volunteeractionplan-endorsedbymcpem-em25sept2009

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VOLUNTEER ACTION PLAN REFERENCE

GROUP

NATIONAL ACTION PLANFORTHE ATTRACTION, SUPPORT

AND RETENTIONOF

EMERGENCY MANAGEMENT

VOLUNTEERS

Endorsed by the Ministerial Council for Police and Emergency Management

Emergency Management on 25 September 2009


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VOLUNTEER ACTION PLAN REFERENCE GROUP

National Action Plan for the Attraction, Support and Retention of

Emergency Management Volunteers

BACKGROUND...............................................................................................................................................................1

AIM....................................................................................................................................................................................1

DEVELOPMENT AND IMPLEMENTATION........................................................................................................... .1

SUMMARY OF ACTIONS.............................................................................................................................................3

INDIVIDUAL ACTIONS................................................................................................................................................6

TOP PRIORITY....................................................................................................................................................................6

Action 1: Enhance subsidisation of volunteer training, activities and equipment........................................... .......6Action 2: Enhance leadership training to support emergency management volunteers.........................................8

Action 3: Develop alternative learning approaches for emergency management volunteers...............................10Action 4: Enhance national recognition of employer support for emergency management volunteering............12

MEDIUM PRIORITY...........................................................................................................................................................14Action 5: Increase community awareness of the role and value of emergency management volunteers..............14

Action 6: Enhance youth participation in emergency management volunteering.................................................16Action 7: Review grants programs to strengthen focus on volunteer attraction, support and retention.......... ....18

Action 8: Address legal issues that may inhibit the attraction and retention of emergency management

volunteers................................................................................................................................................................19

LOWER PRIORITY.............................................................................................................................................................21

Action 9: Harness the willingness and resources of spontaneous volunteers.......................................................21

Action 10: Promote corporate volunteering in the emergency management sector...................................... .......23Action 11: Improve collection, analysis and dissemination of research and information on emergency

management volunteer issues.................................................................................................................................25


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NATIONAL ACTION PLANFORTHE ATTRACTION, SUPPORTAND RETENTIONOF EMERGENCY MANAGEMENT VOLUNTEERS

BACKGROUND

In Australia today, there are over 500,000 volunteers who play a crucial role in the delivery of

emergency management services across the country. Australias ability to respond to and recover

from emergencies and disasters relies heavily on their contributions. However, socio-economic-

demographic shifts are presenting particular challenges, and opportunities, in the attraction,

support and retention of volunteers into the emergency management sector.

States and Territories have responsibility for emergency management, with the Commonwealth

providing assistance to improve disaster management capability and recovery. Recognising that a

volunteer workforce provides the backbone of emergency management services, their declining

numbers is an issue that cuts across all levels of government and is of national importance.

In March 2008 the Ministerial Council for Police and Emergency Management-EmergencyManagement (MCPEM-EM) identified that action needs to be taken to ensure the future viability

of volunteers working in the areas of emergency service response and recovery.

Making the Difference was commissioned by the Attorney-General's Department (the Department)

to investigate the attraction, support and retention of emergency management volunteers and

provide a report. Dr Judy Esmond was the individual overseeing the project for the consultancy

firm.

At its meeting in December 2008, the Australian Emergency Management Committee (AEMC),

which reports to MCPEM-EM, considered Dr Esmonds report. AEMC agreed that an action plan

be developed using Dr Esmonds report and other relevant material.

In consultation with key stakeholders, Dr Esmond identified five key challenges confronting the

emergency management volunteer sector - time, training, cost, recognition and people. Dr Esmond

proposed a number of options to tackle each of these challenges, some being at the national level,

and others at local and jurisdictional levels.

AIM

The aim of the Volunteer Action Plan is to outline options to enhance the attraction, support and

retention of emergency management volunteers. The Plan aims to only address issues that can be

managed at a national level, leaving the jurisdictions and emergency management organisations

the task of making local or jurisdiction-specific arrangements at their discretion, in the priority

order that is most important to them.

DEVELOPMENTAND IMPLEMENTATION

The Volunteer Action Plan was developed by a Reference Group comprising senior jurisdictional

representatives nominated by AEMC members. In developing the Plan, the Reference Group

considered a range of factors including Dr Esmonds findings, existing volunteer assistancestrategies and other relevant material.

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The Attorney-Generals Department also liaised with the Department of Families, Housing,

Community Services and Indigenous Affairs regarding other national activities being undertaken

in the broader volunteering sphere.

The Plan proposes 11 national actions to enhance volunteer attraction, support and retention.The proposed actions have been prioritised into three categories (top priority, medium priority and

lower priority) according to feedback received during a consultation process with the jurisdictions

and volunteer peak bodies. These actions have been considered by the Reference Group to have

cross-jurisdictional applicability and a national focus. They do not represent endorsement from

individual jurisdictions.

