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

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49 4. FULL INTRODUCTION AND OVERVIEW OF PROJECT RECOMMENDATIONS The ultimate goal of this project was to develop strategic recommendations and guidance that can be implemented by transportation agencies to recruit SOM staff and enhance SOM staff capabilities. To achieve this objective, the ICF project team incorporated results of Tasks 1 through 6 to develop strategic action plans related to the career stages of the transportation workforce pipeline as identified in NCHRP Report 685: Strategies to Attract and Retain a Capable Transportation Workforce (Cronin et al., 2011). Each action plan describes the information, recruitment, and retention resources needed to implement the workforce recommendation; the costs and schedule for development; and outreach activities. In order to provide stakeholders with a comprehensive understanding of the recommendations provided, we present the following here: Overview of transportation pipeline Summary of the materials reviewed to create strategic guidance Introduction to the strategic action plans Recommendations and Strategic Action Plans for each SOM career stage In the subsequent sections, we provide more detail related to each of these topics. 4.1 OVERVIEW OF TRANSPORTATION PIPELINE The transportation workforce pipeline consists of the major career stages through which an SOM employee might progress before, during, and after their employment at a transportation agency. The graphic in Exhibit 25 highlights these career stages and demonstrates that the seven target SOM occupations introduced earlier in this report are directly impacted by each stage of the pipeline. Exhibit 25 Transportation Workforce Pipeline Graphic

50 In each strategic action plan, this graphic is presented again, highlighting only the career stages under consideration and the occupations directly influenced. The intention is to indicate the relationship between the strategic recommendation and specific job categories. It should be noted, however, that many of the action plans could be expanded or adapted to meet the needs of additional career stages and occupations. Further, many of the action plans would undoubtedly have indirect positive effects on other career stages and occupations. 4.2 SUMMARY OF THE MATERIALS REVIEWED TO CREATE STRATEGIC GUIDANCE To form the foundation of the strategic recommendations and related action plans, we conducted a thorough assessment of the data collected during the first six tasks of this study. This data included results from the SO M leadership interviews, the described SOM staffing analysis, and a review of current human resource practices used to attract, recruit, develop, and retain SOM staff. This assessment included an analysis of practices related to strategic recruitment, professional development and training, compensation and benefits programs, outsourcing policies, and other programs that directly impact key organization outcomes (e.g., satisfaction, turnover) for SOM. Exhibit 26 provides an overview of the sources we consulted to fully understand programs and practices used to attract and retain SOM staff across DOTs. Exhibit 26 Sources Consulted in Development of Strategic Action Plans ICF’s FHWA Workforce Database detailing nearly 100 workforce programs including: - AASHTO’s Transportation and Civil Engineering (TRAC) Program, - West Point Bridge Design Contest, - FIRST© Robotics Competition, - ACT WorkKeys® job skills system, and - Summer Transportation Institutes. ICF’s Related Industry and Private Sector Benchmarking Database that includes data ICF collected on recruitment and retention practices during similar studies with Fortune 500 companies, related federal and state agencies, and local/national associations . Additional TRB projects , including results from 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 DOTs in Responding to Workforce Challenges”; and TRB Special Report 275. Industry source documents that describe: - Gridlock Buster traffic control game, - FIRST© Robotics Competition, - Dowling College School of Aviation FIRSTplus air traffic control (ATC) simulator, and - Two videos provided in subject RFP. ICF’s Transportation Recruitment, Development and Retention Practices Database, which extensively catalogs 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 dur ing a Florida Department of Transportation project. 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.

51 Exhibit 26 (Continued) Sources Consulted in Development of Strategic Action Plans 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. 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. Professional Human Resource (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. Industry journals, such as Transportation and Transportation Quarterly. 4.3 INTRODUCTION TO THE STRATEGIC ACTION PLANS As described, strategic recommendations and action plans were developed to address the SOM recruitment or attraction challenges associated with each career stage in the transportation pipeline. Separate action plans were created to ensure that the strategic guidance was focused enough to make implementation realistic and to ensure that the plans, when used together, were comprehensive enough to impact all major aspects of the SOM workforce pipeline. In this section, an overview of the general action plan categories is presented to facilitate SOM decision-maker use of the strategic guidance provided. Exhibit 27 identifies the major sections and specific categories used across all of the action plans. This exhibit also defines the type of information provided in the category.

