Attracting, Recruiting, and Retaining Skilled Staff for Transportation System Operations and Management (2012)

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1 1. OVERVIEW OF PROJECT The purpose of this project was to provide transportation agencies with strategies and resources to meet their needs for attracting, recruiting, and retaining transportation system operations and management (SOM) staff. The research described herein considers the potential supply and demand for SOM skills and staffing; the actions transportation agencies may take to attract, recruit, develop, and retain skilled staff with SOM capabilities; and the tools that are available or may be developed to assist agencies in attracting and recruiting skilled staff in this area. SOM draws on the knowledge of many disciplines—including, for example, traffic engineering, intelligent transportation systems, maintenance, emergency response, traffic operations, traffic safety, incident management, performance measurement, and system planning—applied in a comprehensive approach to increase the efficiency and safety of the transportation system. SOM encompasses interactions among transportation modes and between the transportation system and other functions such as emergency management, public safety, and outreach. In this report, we provide information regarding the methodology, results, recommended action plans, and potential future research directions in relation to this project. 2. PROJECT METHODOLOGY The purpose of this research is to provide transportation agencies with strategies and resources to address their needs for attracting, retaining, and enhancing the skills of SOM staff. To execute this project, we completed the following nine tasks: 1. Conducted literature review, engaged leadership, and determined SOM staffing estimates. 2. Identified the principal pools of potential workers to meet forecasted SOM needs. 3. Described SOM careers, career paths, and attributes and training needed for successful performance of SOM jobs. 4. Prepared Technical Memorandum 1. 5. Described and evaluated current practices in transportation agencies. 6. Identified resources available to facilitate attracting, recruiting, developing, and retaining SOM staff. 7. Developed action plan and strategic marketing plan. 8. Presented key findings and recommendations. 9. Submitted final report. Project results—in the form of example successful programs, state-of-the-art initiatives, and industry best practices to attract, recruit, develop, and retain SOM staff—provide much-needed workforce guidance to transportation SOM programs across the United States. An overview of the method for each of the nine tasks is provided in this section. This is followed by the full project results and the final strategic workforce recommendations and action plans.

2 Task 1: Conduct Literature Review, Engage Leadership, and Determine SOM Staffing Estimates Task 1 involved four major subcomponents. First, the research team built on the preliminary literature review by further investigating the results of NCHRP Project 20-77 and other current materials to more clearly understand the workforce trends impacting SOM occupations. Second, we engaged transportation leadership across the United States to describe current and anticipated future SOM employment needs and the technical knowledge requirements for SOM careers. Third, we reviewed U.S. Department of Labor (DOL) and Department of Transportation (DOT) information to determine if SOM staff positions are adequately addressed in employment statistics. This involved developing estimates of national and regional (e.g., by state) needs for SOM staff, for the years 2005, 2010, 2015, and 2020. Finally, we determined whether staffing needs represent new employment or reclassification of existing positions. Each of these four subtasks is described in this section. Subtask 1.1—Conducting the Literature Review. To fully understand SOM occupations, our team conducted a literature review to identify and assemble information from United States and international published research, technical reports, conference presentations, and case studies on SOM employment trends. An overview of the documents we reviewed is provided in Exhibit 1. Exhibit 1 Literature Review Sources Previous TRB projects including the following NCHRP Projects: 20-77, Transportation Operations Training Framework; 20-24(40), Analysis and Benchmarking of State DOT Recruitment and Hiring Practices; 20-24(48), Analysis and Benchmarking of State DOT Human Resource Activities; 20-24(50), In- Service Training Needs for State DOTs; 20-72, Tools to Aid State DOTs in Responding to Workforce Challenges; and TRB Special Report 275: The Workforce Challenge. ICF’s Related Industry and Private Sector Benchmarking Database that includes data ICF has collected on recruitment and retention practices during similar studies with Fortune 500 companies, related federal and state agencies, and local and national member associations. Surveys and research conducted by AASHTO, Association of Metropolitan Planning Organizations (AMPO), International City/County Management Association (ICMA), and state leagues of municipalities. NCHRP Research Results Digest 327: Transportation Implications of Emerging Economic Development Trends, published by the Transportation Research Board in August 2008. ICF’s Transportation Recruitment, Development and Retention Practices Database, which extensively cataloged over 150 ‘Best-Practice’ recruitment, development, and retention programs for NCHRP (created for NCHRP Project 20-81). Database of Best Practices in Recruitment and Workforce Management of DOT Contractors identified during a project for the Florida Department of Transportation. Professional Human Resources (HR) organizations, which provide publications and published surveys by organizations with specific expertise in recruitment, retention, and workforce development issues such as the Society for Human Resource Management (SHRM), the Society for Industrial/Organizational Psychologists (SIOP), the International Public Management Association for Human Resources (IPMA-HR), and the John J. Heldrich Center for Workforce Development at Rutgers University. Technical reports and relevant studies conducted by private- and public-sector organizations such as the Department of Defense, the Department of Education, Federal Transit Administration, and other federal agencies and state and local organizations.

