# Session No. 19

### Course Title: Disaster Response Operations and Management

### 

### Session Title: Volunteer Management

## Time: 50 minutes

**Objectives:**

1.  **Provide background information about spontaneous volunteers.**

2.  **Illustrate the benefits of volunteering for disaster response.**

3.  **Identify the potential problems volunteers may create for first
    responders and emergency managers.**

4.  **Point out the steps that can be taken to overcome the challenges
    presented by volunteers.**

**Scope:**

**During this session, the professor provides background information
about volunteers, including a discussion of who they are and why they
become involved in disaster response and recovery operations. After
illustrating the contributions of volunteers for disaster victims, first
responders and emergency managers, the sessions identifies the problems
that are unintentionally created by well-meaning individuals and groups.
The session concludes by highlighting the steps that can be taken to
overcome the management challenges resulting from the incorporation of
volunteers in disaster response operations.**

**Session Requirements:**

1.  Instructor Reading:

> Britton, Neil R., Carmen C. Moran, and Benjamin Correy. 1994. "Stress
> Coping and Emergency Disaster Volunteers: A Discussion of Some
> Relevant Factors." Pp. 128-144 in Dynes, Russell R. and Kathleen J.
> Tierney (eds.) *Disasters, Collective Behavior, and Social
> Organization*. University of Delaware Press: Newark, Delaware.
>
> FEMA. 2003. *Proceedings, Volunteers in Homeland Security Conference*.
> November 2003. Austin, Tx.
>
> FEMA. 1999. *The Role of Voluntary Agencies in Emergency Management*.
> IS-288. Federal Emergency Management Agency: Emmitsburg, Md.
>
> FEMA. 1999. *When Disaster Strikes . . . Donated Goods and Volunteers
> May Be Needed . . . How You Can Help*. Washington, D.C.
>
> Florida Commission on Community Service. (undated). *Unaffiliated
> Volunteers in Response and Recovery*. Florida Commission on Community
> Service: Tallahassee, Fl.
>
> Kendra, James M. and Tricia Wachtendorf. 2003. "Reconsidering
> Convergence and Converger Legitimacy in Response to the World Trade
> Center Disaster." Pp. 97-122 in Clarke, Lee (ed.) *Terrorism and
> Disaster: New Threats, New Ideas*. Research in Social Problems and
> Public Policy. 11. Elsevier: New York.
>
> Lowe, Seana and Alice Fothergil. 2003. "A Need to Help: Emergent
> Volunteer Behavior after September 11^th^." Pp. 293-314 in Monday,
> Jacqueline (ed.) *Beyond September 11^th^: An Account of Post-Disaster
> Research*. Program on Environment and Behavior Special Publication
> #39. Institute of Behavioral Science, Natural Hazards Research and
> Applications Information Center, University of Colorado: Boulder, Co.
>
> National Voluntary Organizations Active in Disaster. 2002. NVOAD
> Newsletter. Summer. Burtonsville, Md.
>
> Points of Light Foundation & Volunteer Center National Network. 2002.
> *Preventing a Disaster Within the Disaster: The Effective Use and
> Management of Unaffiliated Volunteers*. Points of Light Foundation &
> Volunteer Center National Network: Washington, D.C.
>
> Scanlon, Joseph. 1999. "Emergent Groups in Established Frameworks:
> Ottawa Carleton's Response to the 1998 Ice Disaster." *Journal of
> Contingencies and Crisis Management* 7 (1): 30-37.
>
> Stallings, Robert A. and E.L. Quarantelli. 1985. "Emergent Citizen
> Groups and Emergency Management." *Public Administration Review*
> (Special Issue): 93-100.
>
> Volunteer Management Committee. 2003. *Managing Unaffiliated
> Volunteers: Concepts of Operations*. National Voluntary Organizations
> Active in Disasters (NVOAD): Alexandria, Va.
>
> Volunteer Management Committee. (undated). Managing Spontaneous
> Volunteers in Times of Disaster: The Synergy of Structure and Good
> Intentions. Points of Light Foundation & Volunteer Center National
> Network: Washington, D.C.
>
> Wagman, David. 2005. "Well-intentioned, Sometimes Misguided:
> Spontaneous, or Unaffiliated, Volunteers Have Big Hearts, but Without
> Proper Planning and Guidance, They can Impeded, Not Help, Disaster
> Response and Recovery Efforts." *Homeland Protection Professional*
> (January/February): 34-38.

