SUMMARY
Mental Health, Wellness, and Resilience for Transit System Workers
Research Need
Operators and other frontline transit workers face a range of adverse conditions while carrying out their work, including fatal crashes, exposure to passenger drug use, and verbal and physical assaults. Moreover, the public transit industry was experiencing an operator shortage even before the start of the COVID-19 pandemic in 2020. The pandemic further exacerbated existing stressors and created new ones, causing frontline workers to risk COVID-19 exposure at a time when information about the virus was quickly changing and agencies were still determining how to communicate, establish policy, and undertake measures to reduce frontline staff exposure. The COVID-19 pandemic disproportionately impacted the health and well-being of transit workers due to their frequent exposure to the public and their status as essential critical infrastructure workers. During the first 15 months of the pandemic (March 2020–May 2021), 48,511 public transit workers in the United States were infected with the coronavirus, and 478 of them died from COVID-19 (Mader, 2021). Many frontline workers contracted COVID-19 and lost family, friends, and colleagues to the virus, while the nature of their jobs eliminated any possibility of working from home.
Despite the formal declaration on May 11, 2023, of an end to the public health emergency in the United States, the transit worker shortage continues to be top of mind. Transit agencies across the country are working to increase service levels, but they continue to be impacted by a lack of operators, mechanics, and other personnel needed to operate normal service. According to a national survey of transit agencies conducted in February 2022, almost 62% of responding agencies reported having difficulty retaining employees. Another survey aimed at frontline workers in January 2023 found that many factors contributed to workers quitting; from most to least importance, these factors include work schedules, compensation, “other” working conditions, on-the-job harassment or assault, and concerns over contracting COVID-19 on the job. Issues with agency management were also cited as one of the main contributors to low retention. The same survey from 2023 found that 32% of frontline workers cited management as a cause for their departure. Almost half (45%) of current frontline workers stated that their agency was not responsive to worker concerns; this percentage increased to 53% among former workers. Difficulty in retaining frontline transit workers appears to be the result of multiple factors, and stressors from everyday working conditions are an underlying reason why transit workers are leaving their jobs. To combat the personnel shortage, transit agencies must focus on retaining their existing workforce in addition to hiring new workers.
The objective of this research was to understand the factors that negatively impact the mental health, wellness, and resilience of frontline transit system workers. As a result of this research and based on these findings, a comprehensive set of resources and a toolkit were also developed to assist transit agencies and other stakeholders in implementing solutions to mitigate the negative factors impacting frontline workers’ well-being.
Research Approach
This report provides a detailed summary of common factors that influence the mental health, well-being, and resiliency of frontline transit workers, and it includes a range of solutions that transit agencies can implement to address these factors. Findings were determined using a mix of research methods, including multiple interviews and focus groups with frontline employees, transit agency management, and union leadership at two different points in the project. Early in the project, the first round of engagement focused on (1) understanding current practices related to mental health, well-being, and resiliency of frontline workers and (2) identifying potential interventions, as well as barriers to using those solutions. The second round of engagement, near the end of the research, focused on potential elements to include in the report’s toolkit, including preferred programs to support mental health and wellness among transit workers; training, mentoring, or peer programs that could provide critical support for transit workers and operators; difficulties in accessing and implementing existing mental health or wellness programs; and privacy concerns. A comprehensive literature review and a national survey of frontline workers, which produced 777 usable responses, also informed the findings in this report.
Research Findings
Some of the main findings of this report include:
- Frontline transit workers experience a range of difficulties in the work environment. Bus operators face exposure to chemicals and fumes; extended periods of sitting and stressful postures; difficult traffic and weather conditions; assault (both verbal and physical); and a lack of restroom access. Rail operators and other frontline workers may encounter violent crashes, suicide by train, and exposure to chemicals and fumes. On-the-job occurrences can expose frontline workers to a range of potentially traumatic events, with one study finding a high prevalence of post-traumatic stress disorder (PTSD), major depressive disorder, and anxiety disorders among bus operators. These occupational stressors and other work exposures also impact physical health and can contribute to chronic conditions, such as heart disease and hypertension. A lack of bathroom access can cause mental distress, affect the cardiovascular system, and contribute to kidney and bladder problems among operators.
- Aside from well-known stressors, interviews yielded additional, lesser-known factors that impact the mental health and well-being of frontline workers. One such factor is employees’ work–life balance, which is impacted by inconsistent work schedules. Scheduling constraints complicate self-care and family care, and labor shortages may make it difficult for agencies to accommodate time-off requests.
- Stressors related directly to the job and work environment (internal work stressors) include stress associated with the frequency and quality of communication; varying degrees of English proficiency among staff and the riding public; loneliness and isolation in the workplace; lack of support from managers in the field and after incidents; an overall feeling that training was not adequate to prepare workers for their jobs; an “us vs. them” mentality pitting frontline workers and their union representation against management; and low morale among transit agency staff.