This Volunteer Action Plan represents just one element of the collective effort required to promote

emergency management volunteering throughout Australia. It does not preclude the jurisdictions

from further utilising Dr Esmonds recommendations to develop their own local, regional and

state-wide strategies for the attraction, support and retention of emergency management volunteers

(noting that some of Dr Esmonds recommendations are specifically targeted at this level). TheReference Group agreed too that some actions, such as the implementation of different volunteer

roles and levels of volunteer involvement, would be more effectively pursued at jurisdictional,

organisational or local levels.

The Volunteer Action Plan will be presented to AEMC in September 2009 for further discussion,

consideration and recommendation to MCPEM-EM. Implementation of the proposed actions

contained in the Plan is subject to MCPEM-EM endorsement in November 2009. More detailed

analysis and development of implementation plans will be undertaken for those actions that receive

MCPEM-EM support. A number of the proposed actions also have financial and other resource

implications attached to them. AEMC will need to identify appropriate sources of funding (such as

the Australian Governments new Disaster Resilience Program) to enable these actions to proceed.

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SUMMARYOF ACTIONS

TOP PRIORITY

Action 1: Enhance subsidisation of volunteer training, activities and equipment

Task: Develop a national position regarding subsidisation of training, activities and equipment for

volunteers.

Timing: Short term (up to 6 months).

Resources: In-kind contribution from AEMC working group members to develop position

paper. Subsequent financial implications will depend on final position adopted.

Status: AEMC to determine implementation.

Action 2: Enhance leadership training to support emergency management volunteers

Task: Develop and trial a pilot program to enhance national leadership training for the emergency

management volunteer sector. Report on the effectiveness and benefits of the pilot

program.


Resources: At AEMC discretion. Subsequent financial implications of ongoing leadership

training opportunities will depend on success of pilot program.

Status: AEMC has agreed to progress this action as a national priority project in 2009-10.

Action 3: Develop alternative learning approaches for emergency management

volunteers

Task: Develop and trial a pilot training program using flexible learning approaches and tools,

including eLearning, that will help to ease time pressures and training commitments

on emergency management volunteers. Report on the effectiveness and benefits of

the pilot program and the viability of extending such alternative approaches to the

wider emergency management sector.

Timing: Short to medium term (6-12 months).

Resources: At AEMC discretion. Subsequent financial implications of extending program will

depend on success of initial pilot.


Action 4: Enhance national recognition of employer support for emergency

management volunteering

Task: Develop a national volunteer employer recognition scheme to formally recognise and

reward the support of employers of emergency management volunteers (including

self-employed volunteers).


Resources: At AEMC discretion. Subsequent financial implications associated with the

ongoing operation of the scheme will depend on final agreed model.


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MEDIUM PRIORITY

Action 5: Increase community awareness of the role and value of emergency

management volunteers

Tasks: a) Develop a national communications strategy, including a national marketing campaign,

to raise community awareness about the role and value of emergency management

volunteers;

b) Seek a review of the qualifying criteria for the National Medal to increase equity

and recognition amongst all emergency management volunteers.


Resources: In-kind contribution from AEMC working group members to develop

communications strategy. Subsequent financial implications will depend on

initiatives included in final agreed strategy.


Action 6: Enhance youth participation in emergency management volunteering

Task: Develop a national strategy to enhance youth engagement and participation in the

emergency management volunteer sector.


Resources: At AEMC discretion. Subsequent financial implications of any ongoing youth

development programs will depend on initiatives included in final agreed strategy.


Action 7: Review grants programs to strengthen focus on volunteer attraction,support and retention

Task: Develop a strategy to increase the focus on volunteer attraction, support and retention

within relevant grants programs.


Resources: In-kind contribution from AEMC working group members to undertake this task.


Action 8: Address legal issues that may inhibit the attraction and retention of

emergency management volunteers

Tasks: Undertake a comparative review of insurance and legal protections for emergency

management volunteers in the different jurisdictions with a view to identifying any

legal issues that may inhibit their attraction and retention. Work through AEMC to

improve national consistency in the level of coverage and protection afforded and

alleviate any volunteer concerns in relation to this.


Resources: At AEMC discretion.


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LOWERPRIORITY

Action 9: Harness the willingness and resources of spontaneous volunteers

Task: Develop national guidelines to harness the assistance offered by spontaneous volunteers

into a more regular volunteering commitment.


Resources: At AEMC discretion.


Action 10: Promote corporate volunteering in the emergency management sector

Task: Develop and deliver a national seminar series to promote the opportunities and benefits

offered by corporate volunteering to the emergency management sector. The

seminar series to showcase successful models and partnerships with private industry

that may be applied in emergency management.Timing: Short to medium term (6-12 months)

Resources: In-kind contribution from AEMC working group members to develop and deliver

the seminar series.


