flmSS. (-) 1.2'P ?-/ © UMASS/AMHERST US Department 31 2066 0308 0567 4 of Transportation Federal Highway Administration MASS HIGHWAY FEDERAL HIGHWAY ADMINISTRATION In Cooperation With MASSACHUSETTS HIGHWAY DEPARTMENT PROCESS REVIEW REPORT OF MASSHIGHWAY CONSTRUCTION AND MATERIALS STAFFING July 2003 Digitized by the Internet Archive in 2013 http://archive.org/details/processreviewrepOOdoyl D 1 1 I 1 1 FEDERAL HIGHWAY ADMINISTRATION In Cooperation With MASSACHUSETTS HIGHWAY DEPARTMENT 1 I I I | PROCESS REVIEW REPORT OF | MASSHIGHWAY CONSTRUCTION AND MATERIALS STAFFING July 2003 Prepared by: Gregory J. Doyle - FHWA Process Review of MassHighway Construction & Materials Staffing TABLE OF CONTENTS EXECUTIVE SUMMARY INTRODUCTION PROCESS REVIEW DESCRIPTION Purpose of Review Scope of Review OVERVIEW OF FINDINGS AND RECOMMENDATIONS Adequacy of Current Staffing Levels and Personnel Qualifications Process/Procedures for Determining Staffing Levels Process for Recruitment and Retention of Qualified Personnel DETAILED FINDINGS AND RECOMMENDATIONS Organization of Issues Issue No. 1 - Adequacy of Staffing in Boston Construction Office Issue No. 2 - Adequacy of Staffing in Research & Materials Division Issue No. 3 - Adequacy of Staffing in District Construction Offices Issue No. 4 - Adequacy of Staffing in District Materials Sections Issue No. 5 - Adequacy of Staffing on Construction Projects Issue No. 6 - Process to Determine Necessary Staffing Levels Issue No. 7 - Process for Recruitment of Qualified Personnel Issue No. 8 - Process to Retain Qualified Personnel REFERENCE INFORMATION APPENDICES Process Review of MassHighway Construction & Materials Staffing EXECUTIVE SUMMARY Purpose of Review The Commonwealth of Massachusetts has a mandated annual expenditure of $400 million for its statewide highway and bridge construction program. One of the fundamental requirements for the proper implementation of this construction program is an adequate staff of qualified personnel to perform inspection, sampling, testing, and contract administration duties. As recently noted by the US DOT Office of the Inspector General at the annual AASHTO Construction Meeting, inadequate Agency construction project staffing can lead to Contractor fraud. Under the provisions of Title 23 USC, Section 302, each State transportation department is required to be suitably equipped and organized in order to implement the Federal-Aid highway program. Additionally, the Code of Federal Regulations (23 CFR 637) stipulates requirements for a construction Quality Assurance program, including properly qualified personnel and laboratory facilities. Accordingly, this Process Review assesses the current status of MassHighway's construction and materials staffing. The purpose of this review was to: • Assess the adequacy of the current number of construction and materials personnel and their qualifications. • Evaluate the MassHighway process and procedures used to determine the required levels of construction and materials personnel. Scope of Review A joint MassHighway/FHWA review of MassHighway construction and materials staffing was conducted July 16-20, 2001. The Review Team consisted of eight representatives from MHD and FHWA with diverse backgrounds in construction and materials testing. Interviews were conducted with upper management/supervisory personnel in the Boston Construction Office, the Research & Materials Division, and the District Offices to gain an understanding of the staffing process utilized by each office and to obtain information on current staffing. The Team also visited a sampling of active construction projects and conducted interviews to determine the number and qualifications of field personnel on each project. Interim Final Report - July 3, 2003 Process Review of MassHighway Construction & Materials Staffing Findings & Recommendations Adequacy of Current Staffing Levels and Personnel Qualifications The Review Team reached the following two general conclusions with regard to the adequacy of the current (July 2001 ) number and qualifications of construction and materials personnel: 1 . Overall staffing levels are well below the minimum needed to fulfill the necessary construction and materials functions of the statewide construction program. 2. There are a significant number of personnel who lack the necessary training and qualifications to perform inspection, sampling, and testing of construction materials. The following principal findings and recommendations are offered: • Both FHWA and MHD find that an additional seventy-two (72) personnel are needed to fill current (July 2001 ) vacancies and new positions required in the Boston Construction Office, the Research & Materials (R&M) Division, the District Construction Offices, and the District Materials Sections. • A significant number of additional personnel are also required for assignment to individual Construction Projects, however, FHWA and MHD have developed separate estimates of the number of staff needed. Based on a FHWA proposed Construction Project staffing template, it is recommended that one hundred ninety- six (196) additional Engineer and Engineering Technician positions should be filled across the five Districts. Using an MHD proposed staffing template, it is recommended that as a minimum, an additional seventy-three (73) Construction Project personnel should be provided. • The overall additional construction and materials staffing required, therefore, is estimated to be a minimum of 145 personnel (per MHD) or 268 personnel (per FHWA). The estimated construction and materials staffing needs versus the current number of staff are summarized in Table A and Table B below. • Current overall construction and materials staffing levels should be increased to ensure that the necessary construction and materials functions (i.e. contract management, inspection, sampling, testing) of the statewide construction program can be provided in accordance with the requirements of Title 23 USC, Section 302 and 23 CFR 637. • The promotional process appears to be providing well-qualified staff to assume professional or technical positions (engineering related) in the Boston Construction Office and in the District Construction Offices. However, the current staffing shortfall on individual construction projects is impacting the pool of qualified personnel available to fill future vacancies in the District Construction Offices. Interim Final Report - July 3, 2003 Process Review of MassHighway Construction & Materials Staffing Table A FHWA Estimate of Current Construction and Materials Staffing Needs - July 2001 Construction & Materials Personnel Group Estimated Number of Staff Required Current Number of Staff Additional Number of Staff Needed Percent Increase In Staff Needed Boston Construction Office 35 27 8 29.6% Research & Materials Division 60 36 24 66.7% District Construction Offices 80 72 8 11.1% District Materials Sections 73 41 32 78.0% Construction Projects 553 357 196 54.9% Overall Total 801 533 268 50.3% * Additional Staff Needed = Number of Vacancies + Number of New Positions. TableB MHD Estimate of Current Construction and Materials Staffing Needs -July 2001 Construction & Materials Personnel Group Estimated Number of Staff Required Current Number of Staff Additional Number of Staff Needed* Percent Increase In Staff Needed Boston Construction Office 35 27 8 29.6% Research & Materials Division 60 36 24 66.7% District Construction Offices 80 72 8 11.1% District Materials Sections 73 41 32 78.0% Construction Projects 430 357 73 20.4% Overall Total 678 533 145 27.2% * Additional Staff Needed = Number of Vacancies + Number of New Positions. Interim Fi ml Report - July 3, 2003 Process Review of MassHighway Construction & Materials Staffing • Some personnel assigned to the R&M Division and the District Materials Sections do not possess the minimum skills and qualifications necessary to provide proper materials sampling, testing, and inspection duties. In addition, many of the current personnel performing inspection, sampling, and testing on individual Construction Projects do not possess the minimum skills and relevant qualifications (i.e. education level, training, NETTCP certifications) required to perform these construction duties. All construction and materials personnel who perform inspection, sampling and testing of construction materials for Acceptance should be qualified through the NETTCP and other relevant programs. • To help establish uniform qualification requirements for all technician/inspector positions, it is recommended that the current variety of non-engineer position titles and grades assigned to the R&M Division, the District Materials Sections, and individual Construction Projects be replaced with one standard "Engineering Technician (ET)" grades series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers. To provide a mechanism for development of properly qualified personnel to fill all construction and materials positions, a MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place. The ETP and TTP should include a Construction and Materials career track for Engineers and Engineering Technicians/Inspectors with grade level advancement linked to the amount of formal training and certifications attained. • A College Intern program should also be considered to address some staffing needs in the R&M Division, the District Materials Sections, and on individual Construction Projects, especially during the peak construction season. This could provide a conduit for attracting new full-time employees upon college graduation. Process/Procedures for Determining Staffing Levels • There is no quantitative process in place to forecast and determine, on a regular frequency, the number of positions needed to perform the various MassHighway construction and materials functions and activities. The number of personnel in each unit has been established primarily based on history, and through periodic assessments using experience and judgement. A quantitative process should be established to determine, on at least an annual basis, the construction and materials staffing levels needed by MassHighway. Key variables to be considered in this process should include overall Construction Program expenditures, the number of active construction projects in each work category, the size ($) of individual projects, and Staffing Templates for the various construction and materials functions. It is recommended that a Construction and Materials Staff Assessment System (SAS) be developed based on project information in the State Transportation Improvement Program (STIP). Information which may assist MassHighway in developing the SAS includes models developed by other Agencies (e.g. Oregon DOT, South Carolina DOT) and NCHRP Report 447. Interim Final Report - July 3, 2003 Process Review of MassHighway Construction & Materials Staffing • Current Tables of Organization (TOs) do not define the number of personnel required for the R&M Central Laboratory, the District Materials Sections, or on individual Construction Projects below the CE III level (i.e. Unit Heads, District Materials Engineers, Resident Engineers). Construction and Materials Staffing Templates should be adopted by MassHighway to determine the appropriate number and distribution of grades for personnel in the Central Laboratory, the District Materials Sections, and on individual Construction Projects. Process for Recruitment and Retention of Qualified Personnel • MassHighway is not able to hire new personnel for construction and materials staffing on a regular basis This is primarily attributed to funding and program issues beyond the control of MassHighway. A serious commitment must be made within MassHighway and by EOTC to hire on an annual basis the necessary number of personnel to fill construction and materials positions. Hiring of all new construction and materials personnel should normally be through an Engineer Training Program (ETP) and a Technician Training Program (TTP). • A well-defined and active process for recruitment of qualified construction and materials personnel by MassHighway is not in place. A well-defined program for recruitment of construction and materials personnel should be developed and funded. New personnel needed to fill Engineer and Engineering Technician positions should be recruited on at least an annual basis through Universities and Technical Schools. A comprehensive process should be established working with High Schools, Technical Schools, Professional Associations, and Industry organizations to foster awareness and interest in construction and materials related career opportunities among students at or below the High School level. Example programs include the Associated General Contractors (AGC) "Build Up!" program, the AASHTO TRAC program, and the Construction Career Days (CCD) program. • The Department has had great difficulty retaining qualified construction and materials personnel. MassHighway must provide benefits and incentives to retain qualified construction and materials personnel. Specifically, pay scales must be evaluated and increased to become more competitive with the private sector. Existing vacancies should be filled on a timely basis and promotions should be provided where warranted. An internal rotational training program for all new hires (i.e. ETP and TTP) is also recommended to expose these employees to potential career path opportunities and to improve technical and management skills. Professional development opportunities should also be supported and funded, including out of state attendance at professional conferences and workshops (e.g. AASHTO, FHWA, Others). All of these items are necessary to maintain a highly professional and attractive organization. Interim Final Report ■ July 3, 2003 II 1 ll I I Process Review of MassHighway Construction & Materials Staffing INTRODUCTION The Commonwealth of Massachusetts has a mandated annual expenditure of $400 million for its statewide highway and bridge construction program. This requirement is established under the Memorandum of Understanding between the Commonwealth and Regional Planning Agencies for a Balanced Statewide Road and Bridge Program (June 7, 2000), Chapter 87, Section 12 of the Commonwealth of Massachusetts' Acts (May 17, 2000), and the U.S. Transportation Appropriations Act for FY2001 (P.L. 106-346). This construction program is administered by the Massachusetts Highway Department (MassHighway). One of the fundamental requirements for the proper implementation of this construction program by MassHighway is an adequate staff of qualified personnel to perform inspection, sampling, testing, and contract administration duties. Between 1988 and 2001, the number of active projects in MassHighway' s statewide construction program has increased by approximately 40%, while the total number of construction and materials personnel at the District level (i.e. District Construction Offices, District Materials Sections, individual Construction Projects) has decreased by nearly 30%. Likewise, in recent years, many State Highway Agencies (SHAs) across the United States have experienced an overall reduction in staff, while their construction programs (total dollar value and number of projects) have either remained at approximately the same level or experienced some growth. This reduction in staff is attributed to a combination of factors, including; post-Interstate era Agency attrition, decreased interest by younger people in engineering and related transportation careers, and political goals to downsize government. The American Association of State Highway and Transportation Officials (AASHTO) has identified these national trends as an area of concern. In particular, the AASHTO Subcommittee on Construction has focused its attention on the need for adequate staffing through related presentations at its Annual Meeting. Sufficient levels of qualified construction and materials staff are necessary to ensure that the quality of work meets specification requirements and to ensure that the quantity of materials paid for is accurate. As noted by the US DOT Office of the Inspector General at the 2001 AASHTO Construction Meeting, inadequate Agency construction project staffing can lead to Contractor fraud. As part of its responsibility for stewardship of the Federal Aid Highway Program, the Federal Highway Administration (FHWA) works closely with each SHA to ensure that adequate resources, including staffing, are in place to plan, design, construct, and maintain all Federally funded projects. Under the provisions of Title 23 USC, Section 302, each State transportation department is required to be suitably equipped and organized in order to implement the Federal-Aid highway program. Additionally, the Code of Federal Regulations (23 CFR 637) stipulates requirements for a construction Quality Assurance program, including properly qualified personnel and laboratory facilities. Accordingly, this Process Review assesses how MassHighway determines staffing needs as well as the current status of MassHighway construction and materials staffing. Interim Final Report - July 3, 2003 6 Process Review of MassHighway Construction & Materials Staffing PROCESS REVIEW DESCRIPTION Purpose of Review The purpose of this Review was to assess the adequacy of the current (July 2001 ) number and qualifications of MassHighway personnel performing construction and materials responsibilities, including; Construction Program Management, Contract Management, Field Inspection, and Materials Sampling & Testing. The Review also sought to evaluate the process and procedures used to determine appropriate levels of construction and materials personnel. Scope of Review A joint MassHighway/FHWA review of MassHighway construction and materials staffing was conducted July 16-20, 2001 . The Review Team consisted of eight representatives from MHD and FHWA with diverse backgrounds in construction and materials testing. The members of the Review Team were: Mr. Michael McGrath - Construction Engineer, MHD Boston Construction Mr. Clement Fung - Research & Materials Engineer, MHD R&M Division Mr. Peter Niles - District Construction Engineer, MHD District 1 Mr. Joseph Serodio - Area Engineer, FHWA MA Division Mr. Jerry Blanding - Innovative Contracting Engineer, FHWA ERC Mr. Kenneth Coelho - Area Engineer, FHWA MA Division Mr. Gregory Doyle - Systems Engineer, FHWA MA Division Mr. Michael Praul - Construction & Materials Engineer, FHWA ME Division The Review Team assessed the following key process items: A) The adequacy of the current (July 2001 ) number and qualifications of construction and materials personnel assigned to: ■ The Boston Construction Office ■ The Research & Materials Division ■ The District Construction Offices ■ The District Materials Sections ■ Individual construction Projects in each District B) MassHighway procedures for determining construction and materials staffing levels needed. C) MassHighway process for recruitment and retention of qualified construction and materials personnel. Interim Final Report - July 3, 2 )03 B I I I I I I I I I V I I I Process Review of MassHighway Construction & Materials Staffing Scope of Review (Continued) Standardized "Process Review Guidelines" were developed and used by the Team in conducting interviews and to assist in collecting information. The Guidelines address each of the key process items listed above. A copy of these Guidelines is contained in Appendix A. Interviews were conducted with upper management and supervisory personnel in the Boston Construction Office, the Research & Materials Division, and the District Offices to gain an understanding of the staffing process utilized by each office and to obtain information on current staffing. The Team also visited a sampling of active construction projects in each District and conducted interviews to determine the number and qualifications of field personnel on each project. A summary of the interview locations and the corresponding personnel the Team met with is presented in the table below. Date Review Location Personnel Met With Monday July 16, 2001 Boston Construction Office 10 Park Plaza, Boston • Chief Engineer • Deputy Chief for Construction • Construction Area Engineers Research & Materials Division Northern Ave. Office + D Street Lab, S. Boston • Central Laboratory Supervisor • R&M Engineers • R&M Technicians Tuesday July 17, 2001 District 2 Office Northampton • District 1 & 2 Highway Directors • District 1 & 2 Construction Engineers, Assistant Construction Engineers, Materials Engineers, Area Engineers, Finals Engineers 2 Projects - District 2 1 Project - District 1 • Resident Engineers, All Inspectors/Technicians assigned to individual Projects Wednesday July 18, 2001 District 3 Office Worcester • District 3 & 4 Highway Directors • District 3 & 4 Construction Engineers, Assistant Construction Engineers, Materials Engineers, Area Engineers, Finals Engineers 2 Projects - District 3 • Resident Engineers, All Inspectors/Technicians assigned to individual Projects Thursday July 19, 2001 District 5 Office Taunton • District 5 Highway Director • District 5 Construction Engineer, Assistant Construction Engineer, Materials Engineer, Area Engineer, Finals Engineer 3 Projects - District 5 • Resident Engineers, All Inspectors/Technicians assigned to individual Projects Friday July 20, 2001 6 Projects - District 4 • Resident Engineers, All Inspectors/Technicians assigned to individual Projects Subsequent to the July 16-20, 2001 site visits, followup activity via meetings, telephone, and email was necessary to confirm some information or to obtain additional information. Interim Final Report - July 3, 2003 8 1 1 Process Review of MassHighway Construction & Materials Staffing SUMMARY OF FINDINGS AND RECOMMENDATIONS Adequacy of Current Staffing Levels and Personnel Qualifications General Findings The Review Team reached the following two general conclusions with regard to the adequacy of the current (July 2001 ) number and qualifications of construction and materials personnel: 1 . Overall staffing levels are well below the minimum needed to fulfill the necessary construction and materials functions of the statewide construction program. 