2.  Student Readings:

> Kendra, James M. and Tricia Wachtendorf. 2003. "Reconsidering
> Convergence and Converger Legitimacy in Response to the World Trade
> Center Disaster." Pp. 97-122 in Clarke, Lee (ed.) *Terrorism and
> Disaster: New Threats, New Ideas*. Research in Social Problems and
> Public Policy. 11. Elsevier: New York.
>
> Lowe, Seana and Alice Fothergil. 2003. "A Need to Help: Emergent
> Volunteer Behavior after September 11^th^." Pp. 293-314 in Monday,
> Jacqueline (ed.) *Beyond September 11^th^: An Account of Post-Disaster
> Research*. Program on Environment and Behavior Special Publication
> #39. Institute of Behavioral Science, Natural Hazards Research and
> Applications Information Center, University of Colorado: Boulder, Co.
>
> Wagman, David. 2005. "Well-intentioned, Sometimes Misguided:
> Spontaneous, or Unaffiliated, Volunteers Have Big Hearts, but Without
> Proper Planning and Guidance, They can Impeded, Not Help, Disaster
> Response and Recovery Efforts." *Homeland Protection Professional*
> (January/February): 34-38.

3\. Handouts:

Sample Volunteer Agencies

Common Misconceptions about Voluntary Agencies and Their Disaster Relief
Assistance

Services Provided by Volunteers

Common Problems Volunteers Present to Emergency Managers

Managing Volunteers Effectively

**Supplemental Considerations:**

1\. Because the subject of volunteer management is closely related to
the donations that are received in disaster response operations, the
professor may want to cover both topics in a single session.

2\. The FEMA Independent Study Guide, *The Role of Voluntary Agencies in
Emergency Management*, has history of voluntary agencies and good
examples of voluntary agencies in action. The professor may wish to pay
special attention to this document when preparing for the session.

3\. There are a number of non-profit organizations (besides the National
Voluntary Organizations Active in Disasters) that provide volunteers
when disaster strikes. See
[www.interaction.org](../www.interaction.org%20) for a supplementary
listing of domestic and international voluntary agencies.

4\. The *Unaffiliated Volunteers in Response and Recovery* manual
published by the Florida Commission on Community Service has several
good examples of effective volunteer management in disasters.

5\. Possible guest speakers for this session may include representatives
of the American Red Cross, the Salvation Army, or other involved in
Voluntary Organization Active in Disasters (VOAD) in the community.
Local jurisdictions may also have a designated volunteer coordinator
that could provide valuable information to students enrolled in the
class.

**Objective 19.1 Provide background information about spontaneous
volunteers.**

**Present the following information as a lecture.**

I. When disaster strikes, **ordinary citizens become involved in
response and recovery operations** to assist emergency managers, first
responders and victims.

> A. Convergence and **volunteerism** were **identified** in Samuel H.
> Prince's study of human behavior in the **Halifax explosion** (1917).
>
> 1\. **"Volunteerism is defined as the 'contribution of time without
> coercion or remuneration' for public benefit** (Smith 1994, 244)"
> (Lowe and Fothergill 2003, 294).
>
> B. Such **phenomenon** was **documented** more **extensively** in
> Fritz and Matthewson's 1957 study of various disasters (Kendra and
> Wachtendorf 2003).
>
> C. Today, it is commonly held that **there will be a "mass assault"**
> of people converging at the scene of disaster to assist in the
> response and recovery efforts (Lowe and Fothergill 2003, 293 citing
> Barton 1969).

II\. Some of the people arriving at the scene are often **referred to as
spontaneous or unaffiliated volunteers. They engage in response and
recovery efforts** with no thought of payment **for the benefit of
victims, first responders, emergency managers and the community at
large**.