Action 11: Improve collection, analysis and dissemination of research and

information on emergency management volunteer issues

Task: Develop a national information portal, clearinghouse or other means of collecting,

analysing and disseminating research and information on emergency management

volunteer issues.Timing: Short term (up to 6 months)

Resources: At AEMC discretion. Subsequent financial implications associated with ongoing

maintenance will depend on final agreed model.


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INDIVIDUAL ACTIONS

TOP PRIORITY

Action 1: Enhance subsidisation of volunteer training, activities and equipment

Background and rationale

Presently, across the emergency services sector, there is an ad-hoc approach to matters relating to

the subsidisation of volunteer training, activities and equipment.

In the past, research in regard to this issue has been undertaken at both National and State levels

and there appears to be an inconsistent approach across (emergency service) agencies in relation to

subsidisation of training and equipment.

This review presents an opportunity to set minimum standards for the provision of training andequipment to volunteers and introduce initiatives relating to subsidies that might encourage more

people to volunteer.

Objective

Recruitment and retention of volunteers is improved by enhancing subsidisation of volunteer

training, activities and equipment.

Measurement of success

Partial or complete subsidisation of mandatory training, activities and equipment incurred by

volunteers during the course of their voluntary activities.

Indicator

Position paper developed relating to subsidisation for volunteers

Partnership Opportunities

Department of Families and Housing, Community Services and Indigenous Affairs

Australian Taxation Office

Australasian Fire and Emergency Service Authorities Council (AFAC)

Australasian Association of Volunteer Fire Brigades Assembly (AAVFBA)

Senator Ursula Stephens, Parliamentary Secretary for Social Inclusion and the Voluntary

Sector, has established a National Compact Joint Taskforce to commence drafting a newcompact between the Australian Government and the voluntary (third sector). It is likely

that this issue will be discussed due to its relevance across the entire voluntary sector.

Supporting Strategies

A payroll tax exemption for employers of volunteers was introduced from 1 July 2007.

Employers in NSW, Victoria and Queensland who have volunteer fire fighters on staff

were given a tax relief under the Harmonised Legislation. The component of the

legislation that applies to employees in voluntary work or emergency relief states Wages

paid or payable to an employee in respect of any period when he or she was taking part inbush fire fighting activities as a volunteerare exempt from payroll tax.

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Some time ago, the NSW Rural Fire Service Association (RFSA) looked at the issue of tax

exemptions for volunteers. The research highlighted the difficulties associated with

providing tax exemptions to individuals as volunteers and subsequently explored the

possibility of employer tax breaks. Given that any outcomes in regard to tax exemptions

would be at the discretion of the Commonwealth, the information was forwarded to the

Australasian Association of Volunteer Fire Brigades Assembly (AAVFBA) as a nationalbody, for their action.

Commonwealth Volunteer Grants Program (FaHCSIA) provides funding for eligible non

profit organisations to support volunteers and encourage volunteering. Eligible parties can

apply for grants for purchasing small equipment and for contributions towards fuel costs

for volunteers incurred as a result of their volunteering work.

Way Forward

Develop a national position paper regarding subsidisation of training, activities and equipment for

volunteers. This paper to be developed in conjunction with, but not limited to, the organisations

listed in Partnership Opportunities.

Timing

Short term (up to 6 months)

Resource Implications

In-kind contribution from AEMC working group members to develop position paper. Subsequent

financial implications will depend on final position adopted.

Expertise required:

Financial management/Accounting/Funding Training

OHS

Tax law

Status

AEMC to determine implementation.

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TOP PRIORITY

Action 2: Enhance leadership training to support emergency management volunteers


As emergency services volunteers strive to save lives, protect property and improve communitysafety and resilience, strong, effective and responsive leadership is required to enable communities

to prosper.

The last few decades has seen a continual growth in public expectations of the efficiency, scale and

speed of post-disaster efforts. Safe and resilient communities need leadership capabilities that

demonstrate initiative, integrity, sound decision-making, confidence and courage. Emergency

services volunteers need to be supported in becoming confidant in taking on leadership roles, and

in extending their leadership capabilities.

Guiding actions

Traditionally, we may think of an individual leader with followers. This kind of leaderestablishes direction and vision; encourages and supports others; is inspiring and motivating; has

passion, enthusiasm and commitment, and can bring people together to make things happen on the

ground.

These personal leadership characteristics are certainly needed in emergency contexts; however

different approaches may include distributed leadership that makes use of the different kinds of

expertise offered by a range of community members.

Leadership training and development approaches would need to consider what best suits particular

communities. Such place-based approaches are locally driven and often produce enduring

outcomes. Approaches range from asset-based community leadership development to individualenabling programs which may include competency based training.

Desirable characteristics of appropriate programs may include the following, based in an

emergency volunteer context : understanding and managing change, leadership and personality

styles; communication; time and stress management; maximising working in groups; team role

preferences; giving feedback that works; strategy and management thinking; negotiating skills; and

giving effective interviews.