2. There are a significant number of personnel who lack the necessary training and qualifications to perform inspection, sampling, and testing of construction materials. Overall Assessment of Staffing Levels • Both FHWA and MHD find that an additional seventy-two (72) personnel are needed to fill current (July 2001 ) vacancies and new positions required in the Boston Construction Office, the Research & Materials (R&M) Division, the District Construction Offices, and the District Materials Sections. • A significant number of additional personnel are also required for assignment to individual Construction Projects, however, FHWA and MHD have developed separate estimates of the number of staff needed. Based on a FHWA proposed Construction Project staffing template, it is recommended that one hundred ninety- six (196) additional Engineer and Engineering Technician positions should be filled across the five Districts. Using an MHD proposed staffing template, it is recommended that as a minimum, an additional seventy-three (73) Construction Project personnel should be provided. • The overall additional construction and materials staffing required, therefore, is estimated to be a minimum of 145 personnel (per MHD) or 268 personnel (per FHWA). The estimated construction and materials staffing needs versus the current number of staff are summarized in Table A and Table B below. • Current overall construction and materials staffing levels should be increased to ensure that the necessary construction and materials functions (i.e. contract management, inspection, sampling, testing) of the statewide construction program can be provided in accordance with the requirements of Title 23 USC, Section 302 and 23 CFR 637. Interim Final Report - July 3, 2003 II 1 ■ 1 1 Process Review of MassHighway Construction & Materials Staffing Table A FHWA Estimate of Current Construction and Materials Staffing Needs - July 2001 Construction & Materials Personnel Group Estimated Number of Staff Required Current Number of Staff Additional Number of Staff Needed Percent Increase In Staff Needed Boston Construction Office 35 27 8 29.6% Research & Materials Division 60 36 24 66.7% District Construction Offices 80 72 8 11.1% District Materials Sections 73 41 32 78.0% Construction Projects 553 357 196 54.9% Overall Total 801 533 268 50.3% * Additional Staff Needed = Number of Vacancies + Number of New Positions. Table B MHD Estimate of Current Construction and Materials Staffing Needs - July 2001 Construction & Materials Personnel Group Estimated Number of Staff Required Current Number of Staff Additional Number of Staff Needed* Percent Increase In Staff Needed Boston Construction Office 35 27 8 29.6% Research & Materials Division 60 36 24 66.7% District Construction Offices 80 72 8 11.1% District Materials Sections 73 41 32 78.0% Construction Projects 430 357 73 20.4% Overall Total 678 533 145 27.2% * Additional Staff Needed = Number of Vacancies + Number of New Positions. Interim Final Report - July 3, 2003 10 b ■ Process Review of MassHighway Construction & Materials Staffing Overall Assessment of Personnel Qualifications • The promotional process appears to be providing well-qualified staff to assume professional or technical positions (engineering related) in the Boston Construction Office and in the District Construction Offices. However, the current staffing shortfall on individual construction projects is impacting the pool of qualified personnel available to fill future vacancies in the District Construction Offices. • Some personnel assigned to the R&M Division and the District Materials Sections do not possess the minimum skills and qualifications necessary to provide proper materials sampling, testing, and inspection duties. In addition, many of the current personnel performing inspection, sampling, and testing on individual Construction Projects do not possess the minimum skills and relevant qualifications (i.e. education level, training, NETTCP certifications) required to perform these construction duties. All construction and materials personnel who perform inspection, sampling and testing of construction materials for Acceptance should be qualified through the NETTCP and other relevant programs. • To help establish uniform qualification requirements for all technician/inspector positions, it is recommended that the current variety of non-engineer position titles and grades assigned to the R&M Division, the District Materials Sections, and individual Construction Projects be replaced with one standard "Engineering Technician (ET)" grades series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers. To provide a mechanism for development of properly qualified personnel to fill all construction and materials positions, a MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place. The ETP and TTP should include a Construction and Materials career track for Engineers and Engineering Technicians/Inspectors with grade level advancement linked to the amount of formal training and certifications attained. • A College Intern program should also be considered to address some staffing needs in the R&M Division, the District Materials Sections, and on individual Construction Projects, especially during the peak construction season. This could provide a conduit for attracting new full-time employees upon college graduation. • The key findings and recommendations for each construction and materials group evaluated (Boston Construction Office, Research & Materials Division, District Construction Offices, District Materials Sections, and individual Construction Projects) are summarized below. Interim Final Report - July 3, 2003 1 1 I I Process Review of MassHighway Construction & Materials Staffing Adequacy of Staffing in Boston Construction Office • The overall Table of Organization (TO) established for the Boston Construction Office is considered to be adequate to provide its primary functions for the statewide construction program (See 1.1 F). • There are eight (8) positions within, or assigned to, the Boston Construction office that are presently vacant (See 1 .2F). The four vacant engineering positions plus four vacant clerical positions within the Boston Construction Office should be filled in a timely manner to ensure that all statewide construction program management functions and support needs are adequately provided (See 1.1R and 1.2R). • Some of the three vacant engineering positions (Finals Engineers) have remained vacant for an extended period of time. Even if the current vacancies were filled, the contract final review process is lengthy and has resulted in delays of final payment to Contractors and in closing out contracts (See 1 .3F). It is recommended that the overall procedures for final review and contract closeout be reassessed to provide a more timely and effective process (See 1 .3R). • The promotional process appears to be providing well-qualified staff to assume professional or technical positions (engineering related) in the Boston Construction Office (See 1.4F). Consideration should be given to establishing some Assistant Area Engineer positions as the statewide program continues to grow (See 1.4R). Adequacy of Staffing in Research & Materials Division • The overall staffing structure (Table of Organization) established for the Research & Materials (R&M) Division is not sufficient to fulfill the primary materials functions for the statewide construction program (See 2.1 F). The Review Team estimates that a minimum often (10) additional engineering/technical positions should be assigned to the Central Materials Laboratory and the Field Controls Section (See 2.1 R). • There are fourteen (14) engineering/technical positions within the R&M Division that are presently vacant (See 2.2F). The fourteen (14) vacant positions in the R&M Division should be filled with properly qualified personnel as soon as possible to ensure that all materials functions supporting the statewide construction program are provided in a timely and proper manner (See 2.2R). • Due to the lack of adequate staffing, the Central Materials Laboratory and the R&M Field Controls Section are not able to perform the required levels of Acceptance testing and Independent Assurance activity in a timely manner. There is concern with the Central Laboratory's ability to maintain accreditation status under the AASHTO Accreditation Program, as required by Federal regulations (See 2.3F). • There is a lack of personnel within MassHighway possessing sufficient knowledge and technical experience to replace Unit Heads and other positions in the R&M Division as they retire (See 2.4F). To ensure that all engineering/technical positions in the R&M Division are filled with properly qualified personnel, it is recommended Interim Final Report - July 3, 2003 1 2 D I I Process Review of MassHighway Construction & Materials Staffing that a MassHighway Engineer Training Program (ETP) and a separate Technician Training Program (TTP) be established (See 2.3R). A College Intern program should also be considered to address R&M Division staffing needs, especially during the peak construction season (See 2.4R). • Some personnel recently assigned to the Central Laboratory and other Sections of the R&M Division lack the minimum skills and qualifications necessary to provide proper materials inspection and testing duties (See 2.5F). All R&M Division personnel who perform sampling, testing, and inspection of materials for Acceptance or Independent Assurance (IA) should be qualified through the NETTCP and other relevant programs (See 2.5R). Adequacy of Staffing in District Construction Offices • The Table of Organization (TO) established for Construction Engineering personnel in each District Construction Office is considered to be generally acceptable to provide the primary construction management functions. However, additional Construction Engineering positions are believed necessary for the District 5 Construction Office. There is also a need for a dedicated staff position in each District to assist Construction & Materials personnel with new construction programs/technology and to manage engineer and technician/inspector training and certification (See 3.1 F). Consideration should be given to adding one Assistant Construction Engineer and one Area Engineer to the TO for District 5. It is also recommended that one "Construction Quality Engineer" (CQE) position (CE IV) be assigned to the TO for each District Construction Office (See 3.1 R). • There is one (1 ) Area Engineer position in the District 4 Construction Office that is presently vacant (See 3.2F). The one vacant Area Engineer position should be filled in a timely manner to ensure that the primary construction management functions of the District are adequately provided (See 3.2R). • There is considerable variation from District to District in the number and grades of Office Support staff in the District Construction Offices (See 3.3F). The number and grades of Office Support staff positions in the District Construction Offices should be reassessed based on the level of construction project activity. The reassessment should consider the need to establish standard positions for similar office support functions and should also consider the number of Office Support staff in proportion to the Construction Engineering staff (See 3.3R). • The promotional process appears to be providing well-qualified staff to assume engineering/technical positions in the District Construction Offices. However, the current staffing shortfall on individual construction projects is impacting the pool of qualified personnel available to fill future vacancies in the District Construction Offices (See 3.4F). To ensure that all future engineering/technical position vacancies in the District Construction Offices are filled with properly qualified personnel, the previously recommended MassHighway Engineer Training Program (ETP) and College Intern program should be implemented (See 3.4R). Interim Final Report - July 3, 2003 1 3 t I Process Review of MassHighway Construction & Materials Staffing Adequacy of Staffing in District Materials Sections • The Table of Organization (TO) established for each District Materials Section is inadequate. The number of Engineer and Technician/Inspector positions provided under the TOs is not sufficient to meet the materials functions necessary for the District construction programs (See 4.1 F). The Review Team estimates that thirty- two (32) new Engineer and Engineering Technician positions should be assigned across the five District Materials Sections (See 4.1 R). • With most Acceptance testing of Project Produced Materials now being performed by the Districts along with the implementation of new construction technology programs, there is a need to ensure that the materials program in each District is managed by highly qualified staff (See 4.2F). To provide a mechanism for development of properly qualified personnel to fill all positions in the District Materials Sections, the previously recommended MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place. A College Intern program should also be considered to address some District Materials Section staffing needs, especially during the peak construction season (See 4.2R). • The current grade level of the District Materials Engineer positions is not commensurate with the technical requirements and administrative demands of the District materials programs (See 4.2F). It is recommended that the District Materials Engineer positions be upgraded from a CE III grade level to a CE IV grade level. It is also recommended that a CE III Assistant Materials Engineer/Laboratory Supervisor position be assigned to each District Materials Section (See 4.3R). • Some personnel being assigned to the District Materials Sections do not possess the minimum skills and qualifications necessary to provide proper materials sampling, testing, and inspection duties (See 4.3F). All District Materials Section personnel who perform materials sampling, testing, and inspection for Acceptance should be qualified through the NETTCP and other relevant programs (See 4.4R). Adequacy of Staffing on Construction Projects • The overall number of qualified personnel available and assigned to staff individual Construction Projects is substantially deficient (See 5.1 F). Based on a FHWA proposed Construction Project staffing template, it is recommended that one hundred ninety-six (196) additional Engineer and Engineering Technician positions should be filled across the five Districts. Using an MHD proposed staffing template, it is recommended that as a minimum, an additional seventy-three (73) Construction Project personnel should be provided (See 5.1 R). • Existing personnel assigned to individual Construction Projects are not able to provide the necessary project oversight and acceptance duties in a timely manner and/or are performing them at reduced frequency. Consequently, construction quality deficiencies are occurring on some projects, which are subsequently resulting in decreased performance life of some pavements and bridges (See 5.2F). Interim Final Report - July 3, 2003 1 4 1 I 1 1 p 1 I I p p I Process Review of MassHighway Construction & Materials Staffing Additional qualified Engineers and Engineering Technicians need to be recruited and hired to meet the staffing needs for individual Construction Projects. A College Intern program should also be considered to address some staffing needs, especially during the peak construction season (See 5.2R). Some Resident Engineers are covering too many projects to provide effective project management under the "Typical Table of Organization (TO)" (See 5.3F). The number of projects assigned to each Resident Engineer should be based on a standard "Project Staffing Template" to be finalized by MHD and FHWA. Resident Engineers (CE III) should ideally cover no more than three (3) projects of small to medium size and complexity. For very large/complex projects, one (1 ) full time Resident Engineer (CE III) should be assigned (See 5.3R). The 'Typical TO" calls for Resident Engineers to be at a CE III grade level, however, personnel with other grades (CE II, CE I, GCI II, etc.) are assigned as Resident Engineers on some projects (See 5.4F). The Resident Engineer positions for all projects should be filled with engineers (minimum BS in Civil Engineering) at a CE III grade level. This will ensure that only personnel who possess the requisite qualifications and construction field experience are placed in responsible charge of individual Construction Projects (See 5.4R). The "Typical TO" does not define the number or grade levels of personnel (engineers and technicians/inspectors) assisting the Resident Engineer on individual Construction Projects (See 5.5F). The 'Typical TO" should be revised to identify standard positions below the Resident Engineer. The number and grades of positions assigned to each type of project should be based on a standard "Project Staffing Template" to be finalized by MHD and FHWA. An Assistant Resident Engineer (CE II) should be assigned full time to most projects involving bridge construction or highway construction. The number of other engineers and technicians/inspectors assigned to each project should be in accordance with the adopted Project Staffing Template (See 5.5R). Construction Projects are staffed by a variety of personnel below the engineer level, including several "newly created" position titles and grade levels (e.g. Program Coordinator, Pesticide Specialist, Research Analyst, Administrative Assistant) for personnel who lack the skills or qualifications needed to perform construction project duties (See 5.6F). The previously recommended MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place. The current variety of non-engineer (technician/inspector) position titles and grades assigned to Construction Projects should be replaced with one standard "Engineering Technician (ET)" grades series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers (See 5.6R). Many of the current personnel performing inspection, sampling, and testing on individual Construction Projects do not possess the minimum skills and relevant qualifications (i.e. education level, training, NETTCP certifications) required to perform these construction duties (See 5.7F). All Construction Project personnel Interim Final Report - July 3, 2003 1 5 II 1 I 1 II 1 i ■ i ■ i i I i i Process Review of MassHighway Construction & Materials Staffing who perform inspection, sampling and testing of construction materials for Acceptance should be qualified through the NETTCP and other relevant programs (See 5.7R). Process/Procedures for Determining Staffing Levels Summary of Findings and Recommendations: • There is no quantitative process in place to forecast and determine, on a regular frequency, the number of positions needed to perform the various MassHighway construction and materials functions and activities. The number of personnel in each unit has been established primarily based on history, and through periodic assessments using experience and judgement (See 6.1 F). A quantitative process should be established to determine, on at least an annual basis, the construction and materials staffing levels needed by MassHighway. Key variables to be considered in this process should include overall Construction Program expenditures, the number of active construction projects in each work category, the size ($) of individual projects, and Staffing Templates for the various construction and materials functions. It is recommended that a Construction and Materials Staff Assessment System (SAS) be developed based on project information in the State Transportation Improvement Program (STIP). Information which may assist MassHighway in developing the SAS includes models developed by other Agencies (e.g. Oregon DOT, South Carolina DOT) and NCHRP Report 447 (See 6.1 R). • Current Tables of Organization (TOs) do not define the number of personnel required for the R&M Central Laboratory, the District Materials Sections, or on individual Construction Projects below the CE III level (i.e. Unit Heads, District Materials Engineers, Resident Engineers) (See 6.2F). Construction and Materials Staffing Templates should be adopted by MassHighway to determine the appropriate number and distribution of grades for personnel in the Central Laboratory, the District Materials Sections, and on individual Construction Projects (See 6.2R). Process for Recruitment and Retention of Quaiified Personnel Summary of Findings and Recommendations • MassHighway is not able to hire new personnel for construction and materials staffing on a regular basis This is primarily attributed to funding and program issues beyond the control of MassHighway (See 7.1 F). A serious commitment must be made within MassHighway and by EOTC to hire on an annual basis the necessary number of personnel to fill construction and materials positions. Hiring of all new construction and materials personnel should normally be through an Engineer Training Program (ETP) and a Technician Training Program (TTP) (See 7.1 R). Interim Final Report - July 3, 2003 1 6 I Process Review of MassHighway Construction & Materials Staffing A well-defined and active process for recruitment of qualified construction and materials personnel by MassHighway is not in place (See 7.2F). A well-defined program for recruitment of construction and materials personnel should be developed and funded. New personnel needed to fill Engineer and Engineering Technician positions should be recruited on at least an annual basis through Universities and Technical Schools (See 7.2R). A comprehensive process should be established working with High Schools, Technical Schools, Professional Associations, and Industry organizations to foster awareness and interest in construction and materials related career opportunities among students at or below the High School level. Example programs include the Associated General Contractors (AGC) "Build Up!" program, the AASHTO TRAC program, and the Construction Career Days (CCD) program (See 7.3R). The Department has had great difficulty retaining qualified construction and materials personnel (See 8.1 F). MassHighway must provide benefits and incentives to retain qualified construction and materials personnel. Specifically, pay scales must be evaluated and increased to become more competitive with the private sector (See 8.1 R). Existing vacancies should be filled on a timely basis and promotions should be provided where warranted. An internal rotational training program for all new hires (i.e. ETP and TTP) is also recommended to expose these employees to potential career path opportunities and to improve technical and management skills (See 8.2R). Professional development opportunities should also be supported and funded, including out of state attendance at professional conferences and workshops (e.g. AASHTO, FHWA, Others). All of these items are necessary to maintain a highly professional and attractive organization (See 8.3R). Interim Final Report - July 3, 2003 1 7 II 1 Process Review of MassHighway Construction & Materials Staffing DETAILED FINDINGS AND RECOMMENDATIONS Organization of Issues The detailed findings and recommendations contained in this section are organized under eight general issues. Each issue is related to one of the above three key process items (A thru C) identified in the Scope of Review above. The eight issues presented are as follow: Issue No. 1 - Adequacy of Staffing in Boston Construction Office Issue No. 2 - Adequacy of Staffing in Research & Materials Division Issue No. 3 - Adequacy of Staffing in District Construction Offices Issue No. 4 - Adequacy of Staffing in District Materials Sections Issue No. 5 - Adequacy of Staffing on Construction Projects Issue No. 6 - Process to Determine Necessary Staffing Levels Issue No. 7 - Process for Recruitment of Qualified Personnel Issue No. 8 - Process to Retain Qualified Personnel For each Issue, the primary findings and recommendations are provided, followed by a detailed discussion of the Issue. Interim Final Report - July 3, 2003 1 8 ft! II P P P Process Review of MassHighway Construction & Materials Staffing Issue No. 1 - Adequacy of Staffing in Boston Construction Office Issue No. 1 Findings: 1 .1 F The overall staffing structure (Table of Organization) established for the Boston Construction Office is considered to be adequate to provide its primary functions for the statewide construction program. 1.2F The current staffing level (positions filled) in the Boston Construction Office, with some minor vacancies noted, is considered to be generally adequate. There are eight (8) positions within, or assigned to, the Boston Construction office that are presently vacant. This includes four (4) engineering positions and four (4) clerical positions. 1 .3F Three of the vacant engineering positions are for the Contract Final Review function (Boston Finals Engineer + two District Finals Engineers). Some of these positions have remained vacant for an extended period of time. Even if the current vacancies were filled, the contract final review process is lengthy and has resulted in delays of final payment to Contractors and in closing out contracts. 1 .4F The promotional process appears to be providing well-qualified staff to assume professional or technical positions (engineering related) in the Boston Construction Office. Issue No. 1 Recommendations: 1 .1 R The four vacant Boston Construction Office engineering positions (Area Engineer, Boston Finals Engineer + two District Finals Engineers) should be filled in a timely manner to ensure that all statewide construction program management functions are adequately provided. 1.2R The four vacant clerical positions within the Boston Construction Office should be filled in a timely manner to ensure that the various support needs of the office are sufficiently met. 1 .3R In addition to filling the three vacant engineering positions for the Contract Final Review function noted above, it is recommended that the overall process for final review and contract closeout be reassessed. A more timely and effective process may result by redirecting the efforts of the Finals Engineers to periodically visit the project field offices and perform spot-check audits of all contract records in lieu of the current approach of performing a line-by-line audit of records after contract completion. 