3 Exhibit 1 (Continued) Literature Review Sources Journals devoted to applied problems in organizations, such as Personnel Psychology, Academy of Management Journal, Public Personnel Management, Journal of Applied Psychology, and Journal of Organizational Behavior. Position description and skills databases, such as the Occupational Information Network (O*NET) and the National Transportation Training Resource. Industry journals, such as Transportation and Transportation Quarterly. The primary outcome of the Task 1 literature review was to establish a preliminary definition of past, current, and future SOM employment trends. This understanding informed subsequent project activities. Subtask 1.2—Interviewing Subject Matter Experts (SMEs). To further develop an understanding of the SOM workforce, specifically concerning the current and anticipated future SOM employment needs and the technical knowledge requirements for SOM careers, our team conducted interviews with a representative group of SOM subject matter experts (SMEs). These SMEs had at least 5 years’ experience in various SOM careers and were identified through their involvement in one of the following: NCHRP Project Panel 20-86, AASHTO Highway Subcommittee on Systems Operation and Management, and/or NCHRP Project Panel 20-77. SMEs were also selected across diverse and geographically dispersed transportation agencies that further varied in size and community distinction (such as urban versus rural). All experts participated in a 1- to 2-hour telephone interview to discuss opportunities and obstacles they saw in careers in the SOM field. Using the preliminary literature review findings, we developed a protocol comprised of open-ended questions and probes that allowed for investigation of the factors that facilitate and challenge career growth, as well as the specific career paths that incumbents have followed to pursue an SOM career. For example, the protocol included questions regarding the types of jobs, work responsibilities, education, and training which helped SMEs progress toward their current SOM career. In total, we interviewed 24 SOM experts. Exhibit 2 provides the positions and represented agencies of the SOM experts who participated in these interviews. Exhibit 2 SOM Interview Participants Position Title Representative Agency Program Manager for Transportation Engineering Operations AASHTO Transportation Staff Consultant Bergmann Associates Deputy District Director of Operations California DOT Chief, Division of Research and Innovation California DOT ITS Branch Director Colorado DOT TMC Operations Manager Delaware DOT Systems Preservation Engineer FHA Assistant Chief Engineer (Operations) Idaho DOT Branch Manager for System Operations Kentucky Transportation Cabinet Director of Transportation Maine DOT

4 Exhibit 2 (Continued) SOM Interview Participants Position Title Representative Agency Deputy Director, Office of Highway Development Maryland State Highway Administration Chief, Recruitment and Examination Division Maryland State Highway Administration Director of ITS Programs Massachusetts DOT Systems Operations and Management Engineer Michigan DOT Director of System Management Missouri DOT Deputy Director/Chief Engineer Nevada DOT Executive Director, Statewide Traffic Operations New Jersey DOT Manager of ITS Operations New Mexico DOT Special Assistant to the Chief Operating Officer New York State DOT Director for Systems Operations, Office of Traffic Safety and Mobility New York State DOT Director, Workforce Development Appalachian Transportation Institute State Traffic Engineer, Transportation Mobility and Safety North Carolina DOT Operations Director Utah DOT Chief of Operations Virginia DOT Subtask 1.3—Determining SOM Staffing Estimates. To generate staffing estimates for SOM occupations, our team mapped SOM-related work functions to standardized occupational codes (SOCs or O*NET-SOC Code) developed by the Employment and Training Administration of the Department of Labor (DOL). This mapping exercise allowed our team to identify DOL standard occupations that include the knowledge, skills, and abilities (KSAs) characteristic of SOM occupations. KSAs are often designated as mandatory or desirable and are defined in the following manner: Knowledge statements refer to an organized body of information usually of a factual or procedural nature which, if applied, makes adequate performance on the job possible. A body of information is applied directly to the performance of a function. Skill statements refer to the proficient manual, verbal, or mental manipulation of data or things. Skills can be readily measured by a performance test or proficient manipulation of things where quantity and quality of performance are tested, usually within an established time limit. Ability statements refer to the power to perform an observable activity at the present time. This means that abilities have been evidenced through activities or behaviors that are similar to those required on the job. Next, our team generated and analyzed current and future occupational estimates for SOM occupations through the use of SOC codes. We conducted this analysis at the national, regional (i.e., Northeast, South, Midwest, and West), and state levels. Our historical estimates provide information on the change in SOM-related occupations during the time period between 2005 and 2010. Our future occupational reports provide information on projected changes for SOM-related occupations between 2010 and 2015, as well as 2010 and 2020.

