Bus Operator Workstation Design for Improving Occupational Health and Safety (2016)

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30 C H A P T E R 3 Introduction The overarching goal of the bus operator workstation procurement process—and of the design recommendations to protect operator health and safety presented in the balance of this report—is to engage all relevant stakeholders in procuring buses that fit the bus operators, reduce biomechanical demands, and can be operated and maintained safely. Training was defined as an essential early step in preparing and supporting the procurement team. The research team for TCRP Project C-22 was also charged with developing an ergonom- ics training plan for bus operators to improve their health, safety, and job performance. These training areas overlap: Both the procurement team and bus operators need to understand the limitations and proper use of the bus operator workstation, and how the work demands faced by bus operators affect their health and safety. The procurement team requires additional adminis- trative and technical knowledge, and the bus operators need to know how to protect themselves and what to do if they identify a workstation problem or experience work-related discomfort, strain, or injury. This chapter details the content of these two important training targets: • Procurement team training to enhance bus operator ergonomics, health, and safety in three areas: – Procurement practices and policies; – Core technical skills and knowledge needed by all team members; and – Engineering and design skills and knowledge represented on or accessible to the team. • Ergonomics training for bus operators, covering the following: – The ergonomics demands of bus operator work and workstations; – Areas of concern, along with possible solutions (e.g., seating, mirrors, steering wheels, etc.); – Transit agency programs, policies, and forms related to bus operator workstation design and operator health and safety. Organization Tool 2: Bus Operator Workstation Procurement Team Training (available from the “Procurement Team Training” link on the TCRP Report 185 webpage) outlines content areas for the transit agency to consider to support its procurement team. Organization Tool 3: Ergonomics Training for Bus Operators (also available online) is a comprehensive presentation designed for adaptation by transit agencies to include their own information and images. Orga- nization Tool 3 also can be used to provide training to members of the procurement team on ergonomics and the demands of bus operators’ work. Training to Support the Procurement Team and Bus Operator Ergonomics

Training to Support the Procurement Team and Bus Operator Ergonomics 31 Procurement Team Training As described in Chapter 2, the suggested practice for Step 2 of the procurement process is to provide stakeholders with training to understand, analyze, and support bus operator health and safety. In other words, the entire procurement team needs information, not only about the procurement process as carried out at the transit agency, but also about how workstation design can affect bus operator health, safety, and performance. An understanding of the demands of bus operators’ work and of basic ergonomics, design, and engineering concepts is important for all team members involved in procurement related to the bus operator workstation, with some team members or resources providing advanced technical competence and knowledge. Suggested training content in these areas is defined in this section, and arranged for presenta- tion in the Procurement Team Training tool. The training template is designed to help transit agencies prepare and support their procurement teams in ensuring that the buses they purchase promote best practices for ergonomics, health, and safety. The tool is organized as a series of module outlines covering the areas of knowledge and skills suggested by transit agencies, unions, and industry experts. Each module lists the objectives (purpose) for the training. The specific content required should be developed by the transit agency. Reference materials and existing training materials are suggested. The presentation template can be filled in with information, images, and content specific to the transit agency and the group being trained. Training Area 1: Procurement Modules 1 and 2: Content Overview • Module 1: Procurement Process covers an orientation to stakeholder and team roles, including a review of the administrative steps of bus procurement acquisition planning and of targeted design areas related to bus operator health and safety. • Module 2: Procurement Update covers changes or updates to the agency’s procurement process and includes a review of the previous procurement document, establishment of the calendar, and targeted assignment of team responsibilities (e.g., regarding data collection, analysis, and development of specifications). Covering the procurement process, Module 1 and Module 2 review the steps of real-life bus procurement acquisition planning, define the roles of procurement team members and other stakeholders, and illustrate practical examples of targeted design areas for bus operator health and safety. The modules also cover establishing the calendar for important deadlines including training, information collection, analysis and planning, specifications, RFP, review, award, fac- tory visit, pilot, roll-out, warranty period, evaluation, and ongoing activities. These modules may be presented by members of the procurement department staff or by the procurement team facilitator. It is suggested that materials provided during the presentation include the Standard Bus Procurement Guidelines (APTA 2013), the bus procurement team process guidance tool (Suggested Procurement Practices for Bus Operator Health and Safety, available on the TCRP Report 185 webpage), and the transit agency’s most recent bus procurement documentation. Training Area 2: Technical Skills and Knowledge Modules 3–7: Content Overview • Module 3: How the Workstation Affects Health and Safety covers the demands of the operator workstation (e.g., seating, controls, visibility, signage, fare box, wheelchair). • Module 4: Ergonomics covers ergonomics and biomechanics concepts (e.g., reach, joint posture, force demands, vibration, anthropometrics).

32 Bus Operator Workstation Design for Improving Occupational Health and Safety • Module 5: Occupational Health and Safety covers related content (e.g., vehicle safety, slips and falls, health). • Module 6: Demands of Driving covers bus operation including a ride-along. • Module 7: Demands of Maintenance Work covers demands related to bus operator work- station design. All procurement team participants need to understand the basics of the bus operator work- station design related to ergonomics, health, and safety. An active role in identifying problems, suggesting and assessing changes, and testing delivered buses calls for more detailed knowledge, as defined in these modules. A briefer review may be adequate for team members not making material decisions. Module 3 sets the stage for the procurement process by defining the demands of driving that can affect bus operator health and safety. Module 4 focuses on the ergonomics principles that will inform equipment selection. Note: Organization Tool 3: Ergonomics Training for Bus Operators, described later in this chapter, can be adapted for use in this module. Module 5 establishes an understanding of other demands of the work environment. Modules 6 and 7, covering operations and maintenance, ensure that the team understands the implications of the decisions they make about the bus operator workstation. Modules 6 and 7 may not require a highly detailed presentation if all the participants have experience in these departments; however, reviewing these modules in the context of the current procurement will still be helpful. These practical modules can be customized for presentation by procurement team members or others who have experience in the area, such as safety, operations, and maintenance staff. In particular, bus operators can help design or deliver the workstation and bus operations modules, and maintainers can assist with the last module. The transit agency may prefer to contract some content, such as ergonomics, through certified Occupational Safety and Health Administration (OSHA) training centers or the National Transit Institute (NTI). Suggested materials that can inform training development or be provided to procurement team members are listed with each module in the training template. For example, Module 3 refers to the Bus Operator Workstation Feature Guideline (Design Tool 1). Some sources, like Design Tool 3: Bus Operator Workstation 3-D PDF Model, are referenced later in the advanced technical information modules. Other useful materials include health resources, such as Part 1 of TCRP Report 169: Developing Best-Practice Guidelines for Improving Bus Operator Health and Retention, and the transit agency’s own maintenance and bus inspection checklists. Training Area 3: Advanced Technical Skills and Knowledge Modules 8–10: Content Overview • Module 8: Product and Vehicle Design covers background knowledge about bus design, selection, and manufacture that the procurement team needs to make practical and effective proposals for improvements, and tools for developing effective RFPs. • Module 9: CAD and Specifications covers blueprints and specifications models, and can be presented using Design Tool 2: Bus Operator Workstation Engineering CAD Model and Design Tool 3: Bus Operator Workstation 3-D PDF Model. • Module 10: Product Testing covers the phases of equipment and vehicle testing for occupa- tional health and safety, including planning an effective testing protocol, use of prototypes and mock-ups, and testing to failure. Many transit agencies arrange technical training that covers bus engineering and maintenance for select employees. For help in the procurement process, the transit agencies may rely on department-specific training and knowledge or familiarity with practical skills (e.g., ergonomics

