CHAPTER 9

Overcoming Challenges

As transit agencies recover from service and staffing reductions that took place during the height of the COVID-19 shutdown, many are reintroducing and even expanding transit services, with new bus routes or rail lines being added.²³⁶ This produces additional pressure on hiring needs that systems have struggled to meet.

Within this context, the research team has defined bus operator workforce challenges, uncovered causes of these challenges, and documented a set of forward-thinking approaches and practices that transit agencies across the country have used to address them. Throughout the research, the team focused on underlying issues that are systemic and persistent but also drew out challenges produced primarily by COVID-19.

9.1 Research Conducted and Key Findings

Through literature review and key stakeholder interviews, multiple factors that affect the transit bus operator workforce were identified and analyzed, including pervasive technological advances; changes in transit ridership and service models; the overall economy and labor market; and demographic changes and health and safety risks that bus operators face, especially during the pandemic. These factors present both important opportunities and serious challenges for bus operator workforce development.

Based on this initial analysis, the researchers designed a survey to draw labor and management responses from transit systems across the country, scanning the existence and basic information on bus operator workforce management programs or policies, current evaluation methods, and availability and accessibility of data for further analysis. From the survey data and additional follow-up with key informants, researchers identified seven transit agencies for in-depth case studies that involved interviews and additional data collection.

This resulting report is a synthesis of a wide array of practices, novel approaches, and effective programs in the management of the bus operator workforce including workforce assessment and planning; recruitment; compensation; selection and onboarding; training and mentoring; health, safety, and working conditions; and retention and motivation. This guide includes recommendations along with best practice guidelines and resources that assist transit agencies with differing needs and resources to plan, implement and assess their bus operator workforce management programs.

The themes and forward-thinking approaches for each element of bus operator workforce management addressed in this guide follow (see Figure 16).

Workforce Needs Assessment

Themes

• Workforce development can be integrated into strategic plans and broader service goals.
• Data on current and past workforce and service patterns can help to inform the assessment and planning processes.
• Considerations for COVID-19 are affecting the forecasting of workforce needs.
• Transit agency-wide priorities can benefit from being addressed across multiple departments.
• Unions can be effectively involved in the workforce needs assessment process.

Forward-Thinking Approaches

• Analysis of many aspects of the current situation can help to determine staffing needs. (See examples from AC Transit, Metro Transit, and C-Tran in Section 2.2.)
• Historical experience can be used to develop workforce staffing models. (See examples from San Diego Transit and Utah Transit Authority in Section 2.2.)
• Forecasting can be used to determine the optimal workforce size. (See example from DART in Section 2.2.)

Recruitment

Themes

• There have been changes in recruitment strategies over time because of new technologies.
• Transit agencies are choosing strategically between hiring part-time versus full-time bus operators.
• Transit agencies are exploring pre-employment outreach and educational opportunities.
• Transit agency resources are increasing budgets for marketing vacant positions.
• There is intense competition for bus operator applicants from other industries.
• COVID-19 had a significant negative effect on recruitment.

Forward-Thinking Approaches

• Recruitment efforts specifically targeting younger candidates can help build a sustainable pipeline for bus operator careers. (See examples from the Unified Government of Wyandotte County and Santa Clara VTA in Section 3.1.)
• Monetary rewards can incentivize employees to refer potential bus operator applicants. (See example from DART in Section 3.1.)
• Offering part-time opportunities and training bus operators on both fixed-route and demand-responsive services can provide greater flexibility in recruitment. (See example from Link Transit in Section 3.1.)
• Outreach to non-English speaking communities can provide visibility for transit careers. (See example from ATC Phoenix, DART, and Metro Transit in Section 3.1.)