5 Subtask 1.4—Estimating Whether Needs Represent New Employment or Reclassification of Existing Positions. Using results of Task 1, we assessed and identified employment trends to determine if new employment classifications are needed or if existing positions should be reclassified. This involved determining if a completely new SOM classification is needed, determining if collapsing two old classifications into one new class was necessary, or if dividing the responsibilities of an existing class into two new classes would more accurately represent DOT needs and make the work more manageable. As part of this process, we relied on our literature review results, data collected during our SME interviews, and our analysis of SOM occupations. In addition, we assessed new technologies and agency demands on SOM staff. Our findings indicate that while the demand for SOM staff will continue to increase universally, there is no overarching, national need for SOM positions to be reclassified or combined. The use of SOM staff varies greatly across agencies, to meet individual organizational needs. Thus, classification decisions are most appropriately made within agencies. Task 2: Identify Principal Pools of Potential Workers to Meet Forecasted SOM Needs Our team worked to identify pools of potential workers who may be available to meet SOM workforce needs by assessing two essential components of the skills pipeline framework: Renewal Systems: This component represents opportunities to recruit new talent to the SOM field through the retraining of workers employed in related transportation occupations as well as the retraining of workers migrating from downsizing industries. Advancement Systems: This component of the skills pipeline is the educational system. It represents opportunities to attract new talent to the SOM field from post-secondary programs. Additionally, post-secondary education provided by community and technical colleges is included. Our assessment of renewal systems consists of two analytical components. First, we identified transportation and other related occupations that involve KSAs common to SOM occupations. We identified SOC codes related to the core groups of SOM occupations to generate an expanded list of SOCs from which future applicants can be drawn into the SOM domain. The expanded list of SOC codes contains occupations that are similar in nature to traditional SOM occupations in terms of KSAs. These professionals are suitable training candidates who may be able to be prepared for SOM positions in a cost-effective manner and within a relatively short time. Second, in our assessment of renewal systems, our team identified industry sectors that are shrinking (or are projected to shrink) in terms of employment. These industry sectors were identified so that future recruitment efforts at the local, regional, state, and federal levels can be informed and guided toward expanded potential applicant pools. By virtue of working in industry sectors that require professionals with similar KSAs and competencies that are also common to SOM occupations, these workers are ideal candidates for retraining and transitioning. As part of our advancement systems evaluation, we employed a “skill investigation” to identify KSAs associated with current/future SOM occupations. Awareness of occupational KSAs helped us to target workforce development efforts by focusing on issues such as skill obsolescence, skill