Training to Support the Procurement Team and Bus Operator Ergonomics 33 knowledge among safety department staff or blueprint reading in engineering). The procure- ment team can call on knowledgeable people in those departments to provide explanations or formal training. A safety manager interviewed for this project recognized the need for safety staff to be able to read blueprints and specification documents in order to contribute to discussions of bus safety, and developed a course with the transit agency training department. Modules 8, 9, and 10 will help transit agencies follow this example. When the procurement team, and sometimes bus operators or maintainers, are involved in bus evaluation at the manufacturer level or in the pilot phase, this kind of advanced training in areas such as bus design and testing is especially important. The suggested training modules are designed to establish a shared understanding of technical areas in a procurement team whose members typically bring with them a range of knowledge, experience, and responsibilities. Training can enhance procurement even in a large transit agency that includes many experts. It encourages a smaller procurement team to be alert to and knowl- edgeable about technical areas they may not deal with on a regular basis. It is especially helpful for defining and bringing into focus operations and maintenance information that administrative team members may not address in their typical work. Module 8 establishes the background for bus design, selection, and build, and provides tools for developing effective RFPs, allowing the procurement team to make practical and effective suggestions for improvements. Module 9 should communicate basic skills for interpreting and commenting on images and descriptions of equipment, provide experience with tools used in design and procurement, and let participants practice reading blueprints and design specifica- tions. Module 10 is designed to support the organization in evaluating new equipment and workstation configuration changes, establish a common language for discussing product and vehicle testing, and lay out a testing protocol format to adapt as needed during procurement. Procurement Team Training Summary Time for training is always at a premium. In recognition of this constraint, the proposed modules can all be scaled to suit the transit agency size, resources, and needs, and they can be provided more or less formally. At a minimum the issues should be summarized at the begin- ning of each procurement cycle so they can be raised and clarified during the specifications and procurement process. As discussed, these modules can be developed by the appropriate departments in each transit agency, adapted from outside materials, or provided by vendors such as NTI or other safety training groups. Properly designed in-house training presentations are often the most effective approach, making use of participants’ skills and knowledge and framing the training within the transit agency culture and practice. Some transit agencies have train-the-trainer or training skills courses that procurement team members and peer trainers can attend that will help them design and deliver modules. Training skills courses are also provided by transit training insti- tutes, unions, and other organizations. International unions and some local unions have exten- sive experience and resources in occupational health and safety training and train-the-trainer programs that may be helpful. Bus Operator Training Along with improved design, bus operator health and safety depends on bus operators’ skills, knowledge, and attitudes, which are supported by training. A review of correct body mechanics and instructions on seat settings may be part of new hire safety training for bus operators. But

34 Bus Operator Workstation Design for Improving Occupational Health and Safety this minimal instruction does not prepare a new worker to be an active partner in keeping the workplace safe and healthy, nor does it make use of the skills and insight of more experienced bus operators. Comprehensive ergonomics training teaches workers to understand and to ameliorate their work demands. In the transit industry, ergonomics training should cover how to use the provided equip- ment, how to work as comfortably and safely as possible, and how to contribute to the selection of improved workstation elements. Training that accomplishes these objectives has been produced for other industries by occupational health groups, labor unions, and ergonomics professionals. Examples of comprehensive ergonomics training can be found on the OSHA website (OSHA n.d.). During this phase of the TCRP Project C-22 research, the research team collected informa- tion from transit agency staff, unions, and industry experts about training they had provided or observed, and reviewed training examples produced by transit organizations, including transit agencies, NTI, and unions. The findings were used to produce Organization Tool 3: Ergonomics Training for Bus Operators, a presentation template that transit agencies can adapt for use with their own information and images. Organization Tool 3 also can serve as the basis of Module 4 training for the procurement team. Status of Bus Operator Ergonomics Training The importance of safety and ergonomics training for bus operators is widely recognized, but there is general agreement that not enough training of this type takes place. Related practical training is provided for seat adjustment, driving skills, and other tasks; sometimes this is done on test equipment, freestanding seats, or mock-ups for equipment such as wheelchair ramps. One local union president described an in-depth orientation process: When they get the new buses in pretty much everybody goes through a 2-day course, mostly in the classroom, and everybody gets a chance to go out and drive at least for a couple of hours to make sure that [they’re] ready to handle the bus. They tell you about the difference between turns between the older bus and what this bus would do (union official interview May 2015). The industry experts emphasized that this kind of training is essential to protect bus opera- tors and improve the bus operator workstation. The training they suggested would help bus operators: • Understand the physical, cognitive, and other demands of the workstation; • Set and use workstation elements for safety and comfort; • Practice good body mechanics; • Provide input to the employer on workstation safety, health, and comfort; • Use health and safety checklists and forms to record and report concerns; and • Participate in analyzing and improving ergonomics risks. Examples of Ergonomics Training for Bus Operators Transit agencies often include ergonomics as part of their new hire safety training. The train- ing focuses on posture choices, steering techniques, body mechanics, and stretches, but it does not explain how the working conditions contribute to potential problems or explain the bio- mechanics involved. The training tends to consist of behavioral instructions rather than the comprehensive ergonomics understanding and skills that will allow bus operators to participate fully in health and safety improvements, including as participants on a procurement team. NTI developed a musculoskeletal disorders prevention training program for transit workers about 10 years ago (NTI 2008). This comprehensive course provides detailed and extensive

Training to Support the Procurement Team and Bus Operator Ergonomics 35 content. It contains examples and information about many transit job responsibilities. Bus oper- ators and transit agencies report that it has been a valuable resource and helpful on the job. It includes workplace assessment forms and activities that could contribute to the improvement of the bus operator workstation if the procurement team takes advantage of the data the bus opera- tors generate. The NTI training provides a useful model for a training plan that can be adapted and carried out by each transit agency, as described below. Ergonomics Training for Bus Operators: A Template for Transit Agencies Bus operators and other transit employees need to—and want to—work safely. To do this, they need to understand the suggested work practices and the reasons behind them. Bus opera- tors are likely to take training more seriously when it reflects their experience. They can best contribute to improved rules, policies, and work environments when they are aware of risks they may face and have tools for assessing, analyzing, and making recommendations about them. Effective ergonomics training explains the science of workplace demands, defines the potential health impact of those demands, illustrates effective solutions to ergonomics problems, incorpo- rates worker suggestions, and supports practice of skills and behaviors that will be transferred to the workplace. A comprehensive employer workplace ergonomics program depends on worker involvement in the ongoing process of hazard assessment and corrections, and a well-trained workforce that is prepared to participate in that process. Organization Tool 3: Ergonomics Training for Bus Operators is a presentation template for ergonomics training that is designed to be adapted and tailored by transit agencies to suit their needs. It can be used on its own or in conjunction with existing packages such as the NTI course. This tool will help transit agencies provide location-specific training for bus operators to pro- mote improved ergonomics practice, health, and safety. It can provide the foundation for the ergonomics module for procurement team training, and is also suitable for use by transit unions and other groups. The tool consists of more than 40 presentation slides. Transit agencies can call on their in-house safety or ergonomics expertise or call on outside consultants to adapt the template to their needs. Some transit agencies may want to work with the training team to develop a com- plete trainer’s script. The template contents could also be used to complete the more generic content of the NTI training. Selected slides or sections also can be inserted into other transit agency training presentations. Slides with detailed content are presented in sections to facilitate presentation and printing (see Figure 4). These slides outline the content to be covered. Many define a single concept with images. Trainers can use the slide images to discuss the issue in the header, asking group partici- pants to comment. The images are copyright-free and the source link for each image is provided in the notes section for presenters who wish to access the sources. As part of preparation for the training module, the presenter adapts the template, filling in information, images, and content specific to the transit agency and the group being trained. Most of the slides can be easily modified. Training Summary The Ergonomics Training for Bus Operators presentation tool outlines an inclusive model of training that helps the bus operator contribute fully to health and safety in the workplace. This inclusiveness is illustrated especially in the suggested hands-on and out-of-class work and learning

36 Bus Operator Workstation Design for Improving Occupational Health and Safety activities. The template’s flexibility is intended to encourage transit agencies to incorporate the content and activities into their complete training plans. The exercises, hands-on practice, out-of-class work, and discussions described in Section 4 of Organization Tool 3: Ergonomics Training for Bus Operators should be inserted throughout the training. The complete workshop requires 2 to 3 hours but could be extended if more discussion and review are desired. Training can be scheduled in 30-minute or 60-minute sessions with the flexibility to be delivered either within a shorter period or over an extended period that allows more opportunity for out-of-class activities and discussion of findings. The ergonomics training and the procurement team training are suitable for both experienced and novice employees. It should be emphasized that training is as important for people who know what they are doing as it is for people who do not. If training is limited to new employees, the information may be harder to absorb, remaining abstract until the employees know what the work is really like. Moreover, if training groups are limited to new employees, they cannot make use of important transit agency experience. Experienced procurement team members and bus operators can profit from new perspectives on what may seem like familiar problems, and both new and experienced employees benefit from repeated opportunities to contribute to each other’s learning. Modules in both presentation templates can be used for refresher sessions or delivered as an entire package. When training is repeated, it is important to update the content with new examples and, if possible, new materials. Figure 4. Ergonomics Training for Bus Operators: an adaptable template. Section 1. The ergonomics demands of work Physical Physiological Visual Cognitive Health impact Section 2. Bus operator workstation target areas Seating Mirrors Pedals Wheelchair and other passenger assistance Signage and other overhead tasks Visual demands Controls Assault barriers Section 3. Transit agency programs, policies, and forms Ergonomics program outline Identifying and reporting problems Checklists Section 4. Training notes Hands-on work Learning activities Out-of-class work