding maps. 22

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TRB’s Transit Cooperative Research Program (TCRP) Report 142: Vehicle Operator Recruitment, Retention, and Performance in ADA Complementary Paratransit Operations provides guidance for understanding the relationships that influence and enhance operator recruitment, retention, and performance in Americans with Disabilities Act (ADA) complementary paratransit services.

Appendixes to TCRP Report 142 were published electronically as TCRP Web-Only Document 50: Survey Instrument, Productivity Charts, and Interview Protocol for Case Studies for TCRP Report 142.

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