6 abundance, and the skills pipeline. In addition, we used data analytics to estimate rates of graduation and assess the skill-rendering capacity of training and educational infrastructure that prepares students in competencies crucial to satisfying future SOM occupational needs. Results of Task 2 linked core work functions to training and education courses and allowed our team to determine the existing skills pipeline that augments SOM workforce needs. Task 3: Describe SOM Careers, Career Paths, and Attributes and Training Needed for Successful Performance of SOM Jobs This task sought to describe SOM careers, career paths, and attributes and training needed for successful performance of SOM jobs. We conducted a comprehensive analysis of available literature, SOM job information, and employment practices used by transportation systems to recruit, develop, and retain SOM staff. Our analysis included a thorough investigation of SOM careers, the challenges and opportunities associated with the career, the future direction of SOM careers, and the different career paths that feed into successful, long-term SOM careers. In addition, one of the primary goals of our Task 3 analysis was to capture a comprehensive set of effective practices that will help organizations prepare current employees as well as potential future talent for successful and satisfying SOM careers. Task 3 was conducted according to the following three subtasks. Subtask 3.1—Analyzing Literature Review Findings. We utilized the information collected in the literature review to create a broad framework to describe the SOM career and the traditional career paths that feed into SOM jobs. This framework describes the opportunities, rewards, challenges, and impediments associated with pursuit of a SOM career. Projections made in Task 1 regarding future work requirements and SOM employment needs were also reviewed to identify emerging workforce challenges. Subtask 3.2—Interviewing Subject Matter Experts (SMEs). Once we developed a broad framework of the SOM career and jobs that compose SOM career paths, we moved into Subtask 3.2 to identify personal experiences of SOM staff and the career paths which have and will lead to SOM careers. To conduct this subtask, we leveraged our interview data from Task 1. The SME interviews allowed us to further define the career paths which feed into SOM careers and helped to further articulate the rewards, challenges, and barriers experienced in SOM careers. As part of this review, we also identified factors such as work responsibilities, education, and training that facilitate and challenge career growth. Subtask 3.3—Collecting SOM Job Descriptions. To begin Subtask 3.3, we analyzed the job descriptions (JDs) received through the literature review and interviews. We utilized JDs to identify the core work requirements for SOM jobs. We also used O*NET’s comprehensive list of generalized work activities and duties for standardizing the job information across JDs. In addition, O*NET was used to identify knowledge, skills, abilities, and other attributes (KSAOs) needed to perform the duties outlined in the JDs. Next, we identified groupings of similar job duties that are presented across the JDs within a job title cluster to consolidate duties as necessary. The result was an outline of possible duties conducted within each of the SOM jobs of interest. Once the work requirements of the SOM

7 careers were identified, a similar approach of identifying patterns across the JDs was used to create an exhaustive list of viable KSAOs for each of the job titles. In addition, we utilized the principles of Future-Oriented Job Analysis to identify KSAOs which will be needed to perform the duties of transportation managers in the future (Landis, Fogli, and Goldberg, 1998).1 To verify that the identified KSAOs link back to th e fundamental requirements of the SOM jobs, we convened our project team to provide linkage ratings between the KSAOs and job duties identified for each of the SOM jobs of interest to determine which KSAOs are critical to the job. As a final step in this subtask, we clustered the KSAOs into broader competencies which will allow for comparison across SOM jobs and between jobs that feed into the SOM career. Task 4: Prepare Technical Memorandum 1 To fulfill the requirements of Task 4, we provided the NCHRP project panel with a comprehensive Technical Memorandum describing our methodology and results from Tasks 1 through 3. Based on panel feedback, we refined the memorandum and planned for the second phase of the project. The revised report served as the foundation for the research conducted in project Tasks 5 through 7. Task 5: Describe and Evaluate Current Practices in Transportation Agencies In this key task, we conducted a thorough assessment of current human resource (HR) practices used by transportation agencies to attract, recruit, develop, and retain SOM staff. Specifically, we collected data on practices such as strategic recruitment, professional development and training, compensation and benefits programs, outsourcing polic ies, and other programs that directly impact key organizational outcomes (e.g., satisfaction, turnover for SOM). Results of this task informed our SOM workforce recommendations and related action plans. Task 6: Identify Resources Available to Facilitate Attracting, Recruiting, Developing, and Retaining SOM Staff Our research team captured a comprehensive set of effective practices and resources related to the recruitment, development, and retention of SOM jobs. Results of this task allowed our team 1 Job analysis is often described as the cornerstone of successful em ployee selection efforts and perform ance management initiatives. A job analysis involves the systematic collection of information about a job. Job-analytic methods are often described as belonging to one of two approaches. One approach, the task-oriented job analysis, involves an examination of the duties, tasks, and/or competencies required by a job. The second approach, a worker- oriented job analysis, involves an exam ination of the knowledge, skills, abilities, and other characteristics (KSAOs) required to successfully perform the work. Various adaptations of job-analytic met hods include co mp etency m odeling, which exam ines large groups of duties and tasks related to a common goal or process; and practice analysis, which examines the way work is performed in an occupation across jobs. Future-oriented job analysis, (also known as strategic job analysis) involves analysis of jobs that will exist in the future or that will be changed drastically as a result of reorganization or other change efforts. The approach for analyzing jobs of the future can briefly be summarized in th e following steps: (1) Analyze the current job to identify current tasks and KSAs. (2) Assemble SMEs who are knowledgeable about the future job to discuss how future issues are likely to affect the job. Collect information from these individuals concerning expected job changes. (3) Identify differences between the job as it currently exists and th e job of the future. Is olate those tasks and KSAs where the greatest change is expected.