1 .4R Consideration should be given to establishing some Assistant Area Engineer positions as the statewide program continues to grow and places additional demands on the existing Area Engineer positions. Interim Final Report - July 3, 2003 1 9 to to Process Review of MassHighway Construction & Materials Staffing Issue No. 1 Discussion: 1 .1 D Team Visit to Boston Construction Office The Team met with the Chief Engineer and upper level managers and supervisory personnel from the Boston Construction Office on Monday, July 16, 2001 . Personnel from the Boston Construction Office included the Deputy Chief for Construction and the Construction Area Engineers. The questions contained in the Process Review Guidelines were discussed to gain an understanding of the staffing process, current staffing, and staffing needs for the Boston Construction Office. 1 .2D Primary Functions of Boston Construction Office The Boston Construction Office has overall responsibility for the statewide construction program. The primary functions of the office include: > Providing overall construction program management > Issuing policy guidance to District Construction Offices > Managing consultant services (e.g. Field Coatings, QA Implementation) > Providing technical support (e.g. Environmental Programs) > Performing review of construction contract changes and claims > Processing approval and payment of contract progress estimates > Performing final review and closeout of contracts 1 .3D Table of Organization for Boston Construction Office MassHighway, through the Chief Engineer's office, has developed Tables of Organization (TOs) for each section of the Department. The TOs are intended to identify the minimum number of personnel (positions) needed to effectively carry out the functions of each office or section within the Department. The current (July 2001) approved TO for the Boston Construction Office provides for a total of thirty-five (35) positions assigned to the office. This includes twenty-one (21) professional or technical positions (engineering related) within the office, seven (7) clerical positions within the office, and seven (7) technical positions (contract final review) assigned at the District Offices. An organization chart that presents the current TO for the Boston Construction Office is included in Appendix 1 A of this report. 1.4D Current Number of Boston Construction Office Personnel The current number of personnel within or assigned to the Boston Construction Office is presented in Table 1A below. The Boston Construction Office has been successful, for the most part, in satisfactorily maintaining an adequate staff based on the current approved TO. However, currently there are eight (8) vacant positions that need to be filled. This includes four (4) engineering positions (one Area Engineer, one Boston Finals Engineer, and two District Finals Engineers) and four (4) clerical positions. Interim Final Report - July 3, 2003 20 9 Process Review of MassHighway Construction & Materials Staffing TABLE 1 A Current Boston Construction Office Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant Professional & Technical Staff (Boston Office) Deputy Chief Engineer, Construction M-9 1 Construction Engineer M-7 1 EWO Analyst CEVI 1 Area Engineer CEVI 1 Area Engineer CEV 3 2 1 Environmental Programs Manager EAVI 1 Office Engineer CEV 1 Special Programs Engineer CEIV 1 Accountant Account V 1 Contracts Specialist CE III 1 Contracts Specialist CEII 3 3 Contracts Specialist CS III 1 Contracts Specialist PCI 2 2 Final Review Engineer CEVI 1 Assistant Final Review Engineer CEV 1 Office Engineer (Finals) CEI 1 Clerical Staff (Boston Office) Records Retention Clerk - CS III 1 Records Retention Clerk RAI 1 Admin. Assistant to Deputy Chief AAI 1 Head of Clerical Staff AAI 1 Clerk Clerk III 1 Clerical WPOII 2 1 1 Technical Staff (District Offices) District (1,2,3,4,5) Final Review Engineer CEIV 5 3 2 Asst. District (4,5) Final Review Engineer CEII 2 2 TOTAL (All of Boston Construction Office) 35 27 8 Interim Final Report - July 3, 2003 21 II II ft I I I ft V p p p p Process Review of MassHighway Construction & Materials Staffing 1.5D Adequacy of TO and Staffing Level for Boston Construction Office There are no significant problems perceived by the MassHighway personnel interviewed with respect to the current approved TO or the staffing level of the Boston Construction Office. The Team generally concurs with this assessment and believes that the staffing level of the Boston Construction office, with the exception of the eight (8) vacancies noted above, is considered to be adequate. The Team recommends that these positions be filled in a timely manner to ensure that all statewide construction program management functions are adequately provided. The rate of personnel turnover in the Boston Construction Office is relatively low, as compared to the rate of turnover that is typically being experienced by the District Construction Offices. However, due to such factors as retirements and reorganization of staff there now are some vacancies within this office, which are expected by management to be filled from staff within the Department. It is noted by the Team that the Contract Final Review Engineer's position has remained vacant for an extended period of time. There are also two District Final Review Engineer positions that are currently vacant. This has resulted in delays in making final payment to Contractors and in closing out contracts. The Contract Finals Section has been a source of much discussion due to the length of time required to issue final closeout of projects. MassHighway has attempted to streamline the contract final review process over the years. The focus has been on trying to have as many of the functions and activities required in finalizing contracts performed at the District level as opposed to having them performed by staff within the Boston Construction Office. While this appears to be a step in the right direction, it is recommended that the overall process for final review and contract closeout be further assessed. A more timely and effective process may result by redirecting the efforts of the Contract Final Review Engineers to periodically visit the project field offices and perform spot-check audits of all contract records in lieu of the current approach of performing a line-by-line audit of records after contract completion. As noted previously, one Area Engineer position is currently vacant. The Area Engineer positions are critical to ensuring that the needs of the Districts are met so that MHD can meet its construction program commitments. As the overall construction program continues to grow, consideration should be given to creating some Assistant Area Engineer positions. This would be primarily for Districts 4 and 5, which presently have the greatest amount of construction activity, in terms of both the number of active contracts and the value of individual contracts. District 4 in particular is very demanding due to the vast number of projects that are under construction at any one time. The creation of one or more Assistant Area Engineer positions would also provide a mechanism for training and development of personnel to fill Area Engineer positions in the Boston Construction Office as well as engineering positions in the District Construction Offices. Although the current Boston Construction Office Table of Organization as prepared by the Chief Engineer's office is deemed adequate at this time, the TO should be periodically reassessed to consider including one or more Assistant Area Engineer positions. Interim Final Report - July 3, 2003 22 9 1 I I I I I I I I I I \ I Process Review of MassHighway Construction & Materials Staffing 1 .6D Adequacy of Qualifications of Boston Construction Office Personnel The Team did not interview individual Boston Construction Office staff to assess the their qualifications. However, it is understood that the formal education requirements of all professional or technical positions (engineering related) within the office normally require at least a college degree (Bachelor of Science or higher) in Civil Engineering or other subject areas relevant to the positions (e.g. Accounting, Environmental Science). The Team learned from its discussions with the Chief Engineer and upper level managers from the Boston Construction Office that the quality of the personnel in this office has not been a concern and that the office continues to function at a high level of production. It was indicated that all professional or technical staff in the Boston Construction Office meet the necessary education requirements and have extensive construction experience. Most vacancies in this office are generally filled from the pool of career professionals within the Department. The promotional process appears to be providing well-qualified professional and technical staff in the Boston Construction office. The Team did not specifically discuss the qualifications of non-engineering related staff (i.e. clerical staff) in the Boston Construction Office and, therefore, is not able to offer an assessment in this area. Interim Final Report - July 3, 2003 23 a 1 Process Review of MassHighway Construction & Materials Staffing Issue No. 2 - Adequacy of Staffing in Research & Materials Division Issue No. 2 Findings: 2.1 F Based on the current (July 2001 ) level of construction activity, the overall staffing structure (Table of Organization) established for the Research & Materials (R&M) Division (Central Materials Laboratory and the Field Controls Section) is not sufficient to fulfill the primary materials functions for the statewide construction program. 2.2F The current staffing level (positions filled) in the R&M Division is considered to be inadequate. There are fourteen (14) positions within the R&M Division that are presently vacant. This includes eight (8) engineering/technical positions in the Central Laboratory and six (6) engineering/technical positions in other Sections of the R&M Division (Records & Procedures, Technical Services, Field Controls). 2.3F As a result of the lack of adequate staffing, the Central Materials Laboratory and the R&M Field Controls Section are not able to perform the required levels of Acceptance testing and Independent Assurance activity in a timely manner. The lack of staffing has also raised concern with the Central Laboratory's ability to maintain accreditation status under the AASHTO Accreditation Program (AAP), as required by Federal regulations (23 CFR 637). 2.4F Several of the Unit Heads within the Central Laboratory are close to retirement eligibility. There is a lack of personnel within MassHighway possessing sufficient knowledge and technical experience to replace these Unit Heads as they retire. Neither the promotional process within MassHighway or external hiring practices appears to be providing enough well qualified staff to assume these and other engineering/technical positions in the R&M Division. 2.5F Most of the current R&M Division personnel performing materials sampling, testing, and inspection appear to have relevant qualifications (i.e. education level, training, NETTCP certifications). However, some personnel recently assigned to the Central Laboratory and other Sections of the R&M Division lack the minimum skills and qualifications necessary to provide proper materials inspection and testing duties. Issue No. 2 Recommendations: 2.1 R The Table of Organization for the R&M Division should be reassessed to ensure that a staffing structure is in place to adequately fulfill the primary materials functions for the statewide construction program. The Review Team estimates that a minimum often (10) additional engineering/technical positions should be assigned to the TO for the R&M Division (Central Materials Laboratory and the Field Controls Section). This is in addition to the fourteen (14) positions that are currently vacant within the R&M Division. Interim Final Report - July 3, 2003 24 I I I I I I I I p I II II Process Review of MassHighway Construction & Materials Staffing 2.2R The fourteen (14) vacant engineering/technical positions in the R&M Division should be filled with properly qualified personnel as soon as possible. This is necessary to ensure that all materials functions supporting the statewide construction program are provided in a timely and proper manner. 2.3R To ensure that all engineering/technical positions in the R&M Division are filled with properly qualified personnel, it is recommended that a MassHighway Engineer Training Program (ETP) and a separate Technician Training Program (TTP) be established. The ETP and TTP should include a Construction and Materials career track for Engineers and Technicians/Inspectors with grade level advancement linked to the amount of formal training and certifications attained (See 2.5D below). 2.4R A College Intern program should also be considered to address R&M Division staffing needs, especially during the peak construction season. This could provide a conduit for attracting new full-time employees upon college graduation. 2.5R All R&M Division personnel who perform sampling, testing, and inspection of materials for Acceptance or Independent Assurance (IA) should be qualified. This is a requirement of the Federal Regulations (23 CFR 637). Qualification of personnel should be through the NETTCP and other relevant programs. Issue No. 2 Discussion: 2.1 D Team Visit to Research & Materials Division The Team met with supervisory personnel and engineers from the Research & Materials Division on Monday, July 16, 2001. Personnel from the R&M Division included the Chief of Laboratory, Assistant Chief of Laboratory, Field Controls Engineer, and CA/T Coordinator. The questions contained in the Process Review Guidelines were discussed to gain an understanding of the staffing process, current staffing, and staffing needs for the Research & Materials Division. Time did not permit the Team to meet with materials technicians or inspectors during the July 16 th visit to the R&M Division, however, follow-up interviews with some of these personnel were conducted to assess personnel qualifications (See 2.6D below). 2.2D Primary Functions of Research & Materials Division The Research & Materials Division is located in two buildings in South Boston. The R&M Division has overall responsibility for the statewide construction materials program. The primary functions of the Division include: > Providing overall materials program management > Issuing materials policy guidance to the District Offices > Performing Independent Assurance (IA) evaluation of District sampling & testing > Performing Acceptance testing of various materials > Reviewing project materials documentation > Issuing project Materials Certificates for all Federal-Aid projects Interim Final Report - July 3, 2003 25 1 a i p i p p p Process Review of MassHighway Construction & Materials Staffing Although the title of this Division implies that "research" is part of its primary responsibility, it is at present a misnomer. There is currently no in-house research program at MassHighway. All research studies are conducted either through universities or through the New England Transportation Consortium (NETC) and are managed by MassHighway's Bureau of Transportation Planning & Development (BTP&D). R&M Division personnel do, however, serve as technical representatives for some research studies. The R&M Division is comprised of five Sections that carry out its construction materials program functions. These Sections and their primary responsibilities are summarized in Table 2A below. TABLE 2A Research & Materials Division Functions Section Principal Responsibilities Records & Procedures Section • Review of Materials project documentation Administration Section • Office Support (clerical, personnel, invoicing) Technical Services Section • Lab Quality System Manual (QSM) oversight • Administer personnel qualifications (NETTCP) • Manage Qualified Products List • Coordinate & supervise Salt Remediation Field Controls Section «» Independent Assurance field sampling & testing • Materials Source Acceptance sampling • Inspection & sampling at Producer facilities • Manage consultant inspection/testing contracts • Project documentation closeout • Issue project Materials Certificates • CA/T Project materials oversight Central Laboratory • Independent Assurance laboratory testing • Acceptance testing of all Standard Manufactured Materials • Acceptance testing of all Fabricated Structural Materials • Assist Districts with Acceptance testing of some Project Produced Materials 2.3D Table of Organization for Research & Materials Division The current (July 2001 ) approved Table of Organization (TO) for the Research & Materials Division provides for a total of fifty (50) positions assigned to the Division. This includes forty-three (43) professional or technical positions (engineering related) and seven (7) administrative or clerical positions within the Division. An organization chart that presents the current TO for the Research & Materials Division is included in Appendix 2A of this report. Interim Final Report - July 3, 2003 26 Process Review of MassHighway Construction & Materials Staffing 2.4D Current Number of Research & Materials Division Personnel The current number of personnel within or assigned to the Research & Materials Division is presented in Table 2B below. The R&M Division has had difficulty in maintaining an adequate staff based on the current approved TO. Currently there are fourteen (14) vacant professional or technical positions (engineering related) that need to be filled. Most of these vacancies are in the Central Laboratory (one Unit Head + seven Lab Technicians) and in the Field Controls Section (4 Inspectors/Technicians). 2.5D Adequacy of TO and Staffing Level for Research & Materials Division Based on the interviews conducted with Research & Materials Division supervisory personnel, as well as earlier discussions with the Chief Engineer and Boston Construction Office managers, it is generally perceived that the current staffing level of the R&M Division is insufficient. The Review Team concurs with this assessment. The present workload of the R&M Division cannot be met even if the current fourteen (14) vacancies are filled. In view of the current vacancies, anticipated attrition, and overall level of required materials activity, the Team estimates that a minimum often (10) additional engineering/technical positions should be added to the Table of Organization for the R&M Division. The Central Laboratory and the Field Controls Section are in the greatest need of additional staffing. The Team recommends that these twenty-four (24) positions be filled as soon as possible to ensure that the R&M Division's primary materials functions for the statewide construction program identified in Section 2.2D above can be adequately met. There is a serious concern with the Central Materials Laboratory's ability to maintain accreditation status under the AASHTO Accreditation Program (AAP) and maintain an adequate materials Acceptance program. The current Central Laboratory staffing level cannot perform the required level of materials Acceptance testing and IA program laboratory testing for construction projects in a timely-manner. Examples of current conditions are as follow: • The present staff in the Central Laboratory consists of twelve employees, and of those, only eight are performing materials testing. The remaining four employees perform either administrative or other support functions. • As a result of the lack of adequate staff, personnel in the Central Laboratory are required to work between different Testing Units depending on the sample- testing backlog. • Some Field Inspectors from the R&M Field Controls Section are utilized on weekends to perform testing in the Central Laboratory due to current backlogs. • Pavement cores cannot be retrieved and tested immediately following pavement placement. • There has been a reduction of sampling and testing frequency on some of the lower risk materials. Bricks are now tested once on every fifth set of samples submitted to the Central Laboratory. Interim Final Report - July 3, 2003 27 El El Process Review of MassHighway Construction & Materials Staffing TABLE 2B Current Research & Materials Division Personnel - July 2001 Title Grade No. of Positicns per TO Current No. of Staff No. of Vacant Positions R&M Division Management Director of Research & Materials M-7 1 1 Records & Procedures Staff Records and Procedures Manager CEVI 1 1 Records and Procedures Engineer CEIV 1 1 Administration & Support Staff Administrative Manager M-4 1 1 Program Development Specialist M-2 1 1 Administrative Assistant BMS 1 1 Program Coordinator PC II 1 1 Clerk Clerk IV 1 1 Clerical WPOI 1 1 Engineering Aide EAI 1 1 Technical Services Staff Technical Services Engineer CEV 1 1 Hydrogeologist Env En IV 1 1 Office Engineer CE III 2 2 Technician (Salt Remediation) GCII 1 1 Field Controls Staff Field Controls Engineer CEV 1 1 CA/T Coordinator CEIV 1 1 Office Engineer (CA/T Coordination) OE III 1 1 Inspector (CA/T) GCIII 1 1 Inspector (Statewide) CEII 3 2 1 Inspector (Statewide) GCII 1 1 Inspector (Statewide) CEI 2 2 Documentation Engineer CEII 1 1 Program Coordinator (Document.) PCI 1 1 Property Equip. & Control Supervisor PE&CS 1 1 Support Staff EAM 1 1 Support Staff EAI 1 1 SUBTOTAL (Table Continued Below) 30 24 6 Interim Final Report - July 3, 2003 28 D I I I I I Process Review of MassHighway Construction & Materials Staffing TABLE 2B (Continued) Current Research & Materials Division Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Vacant Positions Central Laboratory Staff Chief of Laboratory CEV 1 Assistant Chief of Laboratory CEIV 1 Chemical Unit Unit Head Chem. Ill 1 Lab Technician (Chemical) Chem. II 1 Const. Contract Assistant Specialist CCAS 1 Lab Technician (Chemical) EAII 1 Asphalt Binder Unit Unit Head Chem. Ill 1 Lab Technician (Asphalt Binder) Chem. II 1 Lab Technician (Asphalt Binder) Chem. I 1 Concrete Unit Unit Head CE III 1 Lab Technician (Concrete) GCIII 1 Lab Technician (Concrete) Chem. I 1 Lab Technician (Concrete) EAII 1 Hot Mix Asphalt Unit Unit Head CE III 1 Lab Technician (HMA) Chem. II 1 Lab Technician (HMA) Chem. I 1 Lab Technician (HMA) EAII 1 Soils Unit Unit Head Chem. Ill 1 Lab Technician (Soils) Chem. I 1 Lab Technician (Soils) EAII 1 SUBTOTAL (Central Lab Only) 20 12 8 SUBTOTAL (From Table on Previous Page) 30 24 6 TOTAL (All of R&M Division) 50 36 14 Interim Final Report - July 3, 2003 29 n i ■ ■ ■ ■ ■ ■ » Process Review of MassHighway Construction & Materials Staffing As noted in the discussion above, all of the Laboratory Units are stretched to do "more with less". Through the years, personnel have been lost due to retirement, more competitive private sector compensation, or mandated reductions in work force. As a result, the current staffing level and staffing structure of the Central Laboratory is not sufficient to provide future staffing needs in higher-level positions (i.e. Unit Heads, Senior Lab Technicians). For example, five of the eight employees performing testing in the Central Laboratory are sixty years of age or older and four of them are Unit Heads within the Laboratory. Once these individuals leave they take with them the institutional knowledge and experience in properly testing materials. Currently there is a lack of mid-level or entry-level personnel that can be trained to take over senior level positions in the Lab Units as these employees retire. The R&M Field Controls Section is struggling to provide an adequate Independent Assurance program as required by the Federal Regulations (23 CFR 637). There are only five Engineers and Inspectors in the Field Controls Section handling IA program activities and Source Acceptance sampling and testing for both the statewide construction program and the Central Artery Project. Due to the shortage of R&M Field Controls Section personnel, some Source Acceptance and Independent Assurance activities are being significantly delayed. There are also insufficient personnel to verify materials certifications and documentation in a timely manner. All of these factors contribute to the delay on issuing Materials Certificates upon completion of projects in accordance with the Federal Regulation. There is an immediate need for additional R&M Division personnel, particularly for the Central Laboratory and the Field Controls Section, that possess the necessary education, training, technical knowledge and experience to perform the various sampling, testing, and materials documentation functions. The proper implementation of new technical programs like Quality Assurance specifications, Superpave mix design and testing procedures, High Performance materials (e.g. HP Concrete), and other improved technologies require all technicians/inspectors and engineers to be better trained and qualified. The existing vacancies and recommended additional positions for the R&M Division need to be filled by qualified personnel, not only from the perspective of technical skills needed, but also from the perspective of administrative and management skills required for future mid-level supervising positions. In order to provide a sufficient number of highly skilled technicians/inspectors and engineers, it is recommended that the following steps be taken: 1 . Reassess & restructure the TO for the R&M Division to ensure proper qualifications and to provide career tracks for engineering/technical personnel. 