Ongoing mentoring and support are essential elements for applying skills in the workplace.

Electronic communities of practice across the regions would further support leadership

development.

Objective

Leaders of emergency volunteer groups are enabled through effective leadership training and

development; and are supported by emergency management organisations.


Improved effectiveness of emergency volunteer groups through stronger leadership.

Indicator

Pilot program on enhanced national leadership training is developed, trialled and assessed.

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Technical and Further Education Institutions

Emergency Management Australia Institute

NSW Centre for Volunteering

Local Government Associations

AFAC Volunteer Leaders Program

Way Forward

Develop and trial a pilot program to enhance national leadership training for the emergency

management volunteer sector. Report on the effectiveness and benefits of the pilot program. This

paper to be developed in conjunction with, but not limited to, the organisations listed in

Partnership Opportunities.

Timing


As public expectations for improved response and recovery efforts continue to rise, actions to

support strong emergency services leadership training and development are becoming of prime

urgency.


At AEMC discretion. Subsequent financial implications of ongoing leadership training

opportunities will depend on success of pilot program.

Unless central or regional funding and management was available to support leadership training

and development programs, resource implications would directly impact at the local level through

the volunteer organisation itself or possibly with joined-up local government organisations. Stagedapproaches or initial pilot programs with seed funding may initiate further leadership training and

development.

Status

AEMC has agreed to progress this action as a national priority project in 2009-10.

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TOP PRIORITY

Action 3: Develop alternative learning approaches for emergency management

volunteers


The issue of time, and more specifically a lack of it, is emerging as a major challenge for

volunteering organisations. At a time when the literature is reporting a lack of time as a potential

detractor to current and potential volunteers it is also reporting an increase in training demands,

especially for emergency management volunteers.

This is of particular concern for those organisations relying on traditionalist based education

models for example exclusively face to face training models: put simply the greater the training

demand the greater the required time commitment.

Of similar concern is the capacity of volunteer organisations to attract and retain younger

volunteers. With an ageing population, organisations need to ensure that its strategies, including

training strategies are attractive to a younger demographic.

Organising and exploiting flexible approaches to learning, including the use of eLearning and

other workplace pedagogies to supplement traditional models would serve to address both of the

issues above by providing volunteers and the parent volunteer organisation with engaging,

relevant, quality, time-effective, authentic and situated learning experiences.

Objective

Emergency management organisations implement learning and development models that takeadvantage of flexible approaches to learning, including eLearning.


Improved utilisation of flexible approaches to learning, including eLearning.

Indicator

Pilot program developed to trial and report on the efficacy of alternative learning approaches in the

emergency management sector.


The partnership opportunities include both technology and content based elements:

Technology based partnerships could be formed between Information Communication

Technology (ICT) based organisations or corporations who have experience in the

technology solutions and applications, including hardware, software and hosting required

to develop and deliver eLearning, as well as government departments that are furthering

training options.

Partnerships with broadcast media organisations familiar with audio visual products or

other emergency management or volunteer based organisations well advanced in an

eLearning endeavour may also provide partnership benefits.

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In addition to technology elements, partnerships with other like organisations, state

emergency management agencies, public and private training providers and member

organisations that deliver similar learning outcomes and learning content would be

beneficial from an information and product sharing perspective.

Way ForwardDevelop and trial a pilot training program using flexible learning approaches and tools, including

eLearning, that will help to ease time pressures and training commitments on emergency

management volunteers. Report on the effectiveness and benefits of the pilot program and the

viability of extending such alternative approaches to the wider emergency management sector.

This work to be undertaken in conjunction with, but not limited to, the organisations listed in


Timing

Short to medium term (6-12 months)

Whilst dependant upon the resources provided and the contribution of partnerships established tosupport the PRIORITY ACTION area, a majority of the outlined actions could be carried out in the

short to medium term.

A long term, or greater than 12 months time period, would be required for the review and

refinement of chosen systems and more broadly the flexible learning framework as a whole.


At AEMC discretion. Subsequent financial implications of extending program will depend on

success of initial pilot.

Human

Flexible learning project group with expertise or consulting access to

expertise in:

Vocational Education and Training

eLearning Support

Project Support

Volunteerism

Technical eLearning development

ICT systems

Physical

eLearning suite or eLearning test environment or access to one with required

technology systems and products.

Project equipment and project group infrastructure.

FinancialSufficient financial resources to support the project group, technical infrastructure

requirements, and any outsourced development as determined via the business model.

Status


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TOP PRIORITY

Action 4: Enhance national recognition of employer support for emergency

management volunteering


A critical factor in regard to the retention of volunteers is to recognise and acknowledge the

support provided by their employers (including self employed volunteers) who allow the release of

personnel to attend incidents and or training during normal work time. This includes those

employers who support emergency services volunteering by making available resources to be

utilised during incidents (eg loan of machinery).