- Stressors from employees’ personal lives (external or personal stressors) include the provision of childcare and family care in light of scheduling constraints and overall access to healthcare and childcare; cost of living and financial concerns; and commute time to and from work due to a lack of affordable housing in their agencies’ service areas.
- COVID-19 had a profound effect on transit agencies and workers, making it even more difficult for agencies to recruit and retain frontline workers, such as operators. At the time of writing, only two empirical studies have examined the effects of COVID-19 on transit workers’ mental health and well-being.
- When surveyed, frontline transit workers identified barriers to using the mental health services offered by their agencies. The most commonly cited reasons affecting the decision to seek services through an employer were lack of time (35.9%), concerns about missed pay (33.2%), privacy concerns (32.6%), and being too tired/exhausted (31.5%).
Various themes emerged about how transit agencies should respond to worker needs and address their mental health, well-being, and resiliency. Agencies should consider taking the following actions to address the specific challenges that frontline transit workers face.
- Improve the physical safety of the workplace by building physical barriers between subway trains and platforms to reduce person under train incidents; erecting enclosures between customers and bus operators; and developing new or enforcing existing policies and protocols with regard to safety, security, and driver protection systems. Many frontline workers noted that policies are in place at their transit agencies to protect workers and set codes of conduct for passengers; however, they felt those policies have not been enforced. Likewise, frontline workers desire support in the field from supervisors and transit police.
- Adjust benefits and policies to provide more support for attaining and maintaining good mental health and a better work–life balance among frontline workers. Workers repeatedly noted the difficulty of taking time off for their own well-being or to care for family members. Varying work schedules, strict absentee policies, and seniority rules for selecting work schedules make it difficult for workers to practice autonomy over their lives and have a work–life balance that is typically expected in other industries. They also felt their time off was not their own, as they were often required to be on call or available in case of emergencies or staff shortages. Likewise, transit timetables and ongoing operator shortages make it difficult to have breaks throughout the day. Transit agency leadership, unions, and workers should collaborate to modify and improve scheduling practices for timetables and work schedules to provide better balance between work and personal life. Transit agencies should also revisit policies and practices to ensure that employee time off is protected and cannot be interrupted by workplace emergencies.
- Improve and diversify communication and marketing efforts to grow employee awareness of available mental health and wellness resources. Since not all frontline workers have agency email addresses, marketing available resources can be complicated. Frontline workers may also have working hours that do not lend themselves to trainings and meetings that occur during first-shift working hours, such as lunch-and-learn sessions. The nature of their job and existing staffing shortages can complicate the attendance of information sessions. Agencies can take steps to diversify communication methods and the flow of information about available resources, such as ensuring that information sessions are offered across shifts, facilities, and departments, or scheduling information sessions during regularly occurring meetings that frontline workers are paid to attend during their working hours. These information sessions could include the staff member responsible for administering the employee assistance program (EAP) and provide an opportunity for attendees to learn about the resources in a more in-depth fashion and ask questions (particularly around privacy). Although some frontline workers may not have agency email addresses, agencies could also use text messaging to push information out. Improving communication can also take a more old-fashioned approach, such as flyers in common areas or posters in bathroom stalls. Supervisors and managers can also play a part in spreading the word by making direct reports aware of resources during recurring team meetings.
- Evaluate performance of EAPs, union assistance programs, and other mental health programs to assess whether a program’s services align with employee needs and the extent to which programs are successful. This may include a review of existing and future EAP service level agreements and the institution of a monitoring process for programs that focus on improving mental health.
- Address the privacy concerns that hinder employees from using resources by providing a range of programming types. Survey results indicate that most frontline transit workers prefer mental health services delivered in a one-on-one format (not in a group format), led by a mental health professional (not a trained peer), delivered in person (instead of telehealth), and accessed at an off-site location (not on-site at the workplace). Privacy concerns can also be addressed by working with third-party partners to deliver mental health resources.
- Strengthen and enforce policies to protect frontline workers. Policies that outline clear and enforceable rules and procedures for handling inappropriate passenger behavior are needed to ensure operator safety. In addition, training on how to address passenger problems (e.g., communication and de-escalation strategies; strategies for handling passengers with mental health or substance use issues) is also recommended.
- Provide more support in the field and ongoing support after incidents. Many frontline workers are on their own most of the time, which can be isolating and lonely. They are often left to handle situations and conflicts on their own, which can be especially stressful for newer employees. Additional and dedicated support through specialized staff trained in incident response, such as critical response teams, would help make frontline workers feel more supported and protected in their jobs. Ongoing support is also needed following incidents to ensure that frontline workers can recover and return to work without additional adverse impacts on their or others’ well-being.
- Provide peer support and mentoring to increase morale, build meaningful relationships among workers, and provide ongoing support systems. Frontline transit workers and transit agency managers contacted for this report noted the positive impacts on employee outcomes when a peer support or mentoring program is in place. These programs should be more widely adopted by transit agencies to increase employee engagement and workplace satisfaction.
