Executive Decision Making for Transportation Capacity: The Multiagency Context (2014)

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32 C h a p t e r 5 Introduction A primary outcome of SHRP 2 C22 is the development of marketing principles, potential strategies, messages, and media that can be considered as a research foundation for strategic marketing of TCAPP to upper-level managers/decision makers within DOTs, transportation agencies, and environmental resource agencies. The objective of these principles and poten- tial action items is to support agency leaders in championing cooperative approaches, changing institutional processes, and promoting interagency collaboration. This section builds upon the interview findings described in Chapter 4 and represents a bridge between research and implementation of TCAPP. The section presents strategic considerations to those who will be charged with implementation, including a set of potential strategies, possible media, and key messages. Marketing principles The marketing principles were derived directly from the find- ings aggregated from the interviews. One theme heard dur- ing interviews revolves around the finding that there exists a range of (and sometimes negative) connotations of the word “collaboration.” While it is viewed as inevitable, integral, and critical in today’s environment, collaboration also can be understood as bogging down the process, or used by those who are not strong enough to carry a process through on their own. At the same time, executive leaders understand that suc- cessfully managing complex transportation capacity projects requires working together with partner agencies. It may be prudent to consider using a new term to invoke a partnership that is based upon a common desire to solve problems. The marketing principles identified in this work are • Peer-to-peer marketing is central to success. Executive leaders need to hear about collaborative practices from their peers or partner agencies in the same geographic area. • Messengers are as important as the message. Slogans with- out the right speaker are hollow. Messages need to be tiered and tailored to meet geographic and organizational con- text of each agency audience. • Geographic and organizational structures dictate marketing approaches. These factors are different for each agency and also vary among state DOTs. It is very important to structure marketing approaches with this diversity as a starting point. Decision makers are found in different positions and differ- ent geographies, depending on the agency in question. For marketing and implementation work to be successful, these principles should underlie current and future efforts to communicate benefits and promote collaborative decision making in a multiagency context. potential Marketing Strategies The development of potential marketing strategies was per- formed after completion of the market research. Based upon the interview findings, several potential strategies are cited here for consideration by those advancing SHRP 2 work into marketing and implementation. The data collected during the interviews indicated that the promotion of interagency col- laboration across transportation partner agencies could be effective if conducted through two concurrent approaches: top down and bottom up. Top down refers to engaging upper-level managers to influ- ence direct reports and others in their agencies as well as their industry peers to adopt a collaborative approach to projects. With this potential strategy, managers lead by example. Those who already support and practice this process become the voice for promoting the collaborative approach and use their influence to secure opportunities for sharing their success stories and experiences. Bottom up refers to influencing institutional processes starting with entry-level personnel who will eventually rise Marketing Principles, Strategies, Messages, and Media

33 up into significant management positions within these orga- nizations. With this potential strategy, the concept of a collaborative approach is introduced at the training and uni- versity level. These individuals then bring a new vision and renewed sense of excitement that will further help ingrain the idea of interagency cooperation into the culture. This is a sec- ondary market for consideration, but should be factored into the marketing plan for executives and the overall marketing of TCAPP. This group holds the greatest promise for dispel- ling the myth that “getting things done” means forcing others through a command-and-control project approach. Potential Top-Down Strategies Three overarching goals were gleaned from the interviews and are used to encompass potential top-down strategies. They are to (1) address attitudes about decision making, collaboration, and leadership; (2) create spokespeople among those already committed to collaboration and TCAPP; and (3) lay the groundwork for persuading those resistant to change. Addressing Attitudes about Decision Making, Collaboration, and Leadership Interviews with top-level leaders at transportation agencies revealed a spectrum of beliefs and attitudes about decision making, collaboration, and leadership. Collaboration is a highly charged word. For those who embrace it, connotations included “it is the only way to move projects forward” and “it is the right thing to do.” However, even collaboration’s most fervent sup- porters admit there also are strong negative perceptions of the term, ones that are quickly cited by those who do not value collaboration. “It slows down the process” and “it makes you look like a weak leader” are among the connotations that were most often shared in the interviews. Therefore, one potential strategy to be explored by SHRP 2 C37 and others is the poten- tial rebranding of TCAPP. Another potential strategy is to describe the value of TCAPP as a flexible resource for achieving both goals and institutional mission. The interviews conducted affirmed that TCAPP has value to the industry as a support tool. While none of the executives interviewed felt that they personally would have used or benefitted from TCAPP during a particularly difficult project process, many were delighted to learn that TCAPP existed and intended to let their planners and engineers know about it and to encourage its use. There is, however, a crucial caveat. Industry executives highly supportive of an interest-based decision-making approach stressed the importance of distinguishing between a rubber-stamping process and a process that truly conducts projects in a collaborative spirit. They expressed concern that the framework and checklists, while extremely useful, were not a guarantee of embedding collaboration into the institutional mission. With that caution in mind, the research team has identified four key attributes of TCAPP that could potentially be empha- sized in marketing materials and communication: • Systematic Approach: All those interviewed commended the systematic approach presented. They appreciated that it broke the transportation planning and project development process down into manageable components, and organized information around key decision points that everyone could understand. • Flexibility: While interviewees noted the importance of a systematic approach, they also emphasized the need for the tool to be flexible and meet the needs of a diverse set of processes, conditions, and stakeholders. If leaders under- stand that it is not a lockstep process that must be adopted in full, they will begin to explore how it can be applied in a range of creative and effective ways. • Collaborative Tools: Interviewees were very interested to learn that TCAPP provides a number of useful tools, such as the assessments, that enable practitioners to identify their challenges and find the most appropriate information. These tools also help to strengthen partner and stakeholder engagement when used collaboratively. • Information, Data, and Resources: Interviewees also com- mended the breadth and depth of resources associated with TCAPP. A wealth of information is provided in the Decision Guide that leads users to other informative areas of TCAPP. Step-by-step instructions and analytic tools allow practition- ers to apply research to current problems. The compen- dium of case studies and links to useful resources also was deemed extremely helpful, especially if kept current. Creating Spokespeople among Those Already Committed to Collaboration and TCAPP More than anything else, industry executives stated that they rely on and value peer-to-peer exchanges, particularly those sponsored by AASHTO, TRB, and U.S. DOT (FHWA). This is likely to be the most promising venue for disseminating infor- mation about TCAPP and encouraging peers at the top levels to try it. Recommended actions are as follow: 1. Build peer-to-peer exchanges and promote through AASHTO, TRB, U.S. DOT (FHWA), the Association of Metropolitan Planning Organizations (AMPO), and other organizations. A number of very effective mechanisms for communi- cating with top executives in transportation already exist. These include the chief engineers meeting at the AASHTO

34 general meeting and the regional AASHTO meetings, where the CEO roundtables and chief engineers breakfast create captive audiences. Face-to-face communication could facilitate informative dialogue among DOT and MPO top leadership. Similar opportunities are present at AASHTO Standing Committee meetings (e.g., Planning, Environment, Design), AMPO, and other organizations, such as FHWA and TRB. 2. Promote editorial pieces for industry publications. The executives interviewed often stay informed through industry publications. They are a great source for estab- lishing credibility for TCAPP and driving traffic to the website. Several publications were mentioned, including • Transportation Weekly; • Engineering News Record; • Transportation Builder; and • Environmental resources newsletters. 