• Sign-on bonuses can be offered strategically to avoid pitfalls. (See examples from NJ Transit in Section 3.1 and the DART case study.)
• Offering special incentives for applicants with a CDL can attract qualified bus operators. (See example from the NJ Transit case study.)
• Compensation increases can help transit agencies to remain competitive employers. (See example from the PSTA and VTA case studies.)
• The use of technology can help to attract a large pool of diverse candidates. (See example from Metro Transit in Section 3.2 and the RCPT case study.)
• High-visibility public events with buses and current bus operators on-site can be used to advertise open bus operator positions. (See example from LA Metro in Section 3.2.)
• Transit agencies can remove barriers to employment by partnering to provide support services. (See example from CTA in Section 3.2 and the GCRTA case study.)
• Using common language to describe positions can eliminate confusion for potential applicants.
• Allowing supervisors to fill in can help ease recruitment pressure. (See example from Santa Monica Big Blue Bus in Section 3.2.)
• Involving the union in recruitment efforts can have many benefits. (See examples from AC Transit and Metro Transit in Section 3.2, and the case studies for NJ Transit and VTA.)

Compensation

Themes

• There are recruitment and retention implications for bus operator wages.
• Transit agencies often compete for jobs with similar industries (like private sector mobility companies) or other industries in the same region (like major factories).
• Benefits that go beyond wages factor into a bus operator’s broader compensation package, but these are less visible to new applicants.

Forward-Thinking Approaches

• Offering incentives for employees who opt out of healthcare programs by providing a portion of the transit agency’s savings to the bus operator. (See example from VTA in Section 4.2 and the FMCTA case study.)
• Providing higher wage scales to senior employees for undesirable shifts can help to retain both new and more senior employees.
• Tying shorter wage progression periods to incentives or shortening wage progression periods altogether can make a transit agency’s compensation levels more attractive. (See example from SFMTA in Section 4.2 and the case studies on VTA and PSTA.)
• Providing bonuses and payment for unused vacation days can increase a bus operator’s pay without changing wages altogether. (See example from the FMCTA case study.)

Hiring Processes

Themes

• Many applicants lack an understanding of the scope of responsibilities entailed in bus operations.
• The use of new digital tools assists transit agencies in streamlining the application and hiring process.
• Interviews and selection tests are widely used in the bus operator hiring process but are not without limitations.
• Many transit agencies’ human resources departments would benefit from reforms.
• Transit agencies face challenges in onboarding and adequately preparing new bus operators for a potential range of first assignments.

Forward-Thinking Approaches

• Pre-hire assessments and additional screening of applicants can help ensure realistic expectations of the job. (See example from the NJ Transit and GCRTA case studies.)
• Providing support for applicants can help eliminate barriers caused by the lack of familiarity with communications technology. (See example from the NJ Transit case study.)
• Behavior-based protocols can be used to effectively screen and interview applicants. (See examples from SEPTA, MARTA, and the Pittsburgh Regional Transit in Section 5.2.)
• Transit agencies are using interviews as a time for both job candidates and the transit agency to learn about one another for employment decisions and improved bus operator retention. (See example from the RCPT and VTA case studies.)
• Offering CDL permit study sessions can help candidates prepare. (See example from Metro Transit in Section 5.2.)
• Shortening the application process and making it more flexible can make positions more appealing to potential candidates. (See examples from Metro Transit and NJ Transit in Section 5.2.)
• Bus operator qualification and respective training adjustments can broaden the applicant pool. (See example from the PSTA case study.)
• Programs can help prevent the loss of new hires waiting for training to begin. (See example from the PSTA case study.)
• Transit agencies can better prepare new employees for first assignments by providing a mentor. (See example from Sound Transit in Section 5.2.)

Training

Themes

• Transit agencies can offer many different types of training to bus operators, but budget limitations affect the scope and length of training.
• Joint labor–management partnerships are frequently used in the design and delivery of training.
• Mentorship and apprenticeship programs are being adopted to supplement traditional bus operator training.
• Developing career ladders for upward mobility ensures that growth opportunities are available to employees, and thus serves as a retention strategy.
• Training activities and opportunities for advancement are important in addressing the lack of diversity at higher ranks within transit.
• Balancing service and training priorities can help under-staffed transit agencies while contextualizing training for bus operators.

Forward-Thinking Approaches

• Offering training opportunities in a variety of formats can allow bus operators to learn at their own pace. (See example from NJ Transit in Section 6.2.)
• Transit agencies can increase training capacity by utilizing experienced bus operators as on-the-job training providers. (See examples from the FMCTA, NJ Transit, and RCPT case studies.)
• Unions can play a needed role in training. (See example from the Santa Clara VTA and DART case studies.)
• Data can be used to inform training processes. (See example from the NJ Transit and GCRTA case studies.)
• Partnership opportunities between the transit agency, labor, and other community partners can be leveraged to provide meaningful programs. (See example from California in Section 6.2.)

• Formalized mentorship programs can provide training outside of the normal scope offered by transit trainers. (See example from the GCRTA case study.)

Health, Safety, and Working Conditions

Themes

• Many of the transit agencies included as case studies in this guidebook indicated that they have health and wellness programs.
• Bus operator assaults and crashes are some of the biggest safety concerns in the work environment for bus operators.
• Several aspects of the working environment for bus operators, such as schedules and conditions, may make it hard to attract new bus operators and can contribute to low retention rates.
• Restroom access is an often-overlooked component of the bus operator’s working conditions but one that can put a daily strain on the operator and lead to adverse health outcomes, like urinary tract infections.

Forward-Thinking Approaches

• Mentor programs offer in-house, direct support from experienced employees for new employees as they gain traction and deal with on-the-job challenges. Mentors offer advice and their personal experience ranging from practical considerations, like scheduling, to the emotional and psychological impacts of the job. (See example from the VTA case study.)
• Labor–management partnerships on safety and working conditions allow the union to offer valuable insights into the day-to-day issues faced by bus operators. (See examples from the NJ Transit and VTA case studies.)
• Using shields for bus operator compartments can help bus operators feel safe.
• Because many bus operator assaults stem from the bus operator’s role in enforcing fare policies or the transit agency requirement to state the fare, some transit agencies are updating and amending policies that indirectly encourage conflict. (See examples from King County Metro and SMTA in Section 7.2.)
• Allowing bus operator input in bus procurement can ensure their needs are met by the equipment purchased. (See example from DART in Section 7.2.)
• TODSS technologies have been identified as a way to manage incoming automatic vehicle location and computer-aided dispatch data and to lessen the burden on dispatchers, which can lead to faster response times in the event of on-board driver assault.
• Transit agencies can work with unions to restructure the incentives so that bus operators share the burden and have better retention of new hires.
• While it is ideal that bus operators have access to permanent restroom facilities along their route, providing comfortable and clean portable restrooms can be a cost-effective approach for transit agencies.
• Creating contracts with local business owners for on-route restroom facility access can give bus operators options for convenient restroom use along routes. (See example from Metro Transit in Section 7.2.)

Retention and Motivation

Themes

• Operating a bus can be an isolating and thankless job; therefore, it is of even greater importance to highlight the outstanding performance and service of bus operators through various recognition programs.

• Mentorship programs provide bus operators with an opportunity to discuss the stresses of the job, get guidance on company policies, and obtain advice on how to approach difficult situations encountered on the job.
• Compensation levels impact retention.
• Opportunities for career advancement within the transit agency can positively contribute to retention.

Forward-Thinking Approaches

• Industry events and competitions can encourage and motivate bus operators. (See examples from APTA and Eno in Section 8.2.)
• Transit agencies across the country participate in Transit Driver Appreciation Day. (See example from King County in Section 8.2.)
• The cultivated atmosphere at a transit agency goes a long way in determining the overall working environment. (See case studies on GCRTA, FMCTA, RCPT, and VTA.)
• Registered apprenticeship programs for bus operators provide new bus operators with experienced mentors that have been chosen by a committee of both union members and management employees. (See example from the VTA case study.)
• Developing existing employees through career ladder programs encourages them to stay with the transit agency. (See examples from NY MTA, VTA, and LA Metro in Section 8.2, and the GCRTA case study.)
• Regular monitoring of reasons for retention issues can help address issues when they arise. (See examples from the GCRTA and PSTA case studies.)
• Consider scheduling changes, which can impact retention since bus operators with more seniority are given first pick of their routes. (See examples from the GCRTA and DART case studies.)
• Providing the right amount of training helps in retention of new hires. (See example from the PSTA case study.)