- Strengthen community and create a culture where workers feel supported and support each other. As stated previously, frontline work can be isolating and lonely. Similar to the need for more mentoring and peer-support systems, providing more opportunities for frontline workers to connect with one another on a regular basis, and build relationships with their peers, can increase their overall connection to the workplace. Transit agencies can implement more social events and other opportunities for frontline workers to meet their peers and build relationships. Likewise, to increase connections to the communities in which they work, transit agencies can design social or volunteer-based opportunities for frontline workers to engage with community members in a non-transit and non-work environment. This would help frontline workers understand the challenges a community is facing and be better equipped to engage with community members when they interface with the public in their jobs. These activities can create a strong community among frontline workers and can promote culture change that is centered around supporting each other and the communities they serve.
- Develop training to increase empathy and improve communication among frontline workers, managers, and agency leadership. Many frontline workers noted the disconnect between themselves and their managers. A lack of understanding what a frontline worker’s job entails and the dismissive language used by managers made them feel like their concerns were neither heard nor adequately addressed. Empathy training, communication training, and other activities (e.g., ride-along with operators) for managers, supervisors,
- Seek opportunities to improve trust between all parties, including between employees and their peers, between employees and managers, and between transit agency management and union leadership. Building trust can help reduce the negative stigma associated with seeking help to improve mental and emotional well-being. Importantly, trust building should begin by including frontline workers and unions in the identification and rectification of obstacles to employee wellness.
and non-frontline workers would increase awareness of the challenges frontline workers face, as well as validate their feelings. Communication training could also benefit frontline workers by providing them with tools to express their grievances and complaints in a way that can lead to collaborative solutions.
Overall, this research clarifies that transit agencies—specifically transit agency leadership—must make a real and concerted effort to take the mental health and overall wellness of frontline workers more seriously. Leadership can play an important role by making a clear commitment and dedicating resources to address mental health, wellness, and resiliency at their agencies. Ultimately, this means more funding and staff resources are needed to address barriers and to develop, implement, and support programs aimed at improving mental health, wellness, and resiliency. This includes staff dedicated to implementing and monitoring holistic wellness programs.
Report Organization
This report is presented in two parts, Part I: Conduct of Research and Part II: Resources and Toolkit. Part I summarizes the research methods used, along with results of the research and findings. This part includes a summary of findings from the literature review, interviews and focus groups with frontline workers and transit agency managers, and a survey of frontline workers. Part II is a comprehensive set of solutions that transit agencies can apply to address root causes of stressors and improve frontline workers’ mental health, wellness, and resiliency. This part includes resources and a toolkit designed for practitioners to support agencies as they create programs and processes to enhance mental health for transit workers.
Part II includes
- Case studies that highlight exemplary programs;
- Comprehensive guidance on improving and enhancing existing mental health and wellness programs, as well as implementing new ones;
- A framework that agencies can use to create their own procedures for program evaluation;
- Assessment worksheets for agencies to evaluate their EAP; and
- Suggestions and guidance regarding wellness programs and on-site health services, trust building between stakeholders, communications and marketing of resources, partnership opportunities, training, operations policies, fostering community in the workplace, and self-advocacy.
Future Research
The findings from this research have uncovered knowledge gaps that could be explored in future research, as described in Table S.1.
Table S.1. Implications for future research.
| Research Gap | Description |
|---|---|
| Process/framework for evaluating EAP performance and user outcomes | Throughout the course of the project, no transit agencies with an established framework for evaluating EAP performance were identified. Future research may develop a methodology to better evaluate EAP performance and explore user outcomes associated with EAP use. |
| Guidebook for establishing peer-mentor programs | Some transit agencies had implemented peer-mentor programs, which participants generally found to be helpful. Transit agencies might benefit from a guidebook on best practices for peer-mentor programs that includes an implementation checklist for agencies to establish their own program. |
| Service planner and scheduler training materials | Bus routes determine the areas where operators spend their layover time. Likewise, timetable design impacts whether and for how long an operator can rest and recover from the often stressful job of operating vehicles and managing passengers. Training materials could be developed to (1) help transit agency service planners understand how the physical environment impacts operator comfort and physical health and (2) provide tips for how to incorporate bathroom access and layover areas into the service planning process to improve operators’ job conditions. Training materials for schedulers could include information on the relationship between operator wellness and break time, as well as recommend standards for recovery and break time. |
| Strategies for reducing operator exposure to drug use on transit vehicles | Operators may be exposed not only to verbal and physical threats but also to passenger drug use while on the job. Future research could identify strategies to reduce operator exposure, including additional physical barriers as well as the development and consistent implementation of policies that establish a process for addressing drug use in transit vehicles. |
| Frontline transit preemployment tests | Interviewees explained that applicants and new hires might be unaware of what a frontline transit job entails, including both the nature of the work and the skills and abilities required to perform the job successfully. Developing a screening tool for frontline workers would benefit both potential candidates and the transit agencies hiring them by measuring a candidate’s propensity for the job, which could help candidates and agencies ensure a good fit on both sides. The FAA’s Air Traffic Skills Assessment Test, which evaluates the skills and attributes of air traffic controllers, may serve as an example. |