2. Establish a Technician Training Program (TTP) that provides a Construction & Materials career track for technicians/inspectors. 3. Establish an Engineer Training Program (ETP) that provides a Construction & Materials career track for engineers. 4. Establish a College Intern Program. nterim Final Report - July 3, 2003 30 IB II ■ ■ ■ ■ I I I Process Review of MassHighway Construction & Materials Staffing The current Table of Organization structure for the R&M Division does not provide adequate depth and breadth of experience for technicians/inspectors within and between the Laboratory Units, the Field Controls Section, and the District Materials Sections. It fails to provide the necessary paths for training and development along a technical career track in the Construction & Materials area. Coupled with this, there is a lack of compensation incentive for personnel to further their education and acquire technician or inspector certification in various disciplines. In order to address these current deficiencies, it is recommended that two changes be made to the existing MassHighway grade classification structure. First, replace the variety of technician/inspector type positions (e.g. EA I, EA II, GCI I, GCI II, CCAS, Chem. I, Chem. II, etc.) with a single "Engineering Technician" (ET) grade series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers. Second, link the ET grade series and the CE grade series to a combination of training completed, qualifications/certifications attained (e.g. NETTCP Technician and Inspector certifications), and related job experience. New technicians/inspectors would be hired at an ET I grade level and would be required to complete a one to two year MassHighway Technician Training Program (TTP). Technicians/inspectors who are hired through this program will rotate through different Sections within the R&M Division and possibly to a District Materials Section. This will provide the new technician/inspector an opportunity to gain experience in multiple materials subject areas with defined training and development objectives. Upon satisfactory completion of the TTP requirements, the technician/inspector would advance to an ET II grade level. Subsequent grade level advancement would be linked to the amount of formal training and certifications attained and the availability of higher- grade Engineering Technician positions within the Laboratory Units, other Sections of the R&M Division, or a District Materials Section. Similarly, all new engineers would be hired at a CE I grade level and would participate in a one to two year Engineer Training Program (ETP) with rotational assignments. Upon satisfactory completion of the ETP requirements, the engineer would advance to a CE II grade level. Subsequent grade level advancement would be linked to the amount of formal training and certifications attained and the availability of higher-grade Engineer positions within the Laboratory Units, other Sections of the R&M Division, or a District Materials Section. The final component that should be considered to address R&M Division staffing needs is the implementation of a College Intern program. A College Intern program would provide mutual benefits to MassHighway and the universities. The use of College Interns would provide an additional means of addressing staffing shortfalls, especially during the peak construction season, while providing students with summer employment or part-time employment during the academic year. R&M Division mentors could also assist students with class selection and with habit formation skills needed when they graduate from the university. The College Intern program could serve as a conduit for attracting new full-time MassHighway employees upon college graduation. Intet. m Final Report - July 3, 2003 3 1 I I I I I I p ■ ■ ■ II Process Review of MassHighway Construction & Materials Staffing As an example, Table 2C below is intended to illustrate how the above recommended restructuring of the R&M Division Table of Organization would be applied to each of the Units in the Central Laboratory to incorporate a revised Engineering Technician grade series along with a Technician Training Program (TTP), Engineer Training Program (ETP), and College Intern program. TABLE 2C Example of Recommended Table of Organization for Central Laboratory Units Position Current Grade Proposed Grade Recommended Qualification Requirements Laboratory Unit Head CE III or Chem. Ill CE III • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond CE II level Laboratory Engineer - CEII • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certification Senior Laboratory Technician Chem. II, GCIII ETIV • HS Diploma or GED • Completed TTP • Obtained mir.imum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET III level Laboratory Technician Chem. 1, EA II, CCAS ETUI • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET II level Laboratory Technician Chem. 1, EA II, CCAS ETII • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certification Technician Trainee - ETI • HS Diploma or GED (Must complete TTP within 1 to 2 years) Engineer Trainee - CEI • BS in Civil Engineering (Must complete ETP within 1 to 2 years) College Intern - CM • Enrolled in Accredited Engineering College The recommended restructuring of the R&M Division TO and the technician/inspector grades, along with the implementation of a Technician Training Program, Engineer Interim Fi. .al Report - July 3, 2003 32 Process Review of MassHighway Construction & Materials Staffing Training Program, and College Intern program, will ensure that all engineering/technical positions in the R&M Division are filled with properly qualified personnel. These four steps will also provide for personnel development and grade level advancement within the R&M Division and improve cross-functional advancement between the R&M Division and the District Offices based on training courses completed and certifications . attained. In order for these programs to be effective, there must be a commitment to recruit and hire a minimum number of Trainees and Interns each year, based on the size of the overall construction program and the expected annual attrition rate of construction and materials personnel. 2.6D Adequacy of Qualifications of Research & Materials Division Personnel Followup interviews were conducted with nine (9) R&M Division staff to assist in assessing current qualifications of R&M engineering and technical personnel (See Appendix 2B for completed R&M Division Personnel Qualifications Guidelines). Information was collected for six (6) Central Materials Laboratory personnel and three (3) Field Controls Section personnel. Based on the information collected on the Personnel Qualifications Guidelines, the engineers and technicians/inspectors reviewed appear to be generally qualified to perform the specific materials sampling, testing and inspection duties they perform. All of the technicians/inspectors interviewed have relevant certifications (e.g. NETTCP, ACI, etc.) and other related training. One of the two current Laboratory Unit Heads interviewed has a Ph.D. in Material Science and both have significant experience in materials sampling and testing. However, R&M Division personnel interviewed indicated that some personnel were recently assigned to the R&M Division (Central Laboratory, Field Controls Section) who lacked the technical background and formal qualifications to perform engineering or technician/inspector duties. The reasons attributed for this include some discretionary hiring practices and the suspension of the "Civil Service" process by recent State Administrations. All R&M Division personnel who perform inspection, sampling and testing of materials for Acceptance or Independent Assurance (IA) should be qualified per the requirement of the Federal Regulations (23 CFR 637). Personnel who perform these duties for Project Produced Materials (i.e. HMA, PCC, Soils & Aggregates) should be certified through relevant courses offered by the New England Transportation Technician Certification Program (NETTCP). Personnel performing these duties for Standard Manufactured Materials should be qualified through either NETTCP (e.g. PG Binder), relevant manufacturing industry qualification/certification programs, or through In-House qualification programs documented in the Central Laboratory Quality System Manual per AASHTO R18. Implementation of the recommendations discussed in Section 2.5D above (R&M Division TO revisions, TTP, ETP, and College Intern program) should help to ensure that all personnel filling engineering/technical positions in the R&M Division are properly qualified. The Team did not specifically discuss the qualifications of non-engineering related staff (i.e. administrative or clerical staff) in the Research & Materials Division and, therefore, is not able to offer an assessment in this area. Interim Final R( port - July 3, 2003 33 II ■ m ■ Process Review of MassHighway Construction & Materials Staffing Issue No. 3 - Adequacy of Staffing in District Construction Offices Issue No. 3 Findings: 3.1 F The Table of Organization (TO) established for Construction Engineering personnel (District Construction Engineers down thru Area Engineers) in each District Construction Office is considered to be generally acceptable to provide the primary construction management functions for the current (July 2001 ) level of construction activity. However, additional Construction Engineering positions are believed necessary for the District 5 Construction Office. There is also a need for a dedicated staff position in each District to assist Construction & Materials personnel with new construction programs/technology and to manage engineer and technician/inspector development (i.e. training and certification). 3.2F The current staffing level (positions filled) in each District Construction Office (District Construction Engineers down thru Area Engineers) is considered to be generally adequate. There is one (1 ) Area Engineer position in the District 4 Construction Office that is presently vacant. 3.3F There is considerable variation from District to District in the number and grades of Office Support staff in the District Construction Offices. 3.4F The promotional process appears to be providing well-qualified staff to assume engineering/technical positions (District Construction Engineers down thru Area Engineers) in the District Construction Offices. However, the current staffing shortfall on individual construction projects (See Issue No. 5 below) is impacting the pool of qualified personnel available to fill future vacancies in the District Construction Offices. Issue No. 3 Recommendations: 3.1 R Consideration should be given to adding one Assistant Construction Engineer and one Area Engineer to the TO for District 5. It is also recommended that one "Construction Quality Engineer" (CQE) position (CE IV) be assigned to the TO for each District Construction Office. The CQE will be responsible for assisting District personnel in implementing new construction technology programs (QA Specifications, Superpave, High Performance Concrete) and in managing Construction & Materials personnel development activities (i.e. Engineer Training Program, Technician Training Program, NETTCP certification). The above recommended TO changes will require a total of seven (7) new engineering positions (one Assistant Construction Engineer-D5 + one Area Engineer-D5 + one CQE per District) for the District Construction Offices. 3.2R The one vacant Construction Engineering position (Area Engineer) in the District 4 Construction Office should be filled in a timely manner to ensure that the primary construction management functions of the District are adequately provided. Interim Final Report July 3, 2003 34 p i ■I Process Review of MassHighway Construction & Materials Staffing 3.3R The number and grades of Office Support staff positions in the District Construction Offices should be reassessed based on the level of construction project activity to ensure that the various support needs of each District are sufficiently met. The reassessment should consider whether there is a need to establish standard positions for personnel performing similar office support functions. Consideration should also be given to establishing the number of Office Support staff in each District Construction Office in proportion to the Construction Engineering staff. 3.4R To ensure that all future engineering/technical position vacancies in the District Construction Offices are filled with properly qualified personnel, the previously recommended MassHighway Engineer Training Program (ETP) and College Intern program (See Recommendations 2.3R & 2.4R) should be implemented. The ETP should include a Construction and Materials career track to develop engineers who can advance to fill positions in the District Construction Offices through formal training, certifications, and project field experience. Issue No. 4 Discussion: 3.1 D Team Visit to District Construction Offices The Team visited with each of the District Highway Directors and upper level managers and supervisory personnel from the District Construction Offices. Meetings were held with Districts 1 and 2 on Tuesday, July 17 th , with Districts 3 and 4 on Wednesday, July 1 8 th , and with District 5 on Thursday, July 1 9 th , 2001 . District Construction Office personnel included the District Construction Engineers, Assistant Construction Engineers, and Area Engineers. The questions contained in the Process Review Guidelines were discussed to gain an understanding of the staffing process, current staffing, and staffing needs for each of the District Construction Offices. 3.2D Primary Functions of District Construction Offices Each of the District Construction Offices has responsibility for the construction program within their District. The primary functions of these offices include: > Providing District level construction program management > Providing policy guidance to District Construction and Materials personnel > Monitoring progress of individual Construction Projects > Providing contract administration support to individual Construction Projects > Performing District level review of contract changes and claims > Providing some technical support to individual Construction Projects 3.3D Table of Organization for District Construction Offices MassHighway implemented a Table of Organization (TO) for the Construction Office in each District several years ago. The typical TO for the District Construction Offices includes a Construction Engineering staff comprised of a District Construction Engineer, one or more Assistant Construction Engineers, and two or more Area Engineers, Interim Final Report - July 3, 2003 35 i i I I I 1 l I Process Review of MassHighway Construction & Materials Staffing depending upon the size of the District construction program. In addition, each District Construction Office includes some Technical Services staff (e.g. environmental services, surveying, utilities) and some Office Support staff (e.g. administration, office engineering, accounting, clerical). The number of Technical Services staff and Office Support staff in each District is not formally designated by the TO. It is understood that these positions are assigned by each District based on current available staff and the support needs in each District. The current (July 2001 ) TOs for the District Construction Offices provide for a total of seventy-three (73) positions assigned to the five District Construction Offices. This includes thirty-three (33) Construction Engineering positions (CE IV or higher), nineteen (19) Technical Support positions, and twenty-one (21) Office Support positions. Organization charts that present the current TO for each of the five District Construction Offices are included in Appendix 3A of this report. 3.4D Current Number of District Construction Office Personnel The current number of personnel within the District Construction Offices is presented in Tables 3A thru 3F below. In general, the District Construction Offices have been successful in maintaining an adequate Construction Engineering staff (District Construction Engineers down thru Area Engineers) based on the current approved TO for each District Construction Office. However, there is one (1 ) Area Engineer (CE IV) position in the District 4 Construction Office that is presently vacant. TABLE3A Current District 1 Construction Office Personnel -July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant Const. Engineering Staff Construction Engineer CEVI 1 1 Assistant Construction Engineer CEV 1 1 Area Engineer CEIV 2 2 Office Support Staff Program Coordinator Prg Crd II ND* 1 Technical Services Staff Environmental Specialist ND** ND** 1 TOTAL (All of District 1 Construction Office) 4* 6 .... . . -:■.. ND* = Not Designated (Number of Office Suppc )rt staff in each District is not c esignated by tf ie TO.) ND** = Not Designated (Number of Technical Services staff in each District is not designated by the TO. Environmental Specialists assigned to each District work for Boston Environmental Division and report directly to Boston Construction Office.) Interim Final Report - July 3, 1J03 36 n ii * ■ ■ ■ ■ ■ ■ Process Review of MassHighway Construction & Materials Staffing TABLE 3B Current District 2 Construction Office Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant Const. Engineering Staff Construction Engineer CEVI 1 1 Assistant Construction Engineer CEVI 1 1 Area Engineer CEIV 3 3 Office Support Staff Office Engineer CEI ND* 1 Technical Services Staff Environmental Specialist ND** ND** 1 TOTAL (All of District 2 Constructiorv Office) K : 5* ■.,-- re- ■ ©;!* |fl|§i§§; • . | table3c m Current District 3 Construction Office Personnel - July 2001 Title Grade No. of Positions per TO current No. of Staff No. sf Positions Vacant Const. Engineering Staff Construction Engineer CEVI 1 1 Assistant Construction Engineer CEV 2 2 Area Engineer CEIV 4 1 Area Engineer OE III 0* 3 Office Support Staff Office Engineer CEII ND* 1 Assistant Office Engineer CEI ND* 1 Office Assistant EAI ND* 1 Technical Services Staff Environmental Specialist ND** ND** 1 TOTAL (All of District 3 Construction Office) 7* 11 0* = CE III Area Engineers not designated in TO (3 Area Engineers not currently promoted to CE IV.) ND* = Not Designated (Number of Office Support staff in each District is not designated by the TO.) ND** = Not Designated (Number of Technical Services staff in each District is not designated by the TO. Environmental Specialists assigned to each District work for Boston Environmental Division and report directly to Boston Construction Office.) Interim Final Report - July 3, 2003 37 Process Review of MassHighway Construction & Materials Staffing TABLE 3D Current Districts Construction Office Personnel -July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant Const. Engineering Staff Construction Engineer CEVI 1 Construction Engineer CEV 0* 1 Assistant Construction Engineer CEV 3 2 Assistant Construction Engineer CEIV 0** 1 Area Engineer (Area Supervisor) CEV #-)*** 1 Area Engineer (Area Supervisor) CEIV 6 4 1 Office Support Staff Office Administrator Program Coord. Ill ND* 1 Office Assistant Program Mgr. IV ND* 1 Office Assistant CEI ND* 1 Office Assistant EAII ND* 1 Office Assistant Contract Special. II ND* 2 Office Assistant Specifctn. Specialist ND* 1 Office Assistant Clerk III ND* 1 Office Assistant Clerk IV ND* 2 Finals Liaison GCII ND* 1 Technical Services Staff Utilities Engineer CEI ND** 1 Environmental Specialist ND** ND** 3 TOTAL (AH of District 4 Construction Office) 10* 24 1 0* = CE V Construction Engineer not designated in TO (Not currently promoted to CE VI.) 0** = CE IV Assistant Construction Engineer not designated in TO (Not currently promoted to CE V.) 0*** = CE V Area Engineer not designated in TO (TO allows for six CE IV Area Engineers, which are currently filled by one CE V and only four CE IVs - need to fill one additional CE IV). ND* = Not Designated (Number of Office Support staff in each District is not designated by the TO.) ND** = Not Designated (Number of Technical Services staff in each District is not designated by the TO. Environmental Specialists assigned to each District work for Boston Environmental Division and report directly to Boston Construction Office.) Interim Final Report - July 3, 2003 38 I I I I I Process Review of MassHighway Construction & Materials Staffing TABLE 3E Current District 5 Construction Office Personnel -July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant Const. Engineering Staff Construction Engineer CEVI 1 1 Assistant Construction Engineer CEV 2 2 Area Engineer CEIV 4 4 Office Support Staff Office Engineer CEI ND* 1 Accountant Account II ND* 1 Accountant Account 1 ND* 1 Clerk Clerk IV ND* 1 Clerk Clerk III ND* 1 Technical Services Staff Survey Engineer CEIV ND** 1 Assistant Survey Supervisor CE III ND** 2 Office Engineer CEII ND** 1 Survey Party Chief CEI ND** 2 Survey Party EAII ND** 3 Survey Rodman EAI ND** 1 Permitting Liaison Environ. Analyst 1 ND** 1 Environmental Specialist ND** ND** 1 TOTAL (All of District 5 Construe ;tion Office) 7* 24 ND* = Not Designated (Number of Office Suppc >rt staff in each District is not c esignated by t\ ie TO.) ND** = Not Designated (Number of Technical Services staff in each District is not designated by the TO. Only District 5 has Survey Personnel assigned to District Construction Office. All other Districts have located Survey personnel with District Project Development Office. Environmental Specialists assigned to each District work for Boston Environmental Division and report directly to Boston Construction Office.) Interim Final Report - July 3, 2003 39 I f I I I I i c o (0 i > 8 u o r CS o "fr ▼~ T— h- V" T - ^t CO CM CO T- CM ▼— CM CO ^ T- ^ h- o> 1- u> i :^T ■ •**''/ '3jjj o .. f • ■ MM *" CM *" "«- rt o> *■ co ^ , 1 » "3 a c mm- C o 0> CO - Urn *rf o o Q. 