Figures 17 and 18 summarize the themes and forward-looking approaches for the seven key areas identified by the researchers to represent all elements of transit bus operator workforce management, from recruitment to motivation and retention.

The following key strategies arise across these seven areas that support effective bus operator workforce management:

• Identification and application of COVID’s impacts on the workforce in the development of formulas and models to determine staffing needs;
• Removal of barriers and provision of supportive services for diverse populations consideration and occupation entrance;
• Implementation of strategically designed compensation, benefits, and incentive programs to attract, reward, motivate, and retain bus operators;
• Effective use of technologies to assist with recruitment, selection, and training;
• Streamlined human resource processes for hiring and onboarding with union involvement;
• Labor–management partnerships for joint safety, health, and training programs to improve working conditions, elevate skills, and increase retention;
• Development of mentoring, apprenticeship, and career ladder programs to provide opportunities for career advancement to both entry-level and veteran bus operators; and
• Innovative approaches to increase flexibility in the work such as changes to scheduling and wage progression.

9.2 Challenges

Stakeholders and research have long pointed to several factors that contribute to transit’s widespread challenges related to worker recruitment and retention.²³⁷ Chief among those factors are job requirements and compensation. Many transit agencies find it difficult to offer competitive wages and benefits. Additionally, few bus operator applicants have CDL with passenger endorsements and must also pass physical and drug tests. These requirements are costly and time-consuming for transit agencies and prospective workers.

Even before the COVID-19 pandemic hit in 2020, transit agencies experienced very high bus operator turnover due in large part to voluntary terminations. Some bus operators use transit to receive training and then leave for jobs in other transportation sectors. Transit workforce issues are most acute for bus operators: although many technicians are also reaching retirement age,

they tend to stay with the transit agency until retirement. Bus operators conduct their work in a public environment, which leads to stress and greater turnover, whereas maintenance personnel are more removed from these pressures.

The prolonged bus operator shortage has been magnified by the COVID-19 pandemic. Since the beginning of 2020, COVID-related factors have resulted in even more dire bus operator shortages and service cuts, a trend that has occurred in transit systems nationwide.²³⁸ In 2022, APTA reported that more than 9 out of 10 public transit agencies stated that they are having difficulty hiring new employees, with bus operations positions being the most difficult to fill.²³⁹ In addition, nearly 3 out of 4 transit agencies said that they have either had to cut service or delay service increases because of worker shortage issues. As frontline workers, bus operators risk exposure to COVID-19 and the associated serious health consequences including the possibility of death. Some drivers quit because of fears about the virus or were terminated because of failure to comply with vaccination and testing policies.²⁴⁰

COVID-19 may have served as a wake-up call for the vital role bus operators play, not only for transit systems, but also for the public. Transit agencies and unions need to stay focused on the key challenges and opportunities the industry faces in attracting, developing, and retaining frontline bus operators. Many of these challenges have persisted for years and have only been exacerbated by the pandemic. At the same time, transit agencies need to be nimble to constantly adjust their practices to the changing environment. This report provides many ways they can learn from their peers and become innovative leaders themselves.

9.3 Research Limitations and Further Research

Given the fluid situation of the pandemic, many of the transit agencies involved in the survey and case studies have only recently started pioneering new practices such as alternative service schedules, reduced time for wage progressions, new hire and retention incentives, and innovative recruitment campaigns. Some of the programs are still in their infancy and do not merit full documentation of their impact on the transit agencies’ ability to recruit and retain bus operators. Future research may follow up on these cases and examine longer-term effects, particularly with quantitative measures.

Since the entire duration of this research was carried out during the height of the pandemic from 2021 to 2022, dramatic changes in the overall economy, low unemployment, and extreme labor shortages across many industry sectors, especially in transportation, had a large impact on the supply and demand of the transit workforce. Many existing and potential workers are reassessing the risks and benefits associated with working as frontline bus operators and are putting a greater emphasis on work–life balance considerations. Although this reflects the reality transit organizations are facing, these considerations can also skew the analysis and resulting conclusions if they are applied to a different labor market scenario in the future. The industry can benefit from ongoing research on bus operator workforce management and the dissemination of best practices and strategies that adjust to different types of economic and operating environments.