Research revealed that there is no formal national volunteer employer recognition scheme to

address this issue. Many employers are currently contributing significant amounts of direct and

indirect time and resources to emergency services volunteering. By formally rewarding theseemployers (including self employed volunteers) it is considered that volunteer recruitment and

retention will be enhanced.

The development of an accredited national volunteer employer recognition program, which could

be utilised throughout Australia by all emergency management agencies, would address this issue

and boost volunteering throughout Australia. Recognising employer contributions also has links to

payroll tax exemption (Action 1).

Objective

Formally recognise the contribution made by employers of emergency service volunteers

(including those self employed volunteers) to their respective communities in times of crisis


By formally recognising and rewarding employers (and self employed volunteers) it is considered

that a stronger community and industry support will result in an increase in retention of volunteer

numbers.

Indicator

Development of a national volunteer employer recognition scheme.


Relevant Commonwealth and State Government agencies

Volunteer peak bodies

Way Forward

Develop a national volunteer employer recognition scheme to formally recognise and reward the

support of employers of emergency management volunteers (including self-employed volunteers).

This scheme to be developed in conjunction with, but not limited to, the organisations listed in


Timing


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At AEMC discretion. Subsequent financial implications associated with the ongoing operation of

the scheme will depend on final agreed model.

Funding will be required as part of the licensing requirements of the accreditation of a national

volunteer employer recognition program. Other corporate costs including human and informationresources will need to be assessed.

Status


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MEDIUM PRIORITY

Action 5: Increase community awareness of the role and value of emergency

management volunteers


Community awareness of emergency management volunteering needs continual reinforcement to

ensure all Australian communities have a clear understanding of the role emergency management

volunteers provide.

Research has shown that many Australian residents hold the view that emergency management

personnel are paid employees. Those who understand that the emergency services are being

undertaken on a voluntary basis often do not realise that joining opportunities exist and that the

necessary training is provided to allow inexperienced volunteers to undertake a wide range of

volunteer roles.

A National Marketing Campaign specifically for emergency management volunteering would be a

valuable initiative in regard to raising community awareness and receiving benefits of increased

volunteer membership. The declaration of a National Emergency Management Volunteer Week,

along similar lines as National Volunteer Week, focussing on emergency management to celebrate,

acknowledge and recognise volunteers within our communities would be a valuable strategy.

A review of the National Medal Regulations to allow more volunteers to qualify for this award

(currently those who are involved solely in radio communication, administration, catering and

other critical support roles do not qualify for National Medals as they do not perform the primary

function). This is administered differently between Australian States and even within States. An`to create an Australian Award or Medal with criterion achievable by all roles of emergency

management volunteers, subject to length of service etc.

Objective

To increase awareness by the Australian community of the role and responsibilities of emergency

management volunteering.


Better informed Australian community and increased participation in emergency management

volunteering.

Indicator

A national communications strategy is developed to raise community awareness about the role and

value of emergency management volunteers.


Australian Emergency Management Volunteer Forum

Australasian Fire and Emergency Services Authorities Council


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Way Forward

a) Develop a national communications strategy, including a national marketing campaign, to raise

community awareness about the role and value of emergency management volunteers;

b) Seek a review of the qualifying criteria for the National Medal to increase equity and

recognition amongst all emergency management volunteers.

These actions to be undertaken in conjunction with, but not limited to, the organisations listed inPartnership Opportunities.

Timing



In-kind contribution from AEMC working group members to develop communications strategy.

Subsequent financial implications will depend upon initiatives included in final agreed strategy.

Status


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MEDIUM PRIORITY

Action 6: Enhance youth participation in emergency management volunteering


Youth1 are engaging in volunteering at much higher rates than before. Young people are

volunteering in ways that are different to the traditional volunteer, and have different

expectations of what they will take out of volunteering.

According to the ABS statistics (2000), the biggest growth population in volunteering was young

people. There was an increase in participating 18-24 year olds from 16.6% to 26.8% between

1995 and 20002.

Organisations involved in emergency management can tend to be inflexible in their structures,

processes and support for volunteers. This can pose barriers to the engagement and involvementof young people in emergency management.

Research published in early 2000 indicates that young people are looking for flexible volunteering

opportunities.3 The findings were presented as FLEXIVOL, which serves as an acronym for the

most important elements:

Flexibility

Legitimacy

Ease of Access

Xperience

IncentiveVariety

Organisation

Laughs

Emergency management organisations would benefit from a greater understanding of what needs

to be done to offer young people better opportunities for engagement.

Objective

Emergency management organisations have an improved practical understanding of how to

engage and retain young volunteers which can be applied across all jurisdictions.


Enhanced youth participation in emergency management volunteering.

Indicator

National youth engagement strategy developed. .

1 http://www.un.org/esa/socdev/unyin/qanda.htm#1 The UN definition of youth is 15 24.2 Source: Involving Young People in Volunteering Information Sheet. Volunteering Australia, 2003. (Note: ABS do

not collect information about people under 18 years of age.)3 http://www.ivr.org.uk/researchbulletins/bulletins/what-young-people-want-from-volunteering-.htm(accessed 11

June 2009)

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http://www.un.org/esa/socdev/unyin/qanda.htm#1http://www.ivr.org.uk/researchbulletins/bulletins/what-young-people-want-from-volunteering-.htmhttp://www.ivr.org.uk/researchbulletins/bulletins/what-young-people-want-from-volunteering-.htmhttp://www.un.org/esa/socdev/unyin/qanda.htm#1http://www.ivr.org.uk/researchbulletins/bulletins/what-young-people-want-from-volunteering-.htm


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Universities

Bushfire Cooperative Research Centre

Youth advisory bodies (to ensure input from young people)

Relevant Commonwealth and State Government Departments

Way Forward

Develop a national strategy to enhance youth engagement and participation in the emergency

management volunteer sector. This work to be undertaken in conjunction with, but not limited to,

the organisations listed in Partnership Opportunities.

Timing

Short to medium term (6-12 months).


At AEMC discretion. Subsequent financial implications of any ongoing youth developmentprograms will depend on initiatives included in final agreed strategy.

Status


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MEDIUM PRIORITY

Action 7: Review grants programs to strengthen focus on volunteer attraction,

support and retention


Some grants programs that aim to benefit emergency management volunteers have included in

their criteria that funding must attract, support and retain emergency management volunteers.

Grants programs that support emergency management volunteers are available from a variety of

sources, including Commonwealth and State Governments. Each grants program sets its own

criteria and has its own focus areas based on the brief of the source of funding.

The rationale of this action is to strengthen the eligibility criteria and the focus areas of grants

programs to concentrate on attracting, supporting and retaining emergency managementvolunteers.

Objective

Grants programs have an established criteria to promote the recruitment, retention and support ofemergency management volunteers.


All relevant grants programs are identified and guidelines reviewed to strengthen the focus on

volunteer attraction, support and retention.

IndicatorNumber of grants programs that include criteria to promote volunteers is increased.


Relevant Commonwealth and State Government Departments.

Funding bodies.

Way Forward

Develop a strategy to increase the focus on volunteer attraction, support and retention within

relevant grants programs. This work to be undertaken in conjunction with, but not limited to, the

organisations listed in Partnership Opportunities.

Timing



In-kind contribution from AEMC working group members to undertake this task.

Status


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MEDIUM PRIORITY

Action 8: Address legal issues that may inhibit the attraction and retention of

emergency management volunteers


The Bushfire CRC in their report Volunteer Recruitment and Retention (2004), state that

anecdotal evidence suggests that volunteers are becoming increasingly concerned about the

prospect of some type of legal action being taken against them, as individuals, as a result of their

volunteer activities. A number of other academics as well as peak volunteer organisations support

this position and experience tells us that this issue will become more and more relevant in a society

that is becoming increasingly litigious. It is reasonable to conclude that this will inhibit the

attraction and retention of volunteers into the future.

At present, many emergency service organisations have their own legislation that offers some sortof protection from liability to its volunteers. Each State also has its own legislation that protects

volunteers from personal civil liability in respect to an act or omission done or made by a volunteer

in good faith when doing community work (see below):

NSW Civil Liability Act 2002

ACT Civil Wrongs Act 2002

NT Personal Injuries (Liabilities and Damages) Act

SA Volunteer Protection Act 2001

TAS Civil Liability Act 2002

VIC Wrongs and Other Acts (Public Liability Insurance Reform) Act 2002

WA Volunteers (Protection from Liability) Act 2002

QLD Civil Liability Act 2003

Notwithstanding, insurance and liability issues are complex and confusing. There is a need to, at

the very least, establish some consistency amongst the emergency services sector in regard to the

insurance and liability provisions that are extended to volunteers as well as simplify the

information available to stakeholders.

Furthermore, at present the onus is on the volunteer to prove that they acted in good faith if legal

action is taken against them (as opposed to the litigant proving a lack of good faith).

Objective

A more consistent and simplified approach to insurance and liability provisions extended toemergency service volunteers; with a view to lessening the uncertainty for volunteers on issues

relating to coverage and protection.


A greater consistency amongst the emergency management sector in relation to volunteer

insurance and liability provisions.

Indicator

Comparative review of insurance and liability protection provisions relating to volunteersundertaken.

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Australasian Fire and Emergency Service Authorities Council (AFAC) are currently

undertaking research in relation to insurance and liability issues, including acting in good

faith and onus of proof.