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O O < o o O O O o LL < < O O 2 to* 3 o §■ "«3 .c it .5 1 Process Review of MassHighway Construction & Materials Staffing 3.5D Adequacy of TO and Staffing Level for District Construction Offices It is perceived by personnel in Districts 1 , 2, 3, and 4 that the TO established for Construction Engineering personnel (District Construction Engineers down thru Area Engineers) in each of these District Construction Offices is generally sufficient to provide the primary construction management functions for the current (July 2001 ) level of construction activity. The Team generally concurs with this assessment and believes that the staffing level of the District 1,2,3 and 4 Construction Engineering personnel (District Construction Engineers down thru Area Engineers), with the exception of the one (1 ) vacancy noted in District 4, is considered to be adequate. The Team recommends that this position be filled in a timely manner to ensure that the construction management functions of the District are adequately provided. Upper managers of District 5 pointed out that the current construction activity level (i.e. number of projects, construction dollars spent, and coverage area) that District 5 is responsible for is at least as demanding as that of District 4. However, the District 4 Construction Office TO, justifiably, allots one more Assistant Construction Engineer and two more Area Engineers than District 5. The District Highway Director indicates that he is concerned that in District 5 an Area Engineer has included in his projects a $170 million bridge, another Area Engineer has a couple of projects totaling $70 million (Relocation of Rte 44 including 10 new bridges), a third Area Engineer has projects with personnel that work 2 shifts (Foxboro Stadium), and another has several night projects. These projects are in addition to the normal complement of 20-25 other projects typically assigned to each Area Engineer. He suggested consideration of an Assistant Construction Engineer for Bridges to handle the current focus on structurally deficient bridges and availability of an additional Area Engineer to allow for immediate contact during night operations. The Review Team believes that consideration should be given to adding one Assistant Construction Engineer and one Area Engineer to the TO for the District 5 Construction Office. The Team also determined that there is a need for a dedicated staff position in each District to assist Construction & Materials personnel with new construction programs/technology (e.g. QA Specifications, Superpave, High Performance Concrete) and to manage training, certification, and related personnel development activities for engineers and technicians/inspectors. These new technology programs are intended to improve the long-term performance of construction projects thereby improving the return on public moneys invested in our infrastructure. The need currently exists, and will continue to grow, for a position in each District Construction Office to provide technical support to Resident Engineers, Technicians/Inspectors, and Contractor personnel who are implementing the various specification requirements for these improved technologies. Many project level personnel presently lack in-depth technical knowledge of these technologies and are challenged by other project demands to devote sufficient time to some of the new activities required for successful implementation of these technologies. Examples of activities where dedicated assistance to project level personnel is need include; review and approval of Contractor Quality Control (QC) Plans, implementing Superpave/HMA Field Verification procedures, implementing proper PCC curing Interim Final Report - July 3, 2003 42 Process Review of MassHighway Construction & Materials Staffing procedures, performing Quality Level Analysis (QLA) of Contractor QC and Agency Acceptance data, and implementing new field software for inspection and testing personnel. In addition, program support and guidance will be needed for all District Construction & Materials personnel in successfully implementing a Construction and Materials career track under the previously recommended MassHighway Engineer Training Program (ETP), Technician Training Program, and College Intern program (See Recommendations 2.3R & 2.4R). Dedicated staff time will be required from each District Construction Office to assist engineers and technicians/inspectors as they enter and progress through these programs. Accordingly, it is recommended that one "Construction Quality Engineer" (CQE) position be assigned to the TO for each District Construction Office. The CQE will be responsible for assisting District personnel in implementing new construction technology programs and in managing Construction & Materials personnel development activities (i.e. ETP, TTP, CIP, NETTCP certification, etc.). Given the level of technical and program management responsibility envisioned for the CQE position, it is recommended that these positions be established as a CE IV grade level reporting directly to the District Construction Engineer. As can be seen in Tables 3A thru 3F above, the number and grades of Office Support staff in the District Construction Offices varies from District to District. The number of Office Support personnel ranges from as few as one (1) person in Districts 1 & 2 each to as many as eleven (1 1 ) people in District 4. This represents a staffing ratio of 0.20 Office Support Staff per Construction Engineering Staff for District 2 versus a staffing ratio of 1 .22 Office Support Staff per Construction Engineering Staff for District 4. In addition, there is quite a range of various titles/grades for the Office Support personnel within District 4 and between each of the five Districts. It is recommended that the number and grades of the Office Support staff in the District Construction Offices be reassessed. The reassessment should consider whether there is a need to establish standard positions for personnel performing similar Office support functions within and across all five Districts. Consideration should also be given to establishing the number of Office Support staff in each District Construction Office based on the level of District construction project activity or in proportion to the Construction Engineering staff to ensure that the various support needs of each District are sufficiently met. 3.6D Adequacy of Qualifications of District Construction Office Personnel The Team did not interview individual District Construction Office staff to assess their qualifications. However, it is understood that the formal education requirements of all Construction Engineering positions (CE IV or higher) within the District Offices normally require at least a college degree (Bachelor of Science or higher) in Civil Engineering. It was indicated that all engineering staff in the District Construction Offices meet the necessary education requirements and have extensive construction experience. Most Interim Final Report - July 3, 2003 43 Process Review of MassHighway Construction & Materials Staffing vacancies in the District Construction Offices are generally filled from the pool of construction and materials staff in the Districts. The Team learned from its discussions with the District Highway Directors and District supervisory construction personnel that although the quality of the current Construction Engineering personnel (District Construction Engineers down thru Area Engineers) is satisfactory, there are concerns with respect to the effect of the current project level staffing shortfall (See Issue No. 5) on future staffing of the District Construction Offices. The loss of qualified field personnel in each District has impacted the pool of qualified personnel available to fill future vacancies in the District Construction Offices. Accordingly, the previously recommended MassHighway Engineer Training Program (ETP) and College Intern Program (See Recommendations 2.3R & 2.4R) should be implemented to ensure that all future engineering/technical position vacancies in the District Construction Offices are filled with properly qualified personnel. The ETP should include a Construction and Materials career track to develop engineers who can advance to fill positions in the District Construction Offices through formal training, certifications, and project field experience. The Team did not specifically discuss the qualifications of Technical Support staff or Office Support staff in the District Construction Offices and, therefore, is not able to offer an assessment of personnel in these positions. Interim Final Report - July 3, 2003 44 Process Review of MassHighway Construction & Materials Staffing issue No. 4 - Adequacy of Staffing in District Materials Sections Issue No. 4 Findings: 4.1 F Based on the current (July 2001 ) level of construction activity, the Table of Organization (TO) established for each District Materials Section is inadequate. The number of Engineer and Technician/Inspector positions provided under the TOs is not sufficient to meet the current and growing materials functions necessary for the District construction programs. 4.2F With most Acceptance testing of Project Produced Materials now being performed by the Districts along with the implementation of new construction programs/technology (e.g. QA Specifications, Superpave, High Performance Concrete), there is a need to ensure that the materials program in each District is managed by highly qualified staff. The current grade level of the District Materials Engineer positions is not commensurate with the technical requirements and administrative demands of the District materials programs. 4.3F Most of the current personnel performing materials sampling, testing, and inspection in the District Materials Sections appear to have relevant qualifications (i.e. education level, training, NETTCP certifications). However, some personnel being assigned to the District Materials Sections do not possess the minimum skills and qualifications necessary to provide proper materials sampling, testing, and inspection duties. Issue No. 4 Recommendations: 4.1 R The Table of Organization for each District Materials Section should be revised to ensure that a staffing structure is in place to adequately fulfill the primary materials functions of the District construction programs. Based on the current (July 2001) level of construction activity in each District, the Review Team estimates that thirty-two (32) new Engineer and Engineering Technician positions should be assigned across the five District Materials Sections. 4.2R To provide a mechanism for development of properly qualified personnel to fill all positions in the District Materials Sections, the previously recommended MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place with grade level advancement linked to training and certifications attained (See 4.5D below). A College Intern program should also be considered to address some District Materials Section staffing needs, especially during the peak construction season. 4.3R To ensure that highly qualified personnel are provided to manage the increased demands and technical complexity of the overall construction materials program in each District, it is recommended that the District Materials Engineer positions be upgraded from a CE III grade level to a CE IV grade level. It is also recommended that a CE III Assistant Materials Engineer/Laboratory Supervisor position be assigned to each District Materials Section. Interim Final Report - July 3, 2003 45 Process Review of MassHighway Construction & Materials Staffing 4.4R All District Materials Section personnel who perform materials sampling, testing, and inspection for Acceptance should be qualified. This is a requirement of the Federal Regulations (23 CFR 637). Qualification of personnel should be through the NETTCP and other relevant programs. Issue No. 4 Discussion: 4.1 D Team Visit to District Materials Sections The Team visited with some personnel from the District Materials Sections as part of the meetings with supervisory personnel from the District Construction Offices on Tuesday, July 17* (Districts 1 & 2), Wednesday, July 18 th (Districts 3 & 4), and Thursday, July 19 , 2001 (District 5). District Materials Section personnel included the District Materials Engineers and some Materials Technicians/Inspectors. The questions contained in the Process Review Guidelines were discussed to gain an understanding of the staffing process, current staffing, and staffing needs for each of the District Materials Sections. The Team also interviewed a small sampling of Materials Technicians/Inspectors to assess personnel qualifications (See 4.6D below). 4.2D Primary Functions of District Materials Sections The District Materials Sections operate out of the District Laboratories located at the District Offices. Each District Materials Sections has responsibility for the construction materials program within their District. The primary functions of these sections include: > Providing District level materials program management > Performing materials Acceptance sampling and testing of Project Produced Materials on individual Construction Projects and at Producer facilities > Submitting samples of some materials to the R&M Division > Reviewing project materials documentation submitted by Contractors > Preparing materials Acceptance sampling and testing documentation 4.3D Table of Organization for District Materials Sections The District Materials Sections report directly to the District Construction Engineer. The Table of Organization (TO) for each District Materials Section is included within the TO for the District Construction Office and typically includes a District Materials Engineer (CE III) and several Materials Technicians/Inspectors (various grades). The number of Materials Technicians/Inspectors in each District is not formally designated by the TO. The current (July 2001) TOs for the District Materials Sections provide for a total of forty-one (41) positions assigned to the five District Materials Sections. This includes five (5) District Materials Engineers, one (1) Assistant District Materials Engineer (District 4), and thirty-five (35) Materials Technicians/Inspector positions. The current TOs for the District Materials Sections are reflected in the organization charts for the five District Construction Offices included in Appendix 4A of this report. Interim Final Report - July 3, 2003 46 Process Review of MassHighway Construction & Materials Staffing 4.4D Current Number of District Materials Section Personnel The current number of personnel within the District Materials Sections is presented in Tables 4A thru 4F below. There are presently no positions vacant in the District Materials Sections. However, as further discussed below, the number of staff provided . under the current TOs is not considered adequate to meet the construction materials program needs of the Districts. 4.5D Adequacy of TO and Staffing Level for District Materials Sections A significant portion of the total cost of each construction project lies in the materials that are produced and placed to provide the finished infrastructure. Proper and timely construction materials sampling, testing, and inspection is critical to ensuring the long- term performance of roadways and bridges. Discussions with District personnel, as well as earlier discussions with Boston Office and R&M Division personnel, indicated that the current staffing level of the District Materials Sections is only marginally adequate to provide the current and growing materials functions necessary for the District construction programs. Overall there is a general perception that the District Materials Sections need an influx of qualified personnel. The Review Team finds that the number of positions assigned to the District 1 and District 2 Materials Sections are slightly less than sufficient. As presented further below, the Team's assessment of Districts 3, 4, and 5 is that the Materials Sections TOs are significantly deficient based on the current (July 2001) number of active construction projects and corresponding materials requirements in these Districts. . ' TABLE 4A Current District 1 Materials Section Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant District Materials Engineer OE III 1 1 Assistant to the Materials Engineer (Plant Inspector) GCIII ND* 1 Assistant to the Materials Engineer (Plant Inspector) CEI ND* 1 Assistant to the Materials Engineer (Plant Inspector) GCII ND* 1 Assistant to the Materials Engineer (Plant Inspector) Inspector of Road & Building Materials ND* 1 TOTAL (All Of District 1 Materials Section) ND* 5 ND* = Not Designated (Number of Materials Technicians/Inspectors is not designated by the TO.) Interim Final Report - July 3, 2003 47 Process Review of MassHighway Construction & Materials Staffing TABLE 4B Current District 2 Materials Section Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant District Materials Engineer CE III 1 1 Assistant to the Materials Engineer GCIII ND* 1 Assistant to the Materials Engineer CEI ND* 2 Assistant to the Materials Engineer GCII ND* 2 Assistant to the Materials Engineer EAI ND* 1 Assistant to the Materials Engineer Sr. Insp. of Road & Building Materials ND* 1 ... ... ....... .- . . TOTAL (All of District 2 Materials Section) ND* 8 ND* = Not Designated (Number of Materials Technicians/Inspectors is not designated by the TO.) TABLE 4C Current District 3 Materials Section Personnel- July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant District Materials Engineer CE 111 1 1 Assistant to the Materials Engineer GCIII ND* 1 Assistant to the Materials Engineer GCII ND* 2 Assistant to the Materials Engineer EAII ND* 1 Assistant to the Materials Engineer TTPor EAI ND* 1 TOTAL (All of District 3 Materials Section) ND* 6 ND* = Not Designated (Number of Materials Technicians/Inspectors is not designated by the TO.) Interim Final Report - July 3, 2003 48 Process Review of MassHighway Construction & Materials Staffing TABLE 4D Current District 4 Materials Section Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant District Materials Engineer CE III 1 1 Assistant District Materials Engineer GCIII 1 1 District Area Materials Engineer GCIII ND* 2 District Area Materials Engineer CEI ND* 1 Assistant to the Materials Engineer (Materials Inspector) GCII ND* 4 Assistant to the Materials Engineer (Materials Inspector) EAII ND* 1 Assistant to the Materials Engineer (Materials Inspector) EAI ND* 1 Assistant to the Materials Engineer (Materials Inspector) Sr. Insp. of Road & Building Materials ND* 2 Laboratory Aide EAI ND* 1 TOTAL (All of District 4 Materials Section) ND* 14 ND" = Not Designated (Number of Materials Technicians/Inspectors is not designated by the TO.) \ TABLE4E V ; Current District 5 Materials Section Personnel - July 2001 Title Grade No. of Positions per TO Current No. of Staff No. of Positions Vacant District Materials Engineer cm 1 1 Assistant to the Materials Engineer CEII ND* 1 Assistant to the Materials Engineer CEI ND* 1 Assistant to the Materials Engineer EAII ND* 3 Assistant to the Materials Engineer Sr. Insp. of Road & Building Materials ND* 2 TOTAL (All of District 5 Materials Section) ND* 8 ND* = Not Designated (Number of Materials Technicians/Inspectors is not designated by the TO.) Interim Final Report - July 3, 2003 49 O) c £ (0 *-• CO 10 w 4) *■> n S o3 c o "5 3 L. (0 c o o > (0 (A (8 o > (0 CO o o o © © CM '■>»■ 3. -J 1 "5> c- c, o CA k. © a. (A C 3 o ■ »mm - a © u. co "$ «' UJ ■= CD © 2 ro *■»■■ o ■ MM - k. ' ♦* - (A • MM Q c £ "3 o o 03 E E 3 Total io - CM - T - CO <* o> in CM IO - - - m *-» o "C *-• CA 5 - - - CO CM CO *-» o -■ IM - k. (A 5 - T - CM - ^ - - CM t"~ CO b ' — 1 o © •Ml* ' H L- © © c "o> c LU CO ro © ro CO b Assistant District Materials Engineer District Area Materials Engineer District Area Materials Engineer Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) Assistant to the Materials Engineer (MatIs Inspector) © ■D < O *-• E o jd ro IO I > ■ I "«5 5 I Process Review of MassHighway Construction & Materials Staffing The current number of Materials Technicians/Inspectors in each District is not adequate to provide timely materials field sampling, testing, and inspection on each project. The testing being performed by the District Materials Sections is at the bare minimum to meet the needs of the currently active projects. For example, there is insufficient staff to obtain HMA cores for Acceptance and concurrently perform other materials duties from project to project. Personnel performing Acceptance sampling, testing, and inspection of materials at production facilities (i.e. HMA Plants, Concrete Plants) are presently stretched too thin. Both of these conditions delay the completion of Acceptance testing in a timely manner, which in turn presents the risk of substantial quantities of non- specification materials being placed (due to scheduling pressures) that may subsequently be determined as non-conforming In recent years, the District Materials Sections have assumed increased responsibility for performing Acceptance sampling and testing of nearly all Project Produced Materials (Hot-Mix Asphalt, Concrete, Soils & Aggregates). This is an appropriate change since this reduces the cost and turn-around time associated with shipping many samples to the Central Laboratory for testing (e.g. aggregate consensus properties, HMA cores, concrete cylinders) and since there is insufficient staff in the Central Laboratory to handle the required volume of testing. As the District Laboratory facilities are being upgraded to enable the Districts to handle more of the required Acceptance testing, there is a growing need for additional qualified personnel to operate the Laboratories. Along with the additional demands of Acceptance sampling and testing, the District Materials Sections are also faced with implementing new construction programs/technology (e.g. QA Specifications, Superpave, High Performance Concrete) intended to improve the long-term performance of construction projects, thereby improving the return on public moneys invested in our roads and bridges. These new technologies involve more sophisticated procedures and equipment and, therefore, require an increased level of knowledge and skills by the District Materials personnel. There is a concern that as these new technology programs are implemented the District Materials Sections will not be able to provide sufficient qualified staff to perform the required materials functions such as verification of Producer Laboratory Trial Mix Formulas (LTMFs) and additional Acceptance sampling, testing, and inspection. The Team assessed the current level of District Materials Section staff versus the estimated minimum number of materials staff required to properly provide the present and growing materials functions for the current size of the construction programs in each District. A "Staffing Template" was developed to determine the number of engineering/technical personnel needed based on the number of active construction projects for seventeen different work categories and five ranges of project value. The Staffing Template and detailed spreadsheets for each District Materials Section is contained in Appendix 4B. Table 4G below summarizes the estimated number of staff required versus the current number of staff. Overall it is estimated that a total of thirty- two (32) additional Engineer and Technician/Inspector positions are needed across all five Districts. Interim Final Report - July 3, 2003 51 ' CO o m lO CO CO O CO CM O) CM •It Z < CO r^ 5 CM CO **> +*■' O * .— ■ *-» " CD *~ CO CM CM CO CM T- z < CO T- 1 00 'CD. mwm T"-: • a » •<* c ■ <*■» . ■ 3- o * "(/) c E 1 1 CO ■ ■■ *■» CO "*" T ~ -4- CM ^r N- CM T— < CM CM -* 00 V) CO CM (0 Q ^.i in CO o ^ (0 M co •■■■ l. 0) (0 2 ■ MM o CO _to CO CO *-» o ' a MM . . k_ *-■ CO -_ -- co T- CM lO CM * < * z < m CO o> I 2 * CO CO T3 J3 "> CO p 1- Q. 00 c o Urn ■ MM Q CO o CO -S co -a ^ c ■MB ♦J o 3 (0 Sf CM (0 (D o *-• * * ■(5.9? o o c o o >» (0 LU W 5*5 CO 1 «MM ■ Q CM CO CM z < z < I T" 00 <*> 'to to co ro o ** $ 2.8 T3 CO to ^ X (A * * * C3>XJ s CO (0 ■ •mm ■ 3 ■•• ■ ■HI • T— M— .— z T — CM -t— z z K lO CM 2 CO < < < .9 T> c a) H- — __ M^Mj * z> * * K * *-• CO o l_ E - 3 z CO T3 Process © Q. © to E 2 LU O LU O LU o LU o CDC LU llj LU LU o o l_ E 3 u= CO "co O) CD "si §.2 9-w CD c 2 8 *3 CO © CD CD c c "o c c o Q_ Q. CM CO UJ ■'33 1- C "o> c LU CO CO *£Z CD CO C £r W 8 -E .2 o CD §■ co 2 cT C LU CO *k_ :> c '2 *c o CO "l_ c 'o "E o 1- c a "c o 1- C "E 1- c c ■o c E E o o o "■a ■o < < o 1- » T3 * a) >^ LU z . to = CO l_ "° t— CO UJ c - O) > 1 o 1 2 c o c C 2 CO co o "E _l = "55 1 .6 "5 .«2 o +-• CO o "l_ J) < o Hi 'c +■» +-» o 4t 1 CO CO CO c O 1- \7,Z b <-J < LU CO «> -> h- o VL< „s Process Review of MassHighway Construction & Materials Staffing As noted in the discussion above, all of the District Materials Sections are currently stretched very thin while increased construction materials needs have emerged. Similar to the experience of the R&M Division, experienced District Materials Section personnel continue to be lost due to retirement, more competitive private sector compensation, or mandated reductions in work force. It has been difficult for MassHighway to attract and retain highly qualified engineers and technicians/inspectors. The current staffing structure of the District Materials Sections is not sufficient to attract and retain the qualified personnel needed. As shown in Table 4G, there is an immediate need for additional District Materials Section personnel that possess the necessary education, training, technical knowledge and experience to perform the various materials Acceptance sampling, testing, and inspection functions. The proper implementation of new technical programs like Quality Assurance specifications, Superpave mix design and testing procedures, High Performance materials (e.g. HP Concrete), and other improved technologies require all materials engineers and technicians/inspectors to be better trained and qualified. In order to provide a sufficient number of highly skilled materials engineers and technicians/inspectors, it is recommended that the following steps be taken: 1 . Revise the TO for each District Materials Section to ensure proper qualifications and to provide career tracks for engineering/technical personnel. 