52 Exhibit 27 Overview of Data Fields Used in Each Strategic Action Plan Data Field Name Description Section 1 Overview of Strategic Recommendation Recommendation Title Short descriptive label for strategic recommendation. Recommendation Highlights Bulleted overview of key points of interest from full strategic action plan. Description Provides broad overview of proposed recommendation. Rationale for Recommendation Provides rationale for the recommendation based on available literature, SOM needs, and study findings. Section 2 Target Audiences Relevant Position Graphic depiction of the anticipated target occupations impacted as a result of proposed recommendation and target career stages. Source of Initiation Indicates whether the recommendation should be initiated by the individual agency or at the industry level. Primary Human Resource Focus Indicates if the recommendation is an attraction, recruitment, retention, or development effort. Implementation Level Describes the level at which the recommendation should be implemented. Estimated Time to Implement Provides an estimate of how long it will take to develop and implement the recommendation. Return on Investment Identifies the approximate time required for the practice to pay off. Section 3 Implementation Plan Action Lead(s) Identifies the key person(s) within the agency who are accountable for developing and managing the appropriate action plan, including carrying out the specific implementation steps. Targeted Audience(s) Identifies the key person(s) who should be contacted in order to implement the practice and the stakeholders with whom to coordinate. Steps to Implement Presents the key steps that should be followed, in order to successfully implement the practice. Graphic Depiction When applicable, this section provides a graphic to help the reader understand the implementation process.

53 Exhibit 27 (Continued) Overview of Data Fields Used in Each Strategic Action Plan Data Field Name Description Section 4 Communication Plan Communication/Outreach Strategies Describes communication and outreach strategies that will help ensure successful implementation. Process for Obtaining Buy-In Describes the critical steps and processes that will assist the agency in getting senior leadership to champion the practice. Section 5 Useful Internal and External Resources To Implement Practice Identifies the internal and external resources that will assist in implementing the practice including groups or stakeholders that will need to be involved in implementation. To Sustain Practice Identifies the internal and external resources that will assist in successfully sustaining the practice. Section 6 Example(s) of Effective Programs Example(s) of Real-World Effective Programs Provides bulleted examples of effective programs that have been successfully implemented and practiced at various state DOTs or in other industries. Where possible, contact information for each of the examples is provided. Section 7 Alternative Approaches Alternative Approaches Alternative approaches that may be less optimal, yet effective solutions for organizations with limited resources to consider. Section 8 Impact Positive Outcomes of the Practice Describes anticipated results of the practice with full adherence to the implementation steps. The impact information may include findings from research studies and/or anecdotal evidence from other agencies/groups who have implemented the practice. Section 9 Cautionary Considerations Negative Outcomes of the Practice Provides bulleted list of potential challenges, cons, or residual effects of the implementation that should be considered. Each Cautionary Consideration includes ideas for how the challenge might be overcome.

54 The major sections and specific categories included in the action plans were designed to provide users with all the information needed to successfully implement the recommendations proposed. 4.4 RECOMMENDATIONS AND STRATEGIC ACTION PLANS FOR EACH SOM CAREER STAGE In this section, eight strategic SOM workforce recommendations are presented. The recommendations are designed to provide transportation agencies with strategies and resources to meet their needs for SOM staff. The recommendations will allow agencies to expand the pool of workers with SOM expertise by reaching out to students at all levels who are preparing to enter the workforce, to older workers seeking to extend their careers past traditional retirement ages, and to workers of all ages seeking to change their career paths. To make optimal use of this report, an agency’s Human Resource (HR) director should thoroughly evaluate the current and projected SOM workforce needs they have with respect to the external labor market and then map those needs to the “Primary Human Resource Focus” for the recommendations that have “Agency” identified as the “Source of Initiation.” It is suggested that HR directors initiate the majority of these recommendations due to their unique expertise and training in personnel management. However, in some cases the recommendations indicate that SOM managers could be appropriate to serve as the action lead when an HR director is either not available or the director requires additional support, or the manager may have unique knowledge about the specific workforce challenge and he/she desires to initiate changes at a divisional level and drive them up to the greater agency level. It would be optimal if the industry- level recommendation were initiated by a national association as indicated because it requires an orchestrated effort across numerous agencies. For each of the eight recommendations included in the report, a comprehensive action plan was created. Exhibit 28 defines each of the recommendations and identifies relevant career stages. Please note that the recommendation titles are hyperlinked to their respective action plan.