3. Identify additional individuals within organizations to become TCAPP experts and maintain a clearinghouse of resources. Lastly, individuals who promote TCAPP within their organizations could be vital to spreading the word and enrolling others in the process. This group could be sup- ported and encouraged through a structured training and reinforcement program that would include a mechanism for sharing lessons learned and tips for spreading TCAPP approaches throughout organizations. The objective would be to get executives on board, so that they would then share materials and TCAPP approaches with DOT staff at internal meetings and, potentially, revise DOT project development process manuals, if necessary, to reflect TCAPP guidance. Here, top executives remain key to execu- tion and direction setting. In the resource agencies, the environmental liaisons could be the appropriate people to introduce and educate agency staff about TCAPP resources. Lay the Groundwork for Persuading Those Resistant to Change There is another important audience: those individuals who subscribe to traditional practices, are resistant to change, and do not recognize the benefits of collaborative practices. Inter- views with members of this group indicated that while many of them acknowledge the importance of partnerships, it is going to take a persistent effort over time to convince this group to actively integrate a new collaborative framework such as TCAPP. From a marketing perspective, this is not a group that holds a high potential for immediate return on investment and therefore this group would not likely be the primary focus of limited marketing resources. Fortunately, some of the overall strategic recommendations also would potentially influence this group: 1. Translate the value and benefits of collaborative approaches into relatable experiences/activities. If the TCAPP approach is expressed as the most logical one, given the current climate of limited resources and multiple agency involvement, the principles espoused become less about relinquishing control and more about a practical way to maximize the potential of present cir- cumstances. Even the least supportive interviewees admit- ted that they sought partnerships in order to be able to get projects funded and completed. This positioning, along with potential rebranding of the concepts in TCAPP, could serve as first steps for engaging this segment as they stated strong negative associations with the term “collaboration” and indicated that they do not want to be identified as using or supporting collaborative styles of leadership. 2. Build peer-to-peer exchanges and promote through AASHTO, U.S. DOT (FHWA), and other organization programs. As this group also is highly influenced by these organi- zations and peer-to-peer exchanges, this strategy would be applicable to this segment as well. 3. Promote editorial pieces for industry publications. This group also is committed to staying informed through industry publications. Therefore, the same strategy and pub- lications could be used to reinforce the messaging to this audience. Potential Bottom-Up Strategies The top-down strategies described would address top-level personnel within the organization in the expectation that they would exert a downward positive influence on others. At the same time, inculcating the message with the next generation and training them in collaborative and interest-based decision making would work from the bottom up to breed practition- ers entering the profession. The goal gleaned from interviews is to build TCAPP knowledge and methodologies into train- ing of the next generation of transportation professionals. Build TCAPP Approach Methodology into Training of the Next Generation of Professionals The wealth of resources within TCAPP could potentially be used as materials to support a curriculum on the “preferred planning process” for transportation. Two strategies are well suited to reaching this group: 1. Reach out to university programs to encourage discussions/ classes about the benefits of TCAPP.

35 Development of curricula and educational materials about TCAPP would encourage dissemination of this methodology to students. Similarly, training programs for professionals in the field, such as the National Highway Institute (NHI), could provide courses. 2. Develop training program for new hires about TCAPP resources available, and so forth. A training program for new hires could be developed and piloted with organizations before rolling out nation- ally. This would offer exposure and experience for lower- level employees and build a cadre of support on the practitioner level. Key Messages: Mapping Benefits to Decision-Maker audiences Successful marketing takes products or program characteristics and restates them as benefits. Benefits are best articulated by taking a characteristic and then asking “. . . and that matters because . . . ?” For example, rather than stating the address of a location (the characteristic), real estate marketing usually touts the benefit, such as “steps from the Metro” or “in the prime school district.” A marketing approach for TCAPP also could be designed to emphasize benefits, not characteristics of the pro- gram being promoted. The interview findings identified a set of potentially relevant messages, relevant for the top-down approach, or the bottom-up approach. Interviewee comments indicated that the meanings behind these messages will reso- nate. However, the messages could potentially be even more effective if heard in a context of the benefits they will provide. Table 5.1 provides a list of messages created in response to comments heard, and then translated into a benefit statement. This type of more active statement could be considered in future messaging and marketing materials. preferred Media for Communicating the Messages Based on the interviews conducted and knowledge of market- ing, it