> A. " . . . **Spontaneous volunteers are those individuals who
> contribute on impulse immediately after a disaster**" (Lowe and
> Fothergill 2003, 294).
>
> B. "**Spontaneous** or **unaffiliated** **volunteers** are
> **individuals** or **groups** **that**:
>
> 1\. **Arrive** **unsolicited** at the scene of a disaster
>
> 2\. **May** or **may** **not** **be** **a** **resident** of the
> affected area
>
> 3\. **May** **or** **may** **not** **possess** **skills** necessary to
> respond to the current disaster
>
> 4\. **Are not associated with** any part of the **existing** emergency
> management response **system**" (Points of Light 2002, 3).
>
> C. **"Convergent, unaffiliated volunteers are those not associated
> with any recognized disaster response agency, but who \[may\] possess
> other training, skills and experience and appear on the scene to offer
> assistance" (**Florida Commission on Community Service \[undated\],
> 4).
>
> D. There are **volunteers** that **have** **affiliation** however.
> Kendra and Wachtendorf indicate:
>
> 1\. **"Not all volunteers were without formal affiliation. Many worked
> with the American Red Cross, perhaps 'the best known example of
> institutional volunteering'** (Tierney et. al. 2001, 112), **the
> Salvation Army, and other expanding** (Dynes 1970) **disaster agencies
> with a long history of incorporating and organizing volunteers. Other
> volunteers were coordinated and deployed by their trade union
> organizations"** (2003, 108).
>
> 2\. Others may be involved with **Adventist Community Services,
> Catholic Charities, Christian Disaster Response, Church of the
> Brethren Disaster Response, Church World Services, Episcopal Church
> Presiding Bishop's Found for World Relief, Friends Disaster Service,
> International Association of Jewish Vocational Services, International
> Relief Friendship Foundation, Lutheran Disaster Response, Mennonite
> Disaster Services, National Organization for Victim Assistance,
> Nazarene Disaster Response, Northwest Medical Teams International, the
> Phoenix Society for Burn Victims, Points of Light Foundation,
> Presbyterian Disaster Assistance, REACT International, Second Harvest
> National Network of Food Banks, Society of St. Vincent De Paul,
> Southern Baptist Disaster Relief, United Methodist Committee on
> Relief, Volunteers in Technical Assistance, Volunteers of America,
> World Vision** (FEMA 1999).

III\. Such volunteers may have **common** **characteristics**, **may
come from diverse areas**, and **may become** involved in all aspects of
post-disaster operations.

> A. Lowe and Fothergill illustrate that "**Social backgrounds of higher
> education and higher income are the most consistent predictors of
> volunteerism, while female gender and higher occupational status also
> have positive relationship to volunteering** (see also Okun 1993).
> **In the area of personality, those with such social orientations as
> empathy and morality are more likely to volunteer, and in the area of
> attitudes, positive feelings toward the group to be served and
> feelings of civic duty have positive impacts"** (2003, 306).
>
> 1\. Wenger has illustrated, however, that **men are also involved in
> volunteer efforts** (1991).
>
> B. After 9/11, **" . . . volunteers arrived not just from elsewhere in
> the city, or New York State, or the very proximate Connecticut or New
> Jersey, but from much more distant areas"** (Kendra and Wachtendort
> 2003, 98).
>
> C. **"Volunteers were conspicuous at all locations of emergency
> response activities. It is important to clarify, though, that not all
> volunteers were civilians: police and firefighters dispatched
> themselves from nearby localities, adjacent states, and (later) from
> across the country dispatched themselves to New York or were requested
> by the City of New York"** (Kendra and Wachtendorf 2003, 108).

IV\. **First responders and emergency managers must be aware of strong
desire on the part of volunteers to assist in the response and recovery
effort. For instance, regarding the 9/11 terrorist attacks scholars
discovered:**