2. Establish a Technician Training Program (TTP) that provides a Construction & Materials career track for technicians/inspectors. 3. Establish an Engineer Training Program (ETP) that provides a Construction & Materials career track for engineers. 4. Utilize a College Intern Program to address some staffing needs. The current Table of Organization structure for the District Materials Sections does not provide the necessary paths for training and development along a technical career track in the Construction & Materials area. It fails to provide sufficient opportunity for depth and breadth of construction materials experience through cross-training of technicians/inspectors and engineers between the District Materials Sections, individual Construction Projects, and the R&M Division. Coupled with this, there is a lack of compensation incentive for personnel to further their education and acquire certification in various disciplines. In order to address these current deficiencies, it is recommended that two changes be made to the existing MassHighway grade classification structure. First, replace the variety of technician/inspector type positions in the District Materials Section TOs (e.g. Inspector of Road & Building Materials, EA I, EA II, GCI I, GCI II, etc.) with a single "Engineering Technician" (ET) grade series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers. Second, link the ET grade series and the CE grade series to a combination of training completed, . Interim Final Report - July 3, 2003 53 Process Review of MassHighway Construction & Materials Staffing qualifications/certifications attained (e.g. NETTCP Technician and Inspector certifications), and related job experience. New technicians/inspectors and engineers would be hired at an ET I or CE I grade level, respectively, and would be required to complete a one to two year MassHighway Technician Training Program (TTP) or Engineer Training Program (ETP) with rotational assignments. Technicians/inspectors and engineers who are hired through this program will rotate through assignments with a District Materials Section, one or more individual Construction Projects, and possibly with the R&M Division. This will provide the new technician/inspector an opportunity to gain experience in multiple materials subject areas with defined training and development objectives. Upon satisfactory completion of the TTP or ETP requirements, the technician/inspector or engineer would advance to an ET II or CE II grade level and be assigned to a District Materials Section. Grade level advancement to the next level (ET III or CE III) would be linked to the amount of formal training and certifications attained and the availability of higher-grade technician/inspector and engineer positions within the District Materials Sections, on individual Construction Projects, or at the R&MJDivision. The implementation of a College Intern program should also be considered to address the staffing needs of the District Materials Sections. The use of College Interns would provide an additional means of addressing staffing shortfalls, especially during the peak construction season, while providing students with summer employment or part-time employment during the academic year. District Materials Section mentors could also assist students with class selection and with habit formation skills needed when they graduate from the university. The College Intern program could serve as a conduit for attracting new full-time MassHighway employees upon college graduation. With the increase in Acceptance testing now being performed by the District Materials Sections along with the implementation of newer technology programs, it is necessary to ensure that highly qualified engineering personnel are provided to manage the overall increased level and technical complexity of the construction materials program in each District. The current grade level of the District Materials Engineer positions (CE III) is not commensurate with the increased technical requirements and administrative demands of the District materials programs. Accordingly, it is recommended that the District Materials Engineer positions be upgraded from the current CE III grade level to a CE IV grade level. In addition, each District should have an Assistant Materials Engineer/Laboratory Supervisor position assigned at a CE III grade level. The Assistant Materials Engineer/Laboratory Supervisor position will be responsible for assisting the District Materials Engineer in most facets of the District materials program and will also be responsible for managing the District Laboratory. As an example, Table 4H below is intended to illustrate how the above recommended restructuring of the District Materials Sections Table of Organization would be applied to incorporate a revised Engineering Technician grade series along with a Technician Training Program (TTP), Engineer Training Program (ETP), and College Intern program. Interim Final Report - July 3, 2003 54 Process Review of MassHighway Construction & Materials Staffing TABLE 4H Example of Recommended Table of Organization* for District Materials Sections Position Current Grade Proposed Grade Recommended Qualification Requirements District Materials Engineer CE III CEIV • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond CE III level Assistant Materials Engineer/ Laboratory Supervisor - CE III • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certification • Completed minimum 80 Training Course hours beyond CE II level Assistant Materials Engineer CE II, GCI II, CEI CEII • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certification Senior Materials Technician GCI II, CEI ETIV • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET III level Materials Technician GCII ETUI • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET II level Materials Technician EA II, Inspector of Road & Bldg. Mtrls. ETII • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certification Technician Trainee EAI ETI • HS Diploma or GED (Must complete TTP within 1 to 2 years) Engineer Trainee - CEI • BS in Civil Engineering (Must complete ETP within 1 to 2 years) College Intern - CM • Enrolled in Accredited Engineering College "The number of positions assigned to each Materials Section below the Assistant. Materials Engineer/Laboratory Supervisor (CE III) will be determined using a Staffing Template (See Appendix 4B). Interim Final Report - July 3, 2003 55 Process Review of MassHighway Construction & Materials Staffing The recommended restructuring of the District Materials Sections TOs and the technician/inspector grades, along with the implementation of a Technician Training Program, Engineer Training Program, and College Intern program, will ensure that all engineering/technical positions in the District Materials Sections are filled with properly qualified personnel. These four steps will also provide for personnel development and grade level advancement within the District Materials Sections and improve cross- functional advancement between the District Materials Sections, individual Construction Projects, and the R&M Division based on training courses completed and certifications attained. In order for these programs to be effective, there must be a commitment to recruit and hire a minimum number of Trainees and Interns each year, based on the size of the overall construction program and the expected annual attrition rate of construction and materials personnel. 4.6D Adequacy of Qualifications of District Materials Sections Interviews were conducted with four (4) materials technicians/inspectors from District 1 and District 2 to assist in assessing the current qualifications of personnel in the District Materials Sections (See Appendix 4C for completed Guidelines). Time limitations did not permit an opportunity to interview materials technicians/inspectors in Districts 3, 4, and 5. Based on the information collected on the Personnel Qualifications Guidelines, three of the four technicians/inspectors reviewed appear to be generally qualified to perform the specific materials sampling, testing and inspection duties they perform. All of the technicians/inspectors interviewed have at least one relevant certification (e.g. NETTCP, ACI, etc.) and other related training. It was noted that one technician indicated that his responsibilities include concrete sampling, testing, and inspection, although he is not currently certified by NETTCP or ACI for concrete. Supervisory personnel from several Districts indicated that some staff were recently assigned to the District Materials Sections who lack the technical background and formal qualifications to perform materials technician/inspector duties. The reasons attributed for this include some discretionary hiring practices and the suspension of the "Civil Service" process by recent State Administrations. From discussion with District personnel and later interviews with field technicians/inspectors assigned to individual Construction Projects in each of the Districts (See Issue No. 5 below), the Team concluded that deficiencies exist with the qualifications of some materials staff, primarily (though not exclusively) in Districts 3, 4, and 5. All District Materials Section personnel who perform inspection, sampling and testing of materials for Acceptance should be qualified per the requirement of the Federal Regulations (23 CFR 637). Personnel who perform these duties should be certified through relevant courses offered by the New England Transportation Technician Certification Program (NETTCP). Implementation of the recommendations discussed in Section 4.5D above (District Materials Sections TO revisions, TTP, ETP, and College Intern program) should help to ensure that all personnel filling Engineer or Technician positions in the District Materials Sections are properly qualified. Interim Final Report - July 3, 2003 56 Process Review of MassHighway Construction & Materials Staffing Issue No. 5 - Adequacy of Staffing on Construction Projects Issue No. 5 Findings: 5.1 F Based on the current (July 2001 ) level of construction activity, the overall number of qualified personnel available and assigned to staff individual Construction Projects is substantially deficient. 5.2F As a result of the lack of adequate staffing, existing personnel assigned to individual Construction Projects are not able to provide the necessary project oversight and acceptance duties in a timely manner and/or are performing them at reduced frequency. Consequently, construction quality deficiencies are occurring on some projects, which are subsequently resulting in decreased performance life of some pavements and bridges. 5.3F The "Typical Table of Organization (TO)" established for Construction Projects staffing assigns up to five (5) projects per Resident Engineer. Some Resident Engineers are covering too many projects to provide effective project management under this TO structure. 5.4F The "Typical TO" calls for Resident Engineers to be at a CE III grade level, however, personnel with other grades (CE II, CE I, GCI II, etc.) are assigned as Resident Engineers on some projects. 5.5F The "Typical TO" does not define the number or grade levels of personnel (engineers and technicians/inspectors) assisting the Resident Engineer on individual Construction Projects. 5.6F Construction Projects are staffed by a variety of personnel below the engineer level, including several "newly created" position titles and grade levels (e.g. Program Coordinator, Pesticide Specialist, Research Analyst, Administrative Assistant) for personnel who lack the skills or qualifications needed to perform construction project duties. 5.7F Many of the current personnel performing inspection, sampling, and testing on individual Construction Projects do not possess the minimum skills and relevant qualifications (i.e. education level, training, NETTCP certifications) required to perform these construction duties. Issue No. 5 Recommendations: 5.1 R Construction Project staffing should be substantially increased to ensure the proper level of project oversight and acceptance activity (i.e. contract administration, inspection, sampling, testing). Based on a FHWA proposed Construction Project staffing template, it is recommended that one hundred ninety-six (196) additional Engineer and Engineering Technician positions should be filled across the five Districts. Using an MHD proposed staffing template, it is Interim Final Report - July 3, 2003 57 Process Review of MassHighway Construction & Materials Staffing recommended that as a minimum, an additional seventy-three (73) Construction Project personnel should be provided. 5.2R Additional qualified Engineers and Engineering Technicians need to be recruited and hired to meet the staffing needs for individual Construction Projects. The use of a College Intern program should also be considered to address some staffing needs, especially during the peak construction season. 5.3R The 'Typical Table of Organization" for staffing of individual Construction Projects should be revised to ensure that Resident Engineers are able to provide effective project management. The number of projects assigned to each Resident Engineer should be based on a standard "Project Staffing Template" to be finalized by MHD and FHWA. Resident Engineers (CE III) should ideally cover no more than three (3) projects of small to medium size and complexity. For very large/complex projects, one (1) full time Resident Engineer (CE III) should be assigned (See Appendix 5G and Appendix 5H). 5.4R The Resident Engineer positions for all projects should be filled with engineers (minimum BS in Civil Engineering) at a CE III grade level. This will ensure that only personnel who possess the requisite qualifications and construction field experience are placed in responsible charge of individual Construction Projects. 5.5R The "Typical TO" for staffing of individual Construction Projects should be revised to identify standard positions below the Resident Engineer. The number and grades of positions assigned to each type of project should be based on a standard "Project Staffing Template" to be finalized by MHD and FHWA. An Assistant Resident Engineer (CE II) should be assigned full time to most projects involving bridge construction or highway construction. The number of Construction Inspectors (other engineers and technicians/inspectors) assigned to each project should be in accordance with the adopted Project Staffing Template. 5.6R To provide a mechanism for development of properly qualified personnel to fill all positions on individual Construction Projects, the previously recommended MassHighway Engineer Training Program (ETP) and Technician Training Program (TTP) should be put into place. The current variety of non-engineer (technician/inspector) position titles and grades (e.g. GCI, EA, Program Coordinator, Pesticide Specialist, Research Analyst) assigned to Construction Projects should be replaced with one standard "Engineering Technician (ET)" grades series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers, with grade level advancement linked to training and certifications attained (See 5.5D below). 5.7R All Construction Project personnel who perform inspection, sampling and testing of construction materials for Acceptance should be qualified. This is a requirement of the Federal Regulations (23 CFR 637). Qualification of personnel should be through the NETTCP and other relevant programs. Interim Final Report - July 3, 2003 58 Process Review of MassHighway Construction & Materials Staffing Issue No. 6 Discussion: 5.1 D Team Visit to Sampling of Individual Construction Projects The Team visited with Construction Project staff assigned to 17 different projects ranging in price from just under four hundred thousand dollars to in excess of nineteen million dollars. Project visits and interviews were conducted on Tuesday, July 17 th (Districts 1 & 2), Wednesday, July 18 th (District 3), Thursday, July 19 th (District 5), and Friday, July 20 , 2001 (District 4). Personnel on individual Construction Projects included the Resident Engineer and most of the other engineers and/or technicians/inspectors assigned to each project. The questions contained in the Process Review Guidelines were discussed to gain an understanding of the type and level of project activity, current staffing, staffing process, and staffing needs for individual Construction Projects. The Team also interviewed a sampling of staff from each of the projects visited to assess personnel qualifications (See 5.6D below). 5.2D Primary Functions of Construction Project Staff The personnel assigned to Construction Projects operate out of field offices on or near each project site. These staff have responsibility for the day to day oversight of one or more individual construction projects within their District. The primary functions of the Construction Project staff include: > Providing project level construction management > Proving guidance to Contractor personnel > Monitoring the adequacy of Contractor operations and Quality Control activities > Performing field inspection for Acceptance of completed work items > Performing some Acceptance sampling and testing of Project Produced Materials > Preparing documentation of Acceptance Inspection, sampling and testing > Measuring and documenting quantities of completed work items > Preparing Extra Work Orders when needed > Preparing Progress Estimates for payment to Contractors 5.3D Table of Organization for Individual Construction Projects The staff assigned to individual Construction Projects report directly to an Area Engineer in their respective District Construction Office. Project level staff normally includes a Resident Engineer (CE III) and one or more Engineers and/or Construction Technicians/Inspectors (various grades). A 'Typical Table of Organization (TO)" for staffing of individual Construction Projects was provided to the Review Team and is included in Appendix 5A. This 'Typical TO" identifies one (1 ) Resident Engineer (CE III) assigned to cover up to five (5) separate projects. However, it does not indicate the number of, or criteria for determining, other staff (engineers and construction technicians/inspectors) assisting the Resident Engineer on individual Construction Projects. / iterim Final Report - July 3, 2003 59 Process Review of MassHighway Construction & Materials Staffing 5.4D Current Number of Personnel on Construction Projects The current (July 2001) number of personnel assigned to individual Construction Projects is summarized in Table 5A below. Organization charts/lists that identify the current Construction Projects staff in each District are included in Appendix 5B thru Appendix 5F of this report. There are three hundred fifty-seven (357) staff assigned to individual Construction Projects across the five Districts. This includes seventy-eight (78) engineers (CE IV thru CE I) and technicians/inspectors (GCI II or GCI I) designated as Resident Engineers and two hundred seventy-nine (279) other personnel of various grades assigned to perform construction technician/inspector functions. There are presently no positions vacant in the pool of staff available in each District for assignment to individual Construction Projects. 5.5D Adequacy of TO and Staffing Level for Construction Projects Through the interviews conducted with District Office management, as well as earlier discussions with the Chief Engineer and Boston Construction Office managers, it is generally perceived that the current number of personnel available for staffing of individual Construction Projects is insufficient. Based on the visits to a sampling of active projects, the Review Team concurs with this assessment. As further discussed below, information obtained during the project visits has led the Team to three major findings regarding the 'Typical TO" and the level of staffing for individual Construction Projects: 1 . The overall number of personnel available and assigned to individual Construction Projects is significantly deficient. 2. The assignment of Resident Engineers to as many as five (5) projects per the 'Typical TO" does not provide effective project management. 3. The lack of a standard staffing structure (Table of Organization) and staffing criteria for Construction Projects has resulted in considerable variation of staffing between individual projects of similar work type and value (See Tables 5A & 5B). As noted above, there are currently a total of 357 personnel assigned to staff 277 individual Construction Projects across the five Districts. To assess the adequacy of this staffing level, the Review Team visited with Construction Projects personnel from 17 currently active projects. The current (July 2001 ) number and grades of staff assigned to these projects is summarized in Table 5B below. The number of Resident Engineers and staff assisting the Resident Engineers (engineers and construction technicians/inspectors) on individual Construction Projects is not considered sufficient to provide the necessary Acceptance activities (i.e. contract administration, inspection, sampling, testing, etc.) on each project. Interir Final Report - July 3, 2003 60 I? 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D) |8 Z o> © •o CO Xo> a> 0) a © il £= CO o- i- CO Si o co 5"? -c .59 OT3 4-1 CO "3 CO CM > o © j*: si ©CO © c II 2< 5io © CD © — 1— . m c 2 ©.g> oS m •a 5s 2>co © c > o 2io O CD 2 > < CM z£ O co © .Q q or QTo CO © q or Q2 a oi Tt © tj- © q£ ^ © QF IO © "?co iS Q D CO "?ro Q S Q H CM CO CO o I I it I 5 Process Review of MassHighway Construction & Materials Staffing The first principal impact resulting from the lack of adequate Construction Projects personnel is that project management and oversight activities are being reduced and/or they are not performed in a timely manner. Examples of current conditions and issues identified by the Review Team during the project level visits include the following: • The necessary level of field inspection for Acceptance is not being performed on many projects. On several major Construction Projects, inspectors are not able to stay with a single operation during the entire work day. Project staff are only able to inspect one of multiple construction operations that are simultaneously active. Project staffing has decreased over the last eight or so years to where the frequency and level of inspection is more often a spot-check type of verification at best. Construction Projects staff are not able to monitor traffic control (12 minute traffic delay rule) and inspect paving operations simultaneously. Check measurements of some items are not being made in accordance with the Standard Operating Procedures (SOPs). Construction Projects personnel are not able to complete Acceptance inspection, sampling, and testing in a timely manner. This presents the risk of substantial quantities of non-specification materials being placed by the Contractor (due to scheduling pressures) that may subsequently be determined as non-conforming. On a major construction project, the Contractor's operations are being held up to allow MassHighway inspectors an opportunity to check completed work prior to advancing the construction operation. One Resident Engineer managing several different projects with a crew of unqualified staff is not able to perform materials sampling and testing at the required frequencies. Another Resident Engineer indicates that project personnel are not able to perform the required number of in-place density tests on soils for one project. Work performed on Extra Work Orders under Force Account is not adequately inspected and documented due to the unavailability of staff. Appropriate documentation of pay quantities is sometimes delayed due to lack of staff. On one major project, the Progress Payment Manifold is one estimate behind. The Daily Project Diary is sometimes at least one day behind. A Resident Engineer covering multiple projects is only able to prepare the Daily Project Diary about once a week for some projects, on his own time. Another Resident Engineer is only able to update the Daily Project Diary weekly or bi-weekly. Inspectors Daily Reports (IDRs) for one major project are sometimes prepared two days following the day covered by the I DR. A schedule of overruns and underruns is not being prepared on one major project. Extra Works Orders (Form 683) for major overruns are approximately two months behind on another major construction project. The Project Materials Ledger is not up to date on a major project and separate Ledgers are being kept by individual inspectors. The Materials Ledger is not updated on another smaller project. Contractor submittals for labor compliance/EEO requirements on one major project are simply being passed forward with no review by Construction Project staff. Construction Projects personnel are not able to review PS&Es in accordance with the SOPs. The lack of PS&E review by Construction Personnel leads to insufficient designs resulting in more Extra Work Orders on some projects. Interim Final Report - luly 3, 2003 63 Process Review of MassHighway Construction & Materials Staffing The second principal effect due to insufficient availability of qualified Construction Projects personnel is that personnel with appropriate qualifications are borrowed from other Construction Projects or less qualified (and in some cases unqualified) personnel are being assigned from other sections of MassHighway. Examples of this include: • In one District, an engineer with pile driving experience had to be borrowed from one project to inspect pile work at another major project. • One inspector, with no prior construction experience, was found to be obtaining materials samples without using the required random sampling procedures. • Some Districts assign their better personnel to nighttime projects and, therefore, lesser or unqualified personnel cover most of the daytime projects. • One District transfers personnel from the District Project Development Section on an as needed basis to Construction Projects. • To provide staffing of active projects at a level that was considered the bare minimum by the Construction Office under the $400 million construction program, one District was forced to disband its only in-house survey party. • During the beginning of the 2001 construction season, it was necessary to temporarily assign approximately 90 personnel from non-construction positions in the Boston Office and District Offices to individual Construction Projects. As a result, inexperienced and unqualified personnel are utilized in the field. This also causes the development of project designs needed for future construction seasons to be delayed, potentially jeopardizing the delivery of projects for the $400 million construction program required by the Statewide Construction Program MOU. The third principal impact resulting from the lack of sufficient numbers of properly qualified Construction Projects staff is poor quality construction. Although time limitations during the review did not afford an opportunity to inspect the quality of work completed or in progress during the project visits, members of the Review Team have subsequently learned that an increasing number of recently constructed pavements and bridges have experienced failures within less than one or two years after construction completion. Some examples include premature cracking of bridge decks and other bridge components. Premature pavement deficiencies include raveling of segregated Hot-Mix Asphalt, open joints, and poor ride quality. As noted above, personnel assigned to individual Construction Projects are not able to provide the necessary project oversight and acceptance duties in a timely manner and/or are performing them at reduced frequency. Where less experienced or unqualified staff are assigned to projects, some construction deficiencies may go undetected. Although the recent implementation of Contractor Quality Control (QC) requirements is intended to help ensure the quality of construction, MassHighway must still have sufficient staff to monitor the adequacy of Contractor QC and independently perform Acceptance activities (i.e. inspection, sampling, and testing). The lack of a sufficient number of qualified staff to identify and correct construction quality deficiencies in a timely manner can result in unnecessary conflict and claims with Contractors and may result in further decreased performance life of pavements and bridges. Interim Final Report - Jul r 3, 2003 64 Process Review of MassHighway Construction & Materials Staffing A fourth principal effect of the lack of adequate Construction Projects personnel is that employee morale and health have been negatively affected from being stretched too thin. Some Resident Engineers are covering both daytime projects and nighttime projects simultaneously. The Review Team learned that one Resident Engineer has experienced serious health problems directly related to stress from inadequate staff. Due to people calling in sick, taking vacation time, or other leave, it is estimated by MassHighway managers that there can be as many as 1 out of 4 people not working on any given day. This only compounds the effect of insufficient staffing felt by Construction Projects personnel. Given these circumstances, it is not surprising that the Team found the morale of most of the staff they visited with to be extremely low. The bottom line is that MassHighway cannot afford to continue to provide insufficient levels of qualified personnel to staff individual Construction Projects. Shuffling inexperienced or unqualified people back and forth between other sections and Construction Projects is not an appropriate solution. The proper solution is to recruit and hire additional qualified Engineers and Engineering Technicians to meet the staffing needs for individual Construction Projects. The use of A College Intern program should also be considered to address some staffing needs, especially during the peak construction season. Accordingly, the Team assessed the current level of Construction Projects staff versus the estimated minimum number of staff required to properly provide the needed functions for the current size of the construction programs in each District. Two proposed staffing models were developed using "Construction Project Staffing Templates" to determine the number of engineers and technicians/inspectors needed. Staffing Model A is based on a proposed Construction Projects Staffing Template developed by FHWA. Staffing Model B is based on a proposed "Staffing Template developed by MassHighway. Each of the Staffing Templates assigns a minimum number of staff for individual Construction Projects for seventeen different work categories and five ranges of project value. The number of active projects for each work category is inserted into a spreadsheet, which is linked to the Staffing Template, thereby calculating the total number of Construction Projects staff required. The Staffing Templates and completed spreadsheets used to determine the current (July 2001) number of personnel needed for Construction Projects staffing by District are contained in Appendix 5G and Appendix 5H. Table 5C and Table 5D below summarize the estimated number of staff required versus the current number of staff using Staffing Model A and Staffing Model B, respectively. Based on the current (July 2001) number of active construction projects, the FHWA proposed Construction Project Staffing Template (Model A) estimates that one hundred ninety-six (196) additional Engineer and Engineering Technician positions are required to be filled across the five Districts. The MHD proposed Construction Project Staffing Template (Model B), estimates that an additional seventy-three (73) Construction Project personnel are needed. FHWA and MassHighway should work to reconcile the differences in the two models. Until a consensus is reached on the Staffing Models, the FHWA proposed Staffing Template (Model A) should be used to determine the appropriate number and grades of staff assigned to Federal-Aid Construction Projects. Interim Final Report - July 3, 1 J03 65 I o o CM ■ >» O) c (0 CO w w o CB c o II o o I CO (0 (A (0 i > 0) IA 10 o o o © c c o 2 © Q. c LU c © ■g "to © ct: LO CO CM CM CO LO CM LO LO CO O) LU O © © c c LU *-» c © ■g "to © a: *-• c CO *-• CO "to to < LO CM LO LO LO a> O) LO LO LO CO LU o © © c CD © © C c LU CM LO LO CO LO d LO CM CO LO CM z> c o o t_ 4-» CO c o ,_ O o O CD c Q. CO c o O LU LU © © C B h- c CO "g "c o © * < O c © © _© O O CO to to LO CM CO ■ LO ID CO K LO CM CM CO •4-» CO "Si © E 3 z © C © E E o o © _l O LO CO 00 o o CO o IO CO CM 3= CO CO © E 3 z © I— 3 o CO LO CO 10 CO CO in ■ LO 00 CM ■A CM T3 © ■o © © z CO CO "co c o T3 < < o c a E c O) 'w (0 (0 f ° o jd ro LU 2 10 o ^ > PI CO -o c O O o "* Q) a) s CO |o i9 -o c o O 52 c to a> o a> = c iC s m o "si *! a. Q- " -a * (D >^ LU z . » (0 in d CO CO m CM a> in in in O) in in CO * z < in CM in CO T" " o in CM CO CM :.. V ©9^ Q -C © : ■. ~ ■ ■ C 12 oJ2 V W : ; r^ CO CO CM -* CM co ...■-■ o © jS- 5 ■fffc. E 5D tion Pr< sed Sta CM CQ 3 Q. Q LU UJ LU LU o © CO o © T3 © © z E E 13 E 3 CO "co E o o © © © -a C o a: "6) i_ i_ © 73 © 2 c o o c - 3 T3 l_ LU C © c o "5 © 13 © © © E o 1 © © © © c ts Q. (0 Q. (0 © E -I - c "O 3 _c _c CO o < r- c LU *-< c © '(0 © a: C CO 2 h- k. © © (0 c O u. O o o T5 3 c o o l_ H c CO c © © © < o ■a "(0 (0 "co c o © (0 c (0 c c o © 1- O © (0 c © w o o © O ., i— _. L* < LU w£ O o H O (0 c a) E c g> "(0 (A CO f o o uj 2 ■° ^ CQ O I- a. CO CO -S CO -o > ~' C .2 w OB .2 u o "(O CO JS c CO m% — "O CO o CO = c ^ O) CO C JD i" o 28 0. 0- ti II TO * a) ^ CO LU Z - CO = ro r- o UJ C _- 2) — 'w QJ < _- II CO 2 I q: "5 .c 1 Process Review of MassHighway Construction & Materials Staffing Based on a comparison of the actual number of staff assigned to the seventeen projects reviewed versus the proposed Staffing Templates, it is found that approximately fifty- nine (59) to sixty-five (65) percent of these projects are understaffed. When compared to the FHWA Construction Project Staffing Template (Staffing Model A), eleven (1 1) of seventeen (17) projects were found to be understaffed by anywhere from 0.4 to 3 people per project. As compared to the MHD Construction Project Staffing Template (Staffing Model B), ten (10) of seventeen (17) projects were found to be understaffed by anywhere from 0.25 to 4.8 people per project. Both Staffing Model A and Staffing Model B are in agreement that nearly one hundred (100) Resident Engineer (CE III) positions are required to properly manage the current (July 2001 ) number of active construction projects across the five Districts. At the present time, there are only fifty-seven (57) CE III Resident Engineer positions. It is recommended that an additional 41 or 42 CE III Resident Engineer positions be established per Staffing Model B and Staffing Model A, respectively. The 'Typical Table of Organization (TO)" established for Construction Projects staffing assigns up to five (5) projects per Resident Engineer (See Appendix 5A). However, the Typical TO is insufficient to provide effective project management for the current level of project activity. Some Resident Engineers are covering too many projects and are consequently stretched too thin under this TO structure. For example, one Resident Engineer that the Review Team visited is assigned to cover nine (9) projects over a large area. Even Resident Engineers covering four (4) or five (5) projects were found to be struggling to meet all of the required project management and oversight activities. The geographic distance between multiple projects assigned to one Resident Engineer often results in much time wasted traveling between projects. With the number of projects being assigned to the Resident Engineers increasing so does the paperwork, which diminishes the time available to inspect the work being done by the Contractor. Resident Engineers are spending less time one hands-on inspection because they are spending much time driving from project to project and trying to keep up with all of the paperwork. Some Resident Engineers are not able to input progress estimates into the District Construction Database (DCD) on a timely basis due to multiple projects. One other impact resulting from the Resident Engineers being spread too thin is that the current experienced Resident Engineers have little or no time to devote to training and development of new personnel. Not only is there a need for development of additional qualified staff for Construction Projects staffing to assist the Resident Engineers, but there is also a need for experienced Resident Engineers to provide developmental guidance and mentoring to lesser-experienced Construction Projects staff to capably assume Resident Engineer or District Construction Office positions in the future. In order to ensure that Resident Engineers are able to provide effective project management, the number of projects assigned to each Resident Engineer should be reduced. The 'Typical Table of Organization" for staffing of individual Construction Projects should be revised to indicate that Resident Engineers (CE III) are to be assigned no more than three (3) projects. Based on the FHWA Construction Project Staffing Template (Staffing Model A), each Resident Engineer would cover either a Interim Final Report - July 3, 2003 68 Process Review of MassHighway Construction & Materials Staffing combination of two (2) projects of small size and complexity plus one (1 ) project of medium size and complexity, or only two (2) projects of medium size and complexity. The MHD Staffing Template (Staffing Model B) would allow a combination of up to four (4) projects of small or medium size and complexity to be assigned to a Resident Engineer. FHWA believes that this will not address the deficiencies noted above under the present Typical TO. Both Staffing Model A and Staffing Model B recommend that one (1) full time Resident Engineer (CE III) should be assigned to very large/complex projects (See Appendix 5G and Appendix 5H). There is considerable variation not only in the number of staff assigned to Construction Projects, but also with the grade levels assigned from the Resident Engineer on down. The "Typical TO" calls for Resident Engineers to be at a CE III grade level. However, as shown in Table 5A, personnel with other grades (CE II, CE I, GCI II, etc.) are assigned as Resident Engineers on some projects. Eight (8) of the seventeen (17) projects reviewed by the Team did not have a CE III Resident Engineer (See Table 5B). There is a need to ensure that all construction projects are managed by properly qualified and experienced staff. The Resident Engineer positions for all projects should be filled with engineers (minimum BS in Civil Engineering) at a CE III grade level. This will ensure that only personnel who possess the requisite qualifications and construction field experience are placed in responsible charge of individual Construction Projects. The 'Typical TO" does not define the number or grade levels of personnel (engineers and technicians/inspectors) assisting the Resident Engineer on individual Construction Projects. In particular, the Review Team determined that there are an insufficient number of engineer (CE) positions and technician/inspector (GCI, EA, Other) positions assigned to assist the Resident Engineers on projects. In addition to the deficient number of staff, it was found that there are many different grades established/assigned to perform the various required project duties (i.e. contract administration, inspection, sampling, testing, etc.) on each project. In order to ensure that a staffing structure is in place to adequately provide the necessary construction oversight and Acceptance functions, the "Typical TO" for staffing of individual Construction Projects should be revised to identify standard positions below the Resident Engineer. The number and grades of positions assigned to each type of project (i.e. work category, project value) should be based on a standard "Project Staffing Template" to be finalized by MHD and FHWA. Based on the FHWA Construction Project Staffing Template (Staffing Model A), an Assistant Resident Engineer (CE II) should be assigned full time to most projects involving bridge construction or highway construction. The number of Construction Inspectors (other engineers and technicians/inspectors) assigned to each project should be in accordance with the adopted Project Staffing Template. The Review Team also found that Construction Projects are staffed by a variety of personnel below the engineer level, including several "newly created" position titles and grade levels (e.g. Program Coordinator, Pesticide Specialist, Research Analyst, Administrative Assistant) for personnel who lack the skills or qualifications needed to perform construction project duties. As an example, one person interviewed who has a Masters degree in Russian Area Studies, but no prior construction training or Interim Final Report - July 3, 2003 69 Process Review of MassHighway Construction & Materials Staffing experience, is serving in the role of an "office engineer". Much of his time is spent preparing Inspectors Daily Reports (IDRs) from "rough notes" submitted by other unqualified personnel performing field inspection who lack the writing skills to prepare their own IDRs. This "office engineer" also indicated that he performs some field inspection of paving, signs, and traffic signals, even though he has no formal training or qualifications/certifications related to inspection of these work items. Other examples of individuals assigned project inspection duties who had a wide range of "interesting" experience prior to being hired by MassHighway included a blackjack dealer, retail salesman, carpet installer, truck driver, and court clerk. These work backgrounds in and of themselves would not necessarily preclude such individuals from filling construction technician/inspector positions. However, these types of previous jobs usually do not provide an adequate background to allow individuals to perform the various required project duties (i.e. contract administration, inspection, sampling, testing, etc.). One Resident Engineer indicated that he has had to send "inspectors" who lacked the proper background and training out to the same location more than once to properly measure work items. Some of these "inspectors" cannot read plans or do not fully understand the construction specifications even after the Resident Engineer has sat down to explain the plans and specifications. There is presently no formal mechanism in place to provide sufficient training and development of new employees assigned to Construction Projects. As discussed above, there is an immediate need for additional Construction Projects personnel that possess the necessary education, training, technical knowledge and experience to perform the various required oversight and Acceptance functions (i.e. contract administration, inspection, sampling, testing, etc.) required by MassHighway. As part of these project oversight and Acceptance duties, the Construction Projects staff are responsible for implementing new construction programs/technology (e.g. QA Specifications, Superpave, High Performance Concrete) intended to improve the long- term performance of construction projects, thereby improving the return on public moneys invested in our roads and bridges. The proper implementation of these new technical programs and other improved technologies require all Construction Projects personnel to be better trained and qualified. Accordingly, in order to provide properly skilled Construction Projects personnel, it is recommended that the following two changes be made to the existing MassHighway grade classification structure: • Replace the current variety of non-engineer (technician/inspector) position " titles/grades (e.g. GCI, EA, Program Coordinator, Pesticide Specialist, Research Analyst, etc.) assigned to Construction Projects with one standard "Engineering Technician (ET)" grades series (i.e. ET I, ET II, ET III, ET IV), similar to the existing Civil Engineer (CE) grade series for engineers. • Link the ET grade series (and the CE grade series) to a combination of training completed, qualifications/certifications attained (e.g. NETTCP Technician and Inspector certifications), and related job experience. Interim Final Report - July 3, 2003 70 Process Review of MassHighway Construction & Materials Staffing To provide a mechanism for development of properly qualified personnel to fill positions on individual Construction Projects, all new technicians/inspectors and engineers would be hired at an ET I or CE I grade level, respectively, and would be required to complete a one to two year MassHighway Technician Training Program (TTP) or Engineer Training Program (ETP) with rotational assignments. Personnel hired through this program will rotate through assignments with one or more individual Construction Projects and a District Materials Section. This will provide the new personnel an opportunity to gain experience in the various construction oversight and Acceptance duties with defined training and development objectives. Upon satisfactory completion of the TTP or ETP requirements, the technician/inspector or engineer would advance to an ET II or CE II grade level and be assigned to "Construction Inspector" or "Assistant Resident Engineer" positions on individual Construction Projects. Grade level advancement to the next level (ET III or CE III) would be linked to the amount of additional formal training and certifications attained and the availability of higher-grade technician/inspector and engineer positions on individual Construction Projects, in the District Materials Sections, or at the R&M Division. A number of State Highway Agencies utilize these types of formalized training programs to develop new personnel and to provide a career path in construction. One example is the 'Transportation Construction Inspector Program" used by Virginia DOT. This program utilizes a "Job Book" that contains checklists and review guidelines that trainees must satisfactorily complete within one to two years. Some Agencies also have "Resident Engineer Academy" programs that are anywhere from one week to one year in length. Examples of these types of programs have been compiled in a report available from the Transportation Curriculum Coordination Council (TCCC). As discussed previously, the implementation of a College Intern program should also be considered to address the staffing needs of individual Construction Projects. The use of College Interns would provide an additional means of addressing staffing shortfalls, especially during the peak construction season, while providing students with summer employment or part-time employment during the academic year. As an example, Table 5E below is intended to illustrate how the above recommended restructuring of the 'Typical TO" for Construction Projects would be applied to incorporate a revised Engineering Technician grade series along with a Technician Training Program (TTP), Engineer Training Program (ETP), and College Intern program. These steps will ensure that all Engineer and Engineering Technician positions assigned to Construction Projects are filled with properly qualified personnel. They will also provide for personnel development and grade level advancement for Construction Projects staff and improve cross-functional advancement between individual Construction Projects, the District Materials Sections, and the R&M Division based on training courses completed and certifications attained. However, in order for these programs to be effective, there must be a commitment to recruit and hire a minimum number of Trainees and Interns each year, based on the size of the overall construction program and the expected annual attrition rate of construction and materials personnel. Interim Final Report - July 3, 2003 71 Process Review of MassHighway Construction & Materials Staffing TABLE 5E Example of Recommended Table of Organization* for Construction Projects Position Current Grade Proposed Grade Recommended Qualification Requirements Resident Engineer CE III CE III • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond CE II level Assistant Resident Engineer CE II, GCI II, CEI CEII • BS in Civil Engineering • Completed ETP • Obtained minimum 1 NETTCP or other relevant certification Senior Construction Inspector GCI II, CEI ETIV • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET III level Construction Inspector GCII ETUI • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certifications • Completed minimum 80 Training Course hours beyond ET II level Construction Inspector EA II, Other ETII • HS Diploma or GED • Completed TTP • Obtained minimum 1 NETTCP or other relevant certification Technician Trainee EAI ETI • HS Diploma or GED (Must complete TTP within 1 to 2 years) Engineer Trainee - CEI • BS in Civil Engineering (Must complete ETP within 1 to 2 years) College Intern - CM • Enrolled in Accredited Engineering College The number of positions assigned to each project below the Resident Engineer (CE III) will be determined using a Construction Project Staffing Template (See Appendix 5G and Appendix 5H). Interim Final Report - July 3, 2003 72 Process Review of MassHighway Construction & Materials Staffing 5.6D Adequacy of Qualifications of Construction Projects Personnel Interviews were conducted with twenty-seven (27) engineers and technicians/inspectors from the seventeen (17) projects reviewed to assist in assessing the current qualifications of personnel assigned to individual Construction Projects (See completed Guidelines in Appendix 51). Based on the information collected on the Personnel Qualifications Guidelines, sixteen (16) of the twenty-seven (27) personnel reviewed (59%) were found to not be qualified to perform the specific construction materials sampling, testing and inspection duties they perform. Construction Projects personnel found to lack the necessary qualifications were primarily (though not exclusively) in Districts 4 and 5. Nearly all of these personnel were below the Resident Engineer (CE III) level. Many of the technicians/inspectors interviewed had no relevant certifications (e.g. NETTCP, ACI, etc.) or related training for materials they were responsible for sampling, testing and inspecting. In other instances the individuals may have possessed certification for at least one material (HMA, Concrete, Soils), but it was determined that they were inspecting and testing other materials for which they were not qualified/certified. As discussed above, the Review Team learned that a number of staff have been assigned to individual Construction Projects who lack the technical background and formal qualifications to perform construction technician/inspector duties. The reasons attributed by some supervisory personnel the Team spoke with include discretionary hiring practices and the suspension of the "Civil Service" process by recent State Administrations. All Construction Projects personnel who perform inspection, sampling and testing of materials for Acceptance should be qualified per the requirement of the Federal Regulations (23 CFR 637). Personnel who perform these duties should be certified through relevant courses offered by the New England Transportation Technician Certification Program (NETTCP). Implementation of the recommendations discussed in Section 5.5D above (standard "Engineering Technician (ET)" grades series, TTP, ETP, and College Intern program) should help to ensure that all personnel filling Engineer or Technician positions on individual Construction Projects are properly qualified. Interim Final Report - July 3, 2003 73 Process Review of MassHighway Construction & Materials Staffing Issue No. 6 - Process to Determine Necessary Staffing Levels Issue No. 6 Findings: 6.1 F There is no quantitative process in place to forecast and determine, on a regular frequency, the minimum/optimum number of positions needed to perform the various MassHighway construction and materials functions and activities. The number of personnel in each unit has been established primarily based on history, and through periodic assessments using experience and judgement. 6.2F Current Tables of Organization (TOs) do not define the number of personnel required for the R&M Central Laboratory, the District Materials Sections, or on individual Construction Projects below the CE III level (i.e. Unit Heads, District Materials Engineers, Resident Engineers). Issue No. 6 Recommendations: 6.1 R A quantitative process should be established to determine, on at least an annual basis, the minimum/optimum construction and materials staffing levels needed by MassHighway. Key variables to be considered in this process should include overall Construction Program expenditures, the number of active construction projects in each work category, the size ($) of individual projects, and Staffing Templates for the various construction and materials functions. It is recommended that a Construction and Materials Staff Assessment System (SAS) be developed based on project information in the State Transportation Improvement Program (STIP). Information which may assist MassHighway in developing the SAS includes models developed by other Agencies (e.g. Oregon DOT, South Carolina DOT) and NCHRP Report 447. 6.2R Construction and Materials Staffing Templates should be adopted by MassHighway to determine the appropriate number and distribution of grades for personnel in the Central Laboratory, the District Materials Sections (See Appendix 4B), and on individual Construction Projects (See Appendix 5G and Appendix 5H). Interim Final Report - July 3, 2003 74 Process Review of MassHighway Construction & Materials Staffing Issue No. 6 Discussion: 6.1 D Current Process to Determine Construction & Materials Staffing (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • There is no quantitative process in place to determine, on a regular frequency, the minimum/optimum number of personnel needed to fill various construction and materials positions. • Tables of Organization (TOs) have been established indicating staffing for most units (Boston Construction Office, R&M Division, District Construction Offices). • • The number of personnel in each unit has been established primarily based on history, and periodic assessments based on experience and judgement (e.g. Deputy Chief for Construction Memos, Chief Engineer Memos). Although there is a Table of Organization for staffing of District Construction personnel down through the Construction Area Engineer level, the minimum/optimum construction personnel needed at the Resident Engineer level and below is not defined. This is due to the fact that the size and scope of projects within a District can vary. The minimum number of District Materials Section personnel below the District Materials Engineer is not defined. The minimum number of materials personnel below the Unit Head level is not defined for the Central Materials Laboratory. Need to have rational system to forecast and determine minimum staffing levels. 6.2D Possible Approaches to Determine Construction & Materials Staffing (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Discuss possible approaches to determining the optimum number and assignment of staff: o Oregon System o Maryland Templates o South Carolina o NCHRP Report 447 o LinktoMHDSTIP Interim Final Report - July 3, 2003 75 Process Review of MassHighway Construction & Materials Staffing The scope of this issue is a 'macro-level' assessment of current overall construction and materials staffing levels versus the projected overall staffing levels required to properly administer and oversee MassHighway's construction program. The five principal groups of construction and materials personnel included in this overall assessment are: Boston Construction Office personnel Central Materials Laboratory (R&M) personnel District Construction Offices personnel District Materials Sections personnel Projects Level personnel The largest of these groups is the Construction Project level staff (Resident Engineers + all Field Inspectors). The Review Team's micro-level assessment of current versus projected staffing levels is focused primarily on the Project level staff. The key variables utilized in this micro-level assessment are: ■ Overall Construction Program Expenditures ■ Number of active construction Projects ■ Size ($) of individual Projects A quantitative process should be established to determine, on at least an annual basis, the minimum/optimum construction and materials staffing levels needed by MassHighway. Key variables to be considered in this process should include overall Construction Program expenditures, the number of active construction projects in each work category, the size ($) of individual projects, and Staffing Templates for the various construction and materials functions. Possible approaches which might assist in the development of a MassHighway Staff Assessment System (SAS) to determine the number and assignment of staff include the use of staffing models developed by other Agencies (e.g. Oregon System, South Carolina), NCHRP Report 447, or creating a model linked to MassHighway's STIP. The Review Team has identified different methods utilized by several States for determining staffing levels. Some of these procedures apply staffing templates based upon the dollar value and/or types of construction activity of individual projects. Others are based on staffing ratios related to overall construction program value or estimated overall construction engineering percentages. Similar procedures should be adopted and implemented by MassHighway to determine the minimum and optimum staffing levels needed. Interim Final Report - July 3, 2003 76 Process Review of MassHighway Construction & Materials Staffing 6.3D Development of Construction & Materials Staffing Templates (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Construction and Materials Staffing Templates should be adopted by MassHighway to determine the appropriate number and distribution of grades for personnel in the Central Laboratory, the District Materials Sections (See Appendix 4B), and on individual Construction Projects (See Appendix 5G and Appendix 5H). Interim Final Report - July 3, 2003 77 Process Review of MassHighway Construction & Materials Staffing Issue No. 7 - Process for Recruitment of Qualified Personnel Issue No. 7 Findings: 7.1 F MassHighway is not able to hire new personnel for construction and materials staffing on a regular basis This is primarily attributed to funding and program issues beyond the control of MassHighway. 7.2F A well-defined and active process for recruitment of qualified construction and materials personnel by MassHighway is not in place. Issue No. 7 Recommendations: 7.1 R A serious commitment must be made within MassHighway and by EOTC to hire on an annual basis the necessary number of personnel to fill construction and materials positions. Hiring of all new construction and materials personnel should normally be through an Engineer Training Program (ETP) and a Technician Training Program (TTP). 7.2R A well-defined program for recruitment of construction and materials personnel should be developed and funded. New personnel needed to fill Engineer and Engineering Technician positions should be recruited on at least an annual basis through Universities and Technical Schools. 7.3R A comprehensive process should be established working with High Schools, Technical Schools, Professional Associations, and Industry organizations to foster awareness and interest in construction and materials related career opportunities among students at or below the High School level. Example programs include the Associated General Contractors (AGC) "Build Up!" program, the AASHTO TRAC program, and the Construction Career Days (CCD) program supported by FHWA, State Transportation Agencies, and Industry. Interim Final Report - July 3, 2003 78 Process Review of MassHighway Construction & Materials Staffing Issue No. 7 Discussion: 7.1 D Hiring new Construction & Materials Personnel (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • There is no regular hiring (i.e. annual basis) of new engineers due to fiscal constraints. • In order to attract qualified candidates, it must be known that MassHighway has the ability to hire new personnel on an annual basis. • Discuss need to establish a formal annual process to consistently recruit and hire new personnel • MHD is faced with difficulty with the salary amounts that they are able to offer potential CE I employees. It is obvious that the salaries for entry-level civil engineers with MHD and the private sector vary by large amounts. Some MHD employees stated that this amount vary by amounts of up to ten thousand dollars. Clearly, with incentives such as this better qualified employees will normally accept position in the private sector versus with MHD. • Based on the Team's review, it is understood that MHD's full-time equivalents (FTE) allocations is controlled by the Commonwealth's Human Resources Department (HRD). Therefore, the amount of time it takes to hire a new CE I is controlled outside of MHD. • MHD's ability to hire summer college co-ops or temporary employees are hampered by the manner of how co-ops are defined as a FTE. A co-op potentially only working for four months out of a year is counted as a FTE for the entire year. Therefore as a general rule, it was found that MHD does not employ co-ops. Other state highway agencies that make use of co-ops, not only assist their human resources needs during their peak demand season, but also allows the agency and the co-op.to become familiar with each other during a nonbinding employment period. The Team suggests that the manner of how FTEs are defined be revised, such that co-ops could be utilized and that multiple co-ops could be defined as one FTE per year. • There has been some limited hiring of personnel, however, this has been in the engineering support staff and not at the engineering grade levels. Personnel with engineering degrees and experience are needed in the field to ensure sound engineering decisions are being made. • MassHighway currently does not utilize summer hires for construction or materials staffing needs due to the way FTEs are determined by the Commonwealth. In addition MassHighway does not have a program in place to use engineering Interim Final Report - July 3, 2003 79 Process Review of MassHighway Construction & Materials Staffing students involved in a co-operative education program for the same reason. The use of both of these would help in filling some of the entry-level positions and also allow the Department the opportunity to recruit recent graduates that might be involved in as part of the co-op program. • Human Resources should examine the staffing levels needed annually based on projected projects to complement the recruitment effort. 7 .2D Personnel Recruitment Process and Activities (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Current recruitment activities primarily involve limited attendance by Human Resources and District personnel at local University job fairs. • Describe recommended effective annual process and activities to recruit and hire. o Universities and Technical Schools o "Building Your Future" - PennDOT o MassHighway Website o Other Sources? • Currently MHD's process of advertising Civil Engineering Level 1 (CE I) positions, the entry-level construction professional position, is to place Job Postings in the local newspaper and in publications of the Boston Society of Civil Engineers. Similarly the General Construction Inspector (GCI) and Engineering Aide (EA) positions, the entry-level technical positions, job postings are placed in the local newspaper. However, it was noted that the actual postings of these positions have been less frequent than the professional entry-level construction series positions. • MHD's current activities in recruiting construction and materials staff primarily include MHD District or Boston Office personnel attending local college and high school job fairs. It was noted during the Team's review of the District offices, that two of district offices have not attended any job fairs in the last several years and that the Boston Office personnel have attended job fairs in place of District Four personnel. However, it must be noted that due to MHD's out of state travel restrictions, attendance to these job fairs are restricted to locations primarily within their district boundaries. In general no follow up is done with the potential engineer employees, since rarely have there been CE I positions allocated to be hired in the last several years. In cases where interested CE I candidates have applied, interviewed, and been recommended for a position with MHD it has been noted that approvals to hire the new engineers are not given in a timely manner. The Team noted that in some cases an approval to hire an engineer took up to one year to be Interim Final Report - July 3, 2003 80 Process Review of MassHighway Construction & Materials Staffing made; meanwhile, the best qualified candidates normally would accept a position elsewhere. A process of recruitment of construction technical positions is basically nonexistent with MHD. It is suggested by the Team that a minimum amount of activities should be budgeted for and conducted to attract qualified technical employees to MHD. These activities could include inviting high school students out to a construction site and explaining the processes involved in highway construction and duties of a MHD construction employee. 7.3D Programs for Developing Interest in Construction & Materials Careers (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Example programs include: o Associated General Contractors (AGC) "Build Up!" program o AASHTO TRAC program o Construction Career Days (CCD) program supported by FHWA, State Transportation Agencies, and Industry. Interim Final Report - July 3, 2003 8 1 Process Review of MassHighway Construction & Materials Staffing Issue No. 8 - Process to Retain Qualified Personnel Issue No. 8 Findings: 8.1 F The Department has had great difficulty retaining qualified construction and materials personnel. Issue No. 8 Recommendations: 8.1 R MassHighway must provide benefits and incentives to retain qualified construction and materials personnel. Specifically, pay scales must be evaluated and increased to become more competitive with the private sector. 8.2R Existing vacancies should be filled on a timely basis and promotions should be provided where warranted. An internal rotational training program for all new hires (i.e. ETP and TTP) is also recommended to expose these employees to potential career path opportunities and to improve technical and management skills. 8.3R Professional development opportunities should also be supported and funded, including out of state attendance at professional conferences and workshops (e.g. AASHTO, FHWA, Others). All of these items are necessary to maintain a highly professional and attractive organization. Interim Final Report - July 3, 2003 82 Process Review of MassHighway Construction & Materials Staffing Issue No. 8 Discussion: 8.1 D Issues Affecting the Ability to Retain Qualified Personnel (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS o Negative Department image o Payscales o Resources (Computers, Equipment, Facilities) o Lack of internal rotational training program o Professional development o Out of State attendance at professional Conferences • Retention of qualified construction and materials personnel is difficult due to salaries that are not competitive with private industry, lack of promotional opportunities, and lack of support for professional development activities. • The ability to maintain a well-qualified workforce is affected by the inability of construction and materials personnel to maintain professional development through attendance at regional and national conferences/workshops and similar venues for technology transfer. • Even though there has been success in maintaining the requirements of some of the various TO's the issue of the overall age of the workforce is a concern. Approximately 73% of the workforce over the age of 40 and less than 6% is under the age of 30. Historically construction and materials personnel have worked their way up through the ranks and along the way gained the knowledge and experience required to take on more responsibility. At the same time there had been experienced employees to train them and teach them MassHighway's procedures. With the workforce spread thin to cover all of the projects the opportunity to train and guide personnel is missed. 8.2D Payscales and Incentives to Retain Qualified Personnel (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Present recommended solutions to improve retention of qualified staff • Pay scales must be evaluated and increased to become more competitive with the private sector and similar Agencies. Interim Final Report - July 3, 2003 83 Process Review of MassHighway Construction & Materials Staffing • The importance of workforce retention shouldn't be overlook. The implementation of compensation incentives for improved performance and other techniques to empower and motivate staff are essential for maintaining a productive organization. • The importance of workforce retention, as well as civil service and union considerations has to be reviewed. The opportunities for better wages and benefits in the private sector further exacerbated the current staffing situation. The ability to provide compensation based incentives for improved performance was absent and is among the most importance factor for staff retention. MassHighway will need to regain the historic appeal of State Highway Agency as a stable working environment. 8.2R Training and Promotional Opportunities (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Existing vacancies should be filled on a timely basis. • An internal rotational training program for all new hires (i.e. ETP and TTP) is recommended to expose these employees to potential career path opportunities and to improve technical and management skills. • District lost good personnel (with PE's) because of lack of promotion opportunity (12 steps within each grade - step evaluation each year). • Promotions to higher grade levels should be linked to further training and experience beyond the ETP and TTP. They must be provided on a timely basis. 8.3R Professional Development Opportunities (NOTE - THIS SECTION INCOMPLETE - TO BE DEVELOPED) KEY POINTS • Professional development opportunities should be supported and funded, including out of state attendance at professional conferences and workshops (e.g. AASHTO, FHWA, Others). All of these items are necessary to maintain a highly professional and attractive organization. Consideration must be given to the ability to maintain a well-qualified workforce. Engineers and Engineering Technicians need to maintain a level of professional development through attendance at regional and national conferences/workshops and similar venues for technology transfer. Currently MassHighway has limited in-house training during the winter months for construction and materials personnel. However, engineers are unable to attend conferences/seminars due to budgetary restraints. Interim Final Report - July 3, 2003 84 Process Review of MassHighway Construction & Materials Staffing REFERENCE INFORMATION • 23CFR635.105 (Adequate supervision and inspection on Federal-aid construction projects) • 23CFR637.205 (Adequate qualified staff to administer Quality Assurance Program and provide Independent Assurance and Acceptance/Verification sampling & testing) • "MHD Construction Staffing Process Review" - FHWA MA Division, December 22, 1994 • Project Staffing Inspection Guidelines - FHWA WV Division, 1999 • 'Testing & Inspection Levels for HMA Overlays" - NCHRP Report 447, 2001 • "Staffing Considerations in Construction Engineering Management" - NCHRP Synthesis of Highway Practice 145 • "Development of a Process To Forecast Construction Staffing Levels" - South Carolina DOT, August 2000 • "Strategies for Coping with Construction Project Staffing Demands" - AASHTO Subcommittee on Construction, Contract Administration Task Force, 1998 • "Massachusetts Highway Department Statewide Road and Bridge Project Listing for Federal Fiscal Years 2001-2006" (Based on STIP) - MassHighway Bureau of Transportation Planning and Development, October 2000 Interim Final Report - July 3, 2003 85 Process Review of MassHighway Construction & Materials Staffing APPENDICES (NOTE - APPENDICES INCOMPLETE - TO BE DEVELOPED) Interim Final Report - July 3, 2003 86