is believed TCAPP’s primary market would likely be those already supportive of a collaborative partnering approach but unfamiliar with the TCAPP tools. TCAPP, as it currently is presented, is an effective resource for showing practitioners how to institutionalize collaboration into the processes they presently follow. Secondarily, it is likely to have some utility as a resource for organizations using a different methodology (e.g., it could be used to find specific and practical recommen- dations at a specific decision point in the process). TCAPP by itself would not likely be relied on as a tool for persuading those who do not already espouse collaboration to embrace interest-based problem-solving approaches. While the interviews indicated that there is still resistance to the notion of collaboration, times have changed, and nearly everyone interviewed spoke of the need today to work through partnerships if goals are to be achieved. Comments such as “No one organization owns a complete process” and “Money is so constrained we have to be sure of what we are doing” reflect the current environment and make a strong case for embracing TCAPP. When viewed in that light, promoting TCAPP does not imply any value judgment; rather, it poten- tially becomes a practical solution to today’s constrained, multistakeholder landscape. Table 5.1. Proposed Key Messages and Related Benefit Statements Message Benefit Statement Top-Down Approach No one organization or department owns a project anymore; you have to work cooperatively. The TCAPP approach finds and leverages common ground among project partners. In these fiscally constrained times, the TCAPP approach is a defensive way to demonstrate good use of resources. With the TCAPP approach, you will quickly find out if you are doing the right things and if you are doing things right. The TCAPP approach can garner financial support from additional sources. While sometimes slower on the planning end, project execution is often faster with the TCAPP approach. The TCAPP approach is faster and cheaper (must be able to prove this point but this could be an eye-opening visual). This expeditious outcome is often related to TCAPP’s ability to build long-term trusting relations between agencies and organizations. The TCAPP approach of problem solving leads to successful project outcomes. On time. On budget. No surprises. And goodwill to spare. Bottom-Up Approach Teaching the TCAPP approach prepares students for the realities of our interdependent future. The TCAPP approach builds a staff of successful negotiators and problem solvers.

36 To determine ways to reach top-level executives with this message, interviews included the following questions: • What is the best way to get your attention? What is your preferred communication method for industry news and information? • What sources do you rely on to obtain industry informa- tion? (AASHTO, TRB, state, etc.) • How do you stay informed about tools and techniques that could help advance your organization? • Do you handle your own e-mail or does your executive assistant handle it? • Please describe your level of comfort/proficiency with digital communications (social media, Twitter, Facebook, blogs, etc.). Based on the responses received, media influences and channels that may be effective for different audiences are stated below. Reaching Decision Makers Decision makers are notoriously busy, preoccupied with urgent matters and important initiatives. Few of the decision makers interviewed had even heard of TCAPP, much less spent time on the website. Most thought it might be useful for others in their organization; none saw it as useful for themselves. Based on these interview findings, potentially effective approaches to be considered include • Addition of TCAPP discussions to national, regional, local, and annual meeting and conference agendas. Development of breakout sessions where case studies and principles are shared. • Encouragement of peer-to-peer exchange at meetings and conferences. Potential creation of a standing committee or other way to acknowledge the importance of collaborative or interest-based problem-solving approach. • Development of articles for publication in respected jour- nals, or alternatively, development of short story videos. They are concise and can be a means of communicating peer to peer. These efforts could focus on using case studies and personal experience to identify the benefits of the TCAPP approach. To help remind decision makers about the TCAPP site, it also could be helpful to distribute some sort of leave-behind with the website name. Reaching the Next Generation of Professionals Bringing the TCAPP approach to educational institutions and training programs could begin building a cadre of young professionals already embracing the methodology. This bottom-up strategy could help to spread the practice among organizations. To achieve this, some potential actions to be considered include • Creation of an advisory committee to oversee this effort, including prominent educators already espousing the TCAPP approach; • Development of a course curriculum for teaching/training the TCAPP approach; and • Promotion of the course through TRB and peer-to-peer exchange at national, regional, local, and annual meetings and conferences.