NSW are undertaking a review of the State Emergency and Rescue Management Act they

are also looking at this issue.

Insurance and liability issues / complexities are not exclusive to the emergency services

sector. NGOs, state and national peak volunteer organisations may have already

established some principles in this regard or conducted some research.

Senator Ursula Stephens, Parliamentary Secretary for Social Inclusion and the Voluntary

Sector, has established a National Compact Joint Taskforce to commence drafting a new

compact between the Australian Government and the voluntary (third sector). Thetaskforce comprises of 18 members from non-profit organisations, Commonwealth

Government agencies, local government and the Australian Council of Trade Unions. The

role of the taskforce is to develop a framework for the compact containing key priorities

and principles for the relationship between Government and non profit organisations. It is

probable that this Taskforce will look at issues relating to volunteer insurance and liability

provisions.

Way Forward

Undertake a comparative review of insurance and legal protections for emergency management

volunteers in the different jurisdictions with a view to identifying any legal issues that may inhibit

their attraction and retention. Work through AEMC to improve national consistency in the level ofcoverage and protection afforded and alleviate any volunteer concerns in relation to this.

This work to be undertaken in conjunction with, but not limited to, the organisations listed in


Timing



At AEMC discretion.

Due to the complexities related to insurances and liabilities, there will be a requirement for legalexpertise/resources in order to deliver on this action.

Status


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LOWERPRIORITY

Action 9: Harness the willingness and resources of spontaneous volunteers


Potential volunteers are now less likely to have the time and inclination to make a regular, ongoing

commitment to a volunteering organisation. For this reason, when disaster strikes, organisations

may find themselves short of trained, accredited personnel. However, it is a well-established

phenomenon that people converge towards disaster scenes, often wanting to assist with response

and recovery. These people have been termed spontaneous or emergent volunteers, and they can

fill skills and personnel gaps within the responding organisations.

If not properly managed, spontaneous volunteers can expose themselves and others to significant

risk. The public will almost always be first responders to a disaster site, and may be resistant to

being displaced by emergency services organisations. Furthermore, there is a tendency byprofessional responders to view these volunteers as a crowd control issue rather than a resource.

Non-management of spontaneous volunteers is especially problematic in events such as natural

disasters where it is impossible to enforce a perimeter around the affected area. If turned away,

these people may develop their own ways of helping, which may endanger themselves and others,

and interfere with the coordinated rescue/recovery efforts. It is therefore important that

spontaneous volunteers are assimilated into a responding organisation for the purposes of

coordination, workplace health and safety, and legal liability.

However, assimilating spontaneous volunteers also poses considerable logistical difficulty. Such

people need to be screened, processed, briefed, credentialed and deployed to appropriate volunteer

roles. Most emergency services organisations do not have a plan in place to guide this process,and considerable energy can be wasted at the disaster site establishing ad hoc arrangements. It is

especially difficult where personnel are needed to perform roles such as first aid or operation of

heavy machinery to ensure that qualifications are checked and unqualified people are not tasked

with these roles. Provision of appropriate supervision of volunteers can also be challenging.

Consideration should therefore be given to developing national guidelines to harness the

willingness and resources of spontaneous volunteers.

Objective

Emergency management organisations develop collaborative, whole-of-sector arrangements for

spontaneous emergency services volunteers to effectively utilise this valuable resource.


Improved utilisation and management of spontaneous volunteers in the event of a disaster

Indicator

Numbers of volunteers increased to effectively manage disaster responses


The Australian Red Cross and other not-for-profit organisations involved in

volunteering and/or rescue and recovery.

The Department of Families, Housing, Community Services and Indigenous

Affairs, which has convened a Managing Spontaneous Volunteers Working Group.

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State Government agencies involved in disaster response and recovery.

Volunteering Australia and state peak volunteering bodies.

The New Zealand Ministry of Civil Defence & Emergency Management has

developed a best practice guide (BPG3/06) which could assist in the development

of guidelines for Australian emergency management organisations.

Way Forward

Develop national guidelines to harness the resources of spontaneous volunteers. Building on work

currently being undertaken by the Department of Families, Housing, Community Services and

Indigenous Affairs in relation to the management of spontaneous volunteers, this project would

explore the next step of seeking to harness the assistance offered by such volunteers into a more

regular volunteering commitment. This work to be undertaken in conjunction with, but not limited

to, the organisations listed in Partnership Opportunities.

Timing


Long term and ongoing: continuous assessment and improvement of the effectiveness of the

spontaneous volunteer guidelines


At AEMC discretion.

Status


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LOWERPRIORITY

Action 10: Promote corporate volunteering in the emergency management sector


Research has identified the extent to which volunteering impinges upon work commitments, with

volunteers withdrawing their services because of work demands, and potential volunteers lacking

personal time to commit to additional unpaid activities. While some employers are prepared to

release staff in work hours for voluntary activities in the emergency services, this tends to occur as

individually negotiated ad hoc arrangements.

This approach to the volunteer/work nexus differs markedly from a planned, coordinated and

strategic approach where a business alliance between the employer and the voluntary service is

developed.

Within the corporate environment today, traditional forms of philanthropy are giving way to

strategic involvement in the funding, design and implementation of community-based programs,

often through the skills and time that their staff can volunteer through formal programs. Models of

corporate volunteering have been developed that include loaning personnel to prepare business

plans, designing promotional material, implementing accounting and auditing procedures,

identifying training needs, designing and undertaking evaluations, as well as direct hands on

work.

While it is uncertain as to the level of corporate volunteer programs that currently partner with

emergency management services, the development of such programs has the potential to create

significant future growth and provide win-win scenarios for both the corporations and thevolunteer emergency management services. Skill-based volunteering allows employees to transfer

their professional skills in broader ways than direct emergency responding, and emergency

services benefit from the application of business methods and increased business acumen.

An opportunity for emergency management services to be on the front foot with corporate

volunteering has presented itself through the National Employment Standards which take effect

from 1 January 2010. These Standards allow employees to be absent from work to engage in

prescribed community activities such as jury service and emergency service duties. By giving

emergency services as an example, their visibility for volunteering is increased. It is timely

therefore for emergency management services to develop partnerships with businesses for

sustainable and mutually beneficial corporate volunteer programs.

Objective

Increased engagement by the corporate sector in emergency management volunteering.


Partnerships are developed with businesses for sustainable and mutually beneficial corporate

volunteer programs.

Indicator

Development of a series of national seminars to promote corporate volunteering in the emergency

management sector.

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Relevant Commonwealth and State Government Agencies


Way Forward

Develop and deliver a national seminar series to promote the opportunities and benefits offered by

corporate volunteering to the emergency management sector. The seminar series to showcase

successful models and partnerships with private industry that may be applied in emergency

management. This work to be undertaken in conjunction with, but not limited to, the organisations

listed in Partnership Opportunities.

Timing



In-kind contribution from AEMC working group members to develop and deliver the seminar

series. Associated event management costs.

Status


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LOWERPRIORITY

Action 11: Improve collection, analysis and dissemination of research and

information on emergency management volunteer issues


In recent years, research into the needs, interests and motivations of emergency management

volunteers has grown exponentially. Research has been commissioned and undertaken at local,

state and national levels in an ad hoc manner.

When it comes to managing volunteers and understanding issues being faced by emergency

management volunteers, emergency management organisations can often make policy and

organisational decisions based on little more than anecdotal evidence. Decision making would be

more effective if based on issues that are well researched with the research easily accessible to all

those wishing to access it.

Potential exists for gaining a national picture of key volunteer issues, such as why people join, stay

and leave, rather than ad hoc research being carried out in particular jurisdictions.

At present, the Bushfire Cooperative Research Centre (BCRC) Project D3, Volunteerism acts as a

national centre for research into factors affecting the sustainability of volunteer fire-fighters. The

CRC Volunteerism Project, based at La Trobe University, has been at arms length from the

political forces perceived to affect volunteer fire agencies. The relative independence and

scientific discipline of the University context has facilitated more potent research while

minimising political damage to the fire agencies.

The partnership of the agencies through the CRC has maintained the relevance of the research and

fostered national collaboration among the agencies. The CRC Volunteerism project has reported

at three levels: (1) in reports prepared for agency management; (2) in papers for the relevant

scientific communities; and (3) with accessible summary reports for general agency personnel. A

research team for all emergency management volunteers, based on the Bushfire Cooperative

Research Centre model, could assist agencies to maximise their research returns through sustained

scientific rigour and national collaboration. The team could build on the library of reports and

scientific publications already created by the BCRC Volunteerism project over the past 5 years.

The Emergency Management Australia Institute (EMAI) delivers an extensive library service and

consideration could be given to using this as a means of dissemination of information on volunteerissues.

Objective

Emergency management organisations have access to research and other relevant information on

volunteering issues, particularly as they impact on the emergency management sector.


Improved access to relevant research and information leading to improved policy development and

best practice approaches in the emergency management sector.

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Indicator

Development of a national means of collecting, analysing and disseminating research and

information on emergency management volunteer issues.


Bushfire Cooperative Research Centre Emergency Management Australia Institute

Universities

Relevant Government Departments

Not-for-Profit Organisations involved in emergency management

Way Forward

Develop a national information portal, clearinghouse or other means of collecting, analysing and

disseminating research and information on emergency management volunteer issues. This work to

be undertaken in conjunction with, but not limited to, the organisations listed in Partnership

Opportunities.

Timing



At AEMC discretion. Subsequent financial implications associated with ongoing maintenance will

depend on final agreed model.

Status


volunteeractionplan-endorsedbymcpem-em25sept2009

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