55 Exhibit 28 Overview of Strategic SOM Workforce Recommendations by Career Stage Target Career Stage SOM Workforce Recommendation K-12 1. Implement Annual or Semi-Annual SOM Career Days. The K-12 target career stage is broken into two age groups so that agencies can create programs and materials that are tailored to better match how the age groups become interested and learn about SOM. The first age group includes students in grades K-8, while high school students are the second age group targeted. In order to expose elementary and middle school students to the SOM-related fields in the transportation industry, agencies could partner with after school programs to create a 3- to 5-day program that explores different components of SOM. Part of this learning program could include classroom time where students have the opportunity to learn about the transportation industry from a variety of sources (e.g., books, movies, video games), with the goal of piquing the students’ interest. An emphasis on safety issues should be included in the materials. The second part of the learning program could include a field trip to the local transportation agency, which would allow students to see how the concepts they learned are applied in everyday work. Students could try the equipment onsite and experience an SOM job. In order to expose high school students to the SOM-related fields in the transportation industry, agencies could reach out to vocational technical schools and Science, Technology, Engineering and Mathematics (STEM) schools about developing an SOM Career Day. Students enrolled in these types of schools are taught the skills they need to succeed in today’s challenging world. Many of these skills and abilities are sought after for positions within SOM, including the ability to think critically, solve complex problems, and drive advancements in technology. In addition, these types of schools are more flexible in designating a couple of hours or even a day for guests to speak to students about their careers. This opportunity gives employees at DOTs and operation agencies a chance to connect with a young audience and share experiences from their job at a time when these students are expanding their interests and beginning to think about which careers take advantage of their skill sets. SOM employees are able to answer questions and provide detailed examples of their daily work activities and projects. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees

56 Exhibit 28 (Continued) Overview of Strategic SOM Workforce Recommendations by Career Stage Target Career Stage SOM Workforce Recommendation K-12 2. Develop SOM Curriculum Content for Related Higher Education Courses and Training Programs. Associations (AASHTO, ACEC, ASCE, etc.), university transportation centers (UTCs), and other stakeholder organizations should work with higher education and training providers to develop curriculum content that can be added to existing courses and programs. Target providers might include community colleges, four-year colleges, Local Transportation Assistance Programs (LTAPs), and the National Highway Institute. This process will help address the technical needs of the SOM discipline. In addition, since educators influence job decisions (e.g., teachers and school counselors), SOM stakeholders should also consider ways to support students through grants for night school, scholarships for degrees, and certification classes during off-peak times. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees K-12 3. Implement Student-Worker Internship Program with a Job Rotational Component. Agencies should implement student-worker internship programs that allow for the option to rotate jobs. Such programs allow DOTs to target universities with students in specific programs and offer them paid positions while in school at lower rates than typical employees. Rotational job programs provide students with the opportunity to work in more than one job over the course of their involvement in the program. This gives them the opportunity to experience different jobs, learn about different functions, experience SOM-related duties from multiple perspectives, and work on a variety of different projects. Within each rotation, students should be assigned a mentor who is responsible for supervising the student and serving as a point of contact for any issues that may arise. These programs are attractive to students who are looking for real world experience as well as income, and provide agencies with a means to have a presence on college campuses and develop a pipeline for talent. The job rotation component provides students with an opportunity to try different kinds of work, increasing the chances they will find a job they like at the agency and also increasing the chances they will stay if hired, given their previous exposure to the actual job duties. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees K-12 4. Implement Virtual Pre-Employment Realistic Job Preview. Agencies develop a virtual pre-employment realistic job preview (RJP) that interested candidates can complete before applying for a job or in the process of learning new skills. Such tools are web-based and interactive, providing candidates with a candid preview of what the job entails by allowing them the opportunity to see what the job is like and participate in simulated job tasks. A virtual job preview can present various SOM- related positions in a way candidates find interesting and impressive. The RJP is like a virtual day in the life of an SOM employee. Using an RJP, such as a video or a virtual job tryout, can show potential employees work conditions or activities experienced on the job, which may encourage applicants to pursue a career within the agency. An RJP can also help frame job expectations so that new employees are not surprised or potentially disappointed by unknown requirements experienced on the job. Virtual presentations can be very high-tech, which can also help to attract potential applicants and bring new employees to the SOM field. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees

57 Exhibit 28 (Continued) Overview of Strategic SOM Workforce Recommendations by Career Stage Target Career Stage SOM Workforce Recommendation K-12 5. Institute Mentoring Program. In order to quickly develop and onboard entry-level staff or other employees new to the SOM field, mentoring programs (both formal and informal) are effective. Mentoring pr ograms typically involve pairing someone more junior with an individual in a simi lar field of work but who has more experience in the organization (e.g., 5+ years) and a successful performance record. Mentoring programs have also shown success for encouraging and engaging minority workers by partnering the worker with someone who is more advanced in his/her career, who may share similar demographic characteristics and therefore may have experienced certain challenges or perceived barriers the junior person may encounter during the early stages of his/her career. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees K-12 6. Develop Employees and Maintain Employee Career Pathways. DOTs should consider making in-house recruiting a priority to promote from within and ensure that growth opportunities are available to employees (KFH Group, Inc., 2008). Results of a recent study indicate that career pathways improve job satisfaction, employee motivation, and employee commitment (Griffin, Kalnbach, Lantz, and Rodriguez, 2000). Furthermore, results from analyses of 21 turnover studies indicate that receiving promotions is directly rela ted to less employee turnover (Carson et al., 1994). To prepare employees for advancement, agencies need to implement structured employee development practices. A career lattice demonstrates the possible ways that a career can progress and the different jobs an employee might consider as his/her career develops. The pathway is usually represented as a diagram showing the relationships between various roles in an industry and the possible paths for moving between them, both linearly and laterally. A career pathway serves as a strategic planning tool as the employee identifies long-term goals for his/her professional life. Community Colleges Four-Year Colleges Graduate Schools Entry Level Staff Mid-Career Staff Senior Leaders Retirees

58 Exhibit 28 (Continued) Overview of Strategic SOM Workforce Recommendations by Career Stage Target Career Stage SOM Workforce Recommendation K-12 7. Implement SOM Succession Plans. Organizations could identify senior leader positions that will be vacated in the near future due to retirements, transfers, and other means of attrition. In order to fill these vacated positions, the organization could offer the opportunity for entry-level to mid-career employees to participate in training programs that focus on management and leadership issues. This type of training would help employees who are interested in becoming leaders of the organization acquire the skills necessary for advancement and continued success. Em ployees with strong performance records, who demonstrate both the skills to succeed at the senior level and interest in a future leadership position, may then be matched with a senior leader who serves as a mentor. Mentoring and on-the-job training is particularly important when filling senior leadership positions because many of the incumbents have long tenures and there is a need to have them pass on the industry and agency knowledge they have accumulated over the years, before they retire. In addition to the type of knowledge transfer that comes from mentoring, agencies could create people-focused knowledge management systems that promote knowledge sharing among employees. One possible technique to capture this critical knowledge involves staff working in HR departments interviewing senior leaders about their position and work functions. This includes collecting information on the cognitive processes that may go into making decisions as well as the rationale behind specific procedures and task performance. These interviews will help ensure that institutional memory and expertise is not lost when senior staff retire. Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees K-12 8. Recruit from Non-Traditional Sources. Create recruitment strategies that seek out candidates from non-traditional sources to build a deep and diverse applicant pool. Non-traditional applicants, such as retired military personnel, engineers from the public sector, stay-at-home parents, minority group members, ex-prisoners, retirees, and/or DOT employees from other agencies could prove to be an excellent source for talent. These applicants often have a wealth of knowledge and a desire to return to the workforce in some fashion. In fact, some unemployed individuals may be stay-at-home parents who left work because they did not want a full-time job commitment or older individuals, not yet of retirement age, who went through a company downsizing and have difficulty finding subsequent work. Additionally, some retirees include individuals who leave their jobs due to early buy-outs or government pension plans but still prefer to be working. Knowing what prompted candidates to initially leave the workforce can inform recruitment and offer solutions or arrangements that work for non-traditional employees who might be brought in part-time or benefit from flexible work arrangements. DOTs should consider how to leverage the experience and expertise of non-traditional applicants while keeping in mind that they might not want to maintain a traditional work schedule. When considering non-traditional sources, it is important to note that retired military personnel often show exemplary leadership skills based on the discipline and training they gained in the military . Community Colleges Four-Year Colleges Graduate Schools Entry-Level Staff Mid-Career Staff Senior Leaders Retirees