> A. **" . . . 87% of Americans thought it was the 'most tragic event in
> their lifetime'"** (Kendra and Wachtendorf 2003, 98).
>
> B. " . . . Volunteers were **emotionally impacted by the disaster**
> and **personalized the attacks** as members of the community affected,
> which appeared to have contributed to their heightened feelings of
> victimization. Many of them explained that **when they saw the
> destruction they knew that they had to do something -- they needed to
> help**" (Lowe and Fothergill 2003, 298).
>
> C. "We found from the interviews that **the primary motivation for
> volunteering was a compelling need to help in some way**, particularly
> a need to assist victims, and a **desire -- even obsession -- to 'do
> something' in order to contribute something positive and find
> something meaningful in the midst of disaster characterized by cruelty
> and terror"** (Lowe and Fothergill 2003, 298).
>
> D. **Victims** **stated**:
>
> 1\. **"I really do feel lucky that I was able to focus my shock and
> anger and my pain, sadness, and grief, all those other negative
> feelings into something positive. If you can't do that, it just eats
> you up"** (Lowe and Fothergill 2003, 305).
>
> 2\. **"There needs to be something positive that comes out of it and
> the only way it's positive is if I and other people make it
> positive"** (Lowe and Fothergill 2003, 299).
>
> E. Therefore, **volunteering gives ordinary citizens a sense of
> "interconnection, healing, and empowerment"** after a disaster (Lowe
> and Fothergill 2003, 303).

**Objective 19.2 Illustrate the benefits of volunteering for disaster
response.**

**Requirements:**

**Present the following information as a lecture.**

I. There are **significant advantages** of **integrating volunteers**
into disaster response operations.

> A. There are **many functions that need to be performed** after a
> disaster.
>
> 1\. "**Help is often needed** for the following response activities:
>
> a\. **Sorting donated goods** at a donations management warehouse
>
> b\. **Clean-up efforts** that might include debris removal
>
> c\. **Sandbagging** during floods
>
> d\. Support of voluntary agencies in organized **collection drives**,
> based on identified needs" (Points of Light 2002, 15).
>
> 2\. **Research** after the 9/11 terrorist attacks **reveals** that
> volunteers:
>
> a\. **" . . . did a wide variety of tasks: they cheered on the Ground
> Zero workers, gave massages, prepared food, made beds, gave blood,
> works as translators, vacuumed rooms, fed workers, counseled, did
> research, and helped with supplies for the American Red Cross"** (Lowe
> and Fothergill 2003, 300).
>
> b\. **" . . . are feeding people, they are cooking food, they are
> moving food, they are moving the products in and out of warehouses . .
> . They work with the emergency workers, they provide message therapy,
> mental health counseling"** (Lowe and Fothergill 2003, 303).
>
> B. **Volunteers** may have **knowledge** and **skills** that **prove**
> **useful** for response operations.
>
> 1\. **"Convergence may, for example, bring certain abilities that do
> not exist in sufficient quantities in the extant response
> organizations"** (Kendra and Wachtendorf 2003, 98).
>
> 2\. **"Many volunteers had demonstrated relevant skills: for example,
> physicians and nurses, counselors, and other health-care workers
> arrived, as did workers from the construction trades."** (Kendra and
> Wachtendorf 2003, 108).
>
> C. **The Florida Commission on Community Service asserts that
> volunteers also reduce economic burdens for response agencies, assist
> in overcoming logistical barriers to the provision of relief, and
> increase the public perception that needs are being met (**Florida
> Commission on Community Service \[undated\] 7-10).

II\. FEMA has enumerated **other advantages** of including volunteers in
disasters.

> A. **They are: involved in all phases of disasters, first to arrive
> and last to leave, trusted by the public, community based, flexible,
> innovative, resourceful, and complement government services** (FEMA
> 1999, 1.5-1.8)
>
> B. **They can help with advocacy, distribution, case management, child
> care, clean-up and rebuilding, community disaster education, community
> outreach, counseling, damage assessment, debris removal, disaster
> planning, donations management, elder care, emergency repairs,
> emergency assistance, financial assistance, financial planning,
> funeral services, health care, identification, international services,
> massage therapy, mass care, mental health services, mitigation
> planning, mobile feeding, organizational mentoring, pastoral care, pet
> care, radio and communication services, relocation services, resource
> coordination, sanitation services, special needs, technical
> assistance, training, translation services, transportation services,
> volunteer assistance, volunteer services, warehousing** (FEMA 1999,
> 3.5-3.20).

III\. The **Points of Light Foundation** has recognized **additional
"benefits** of Effective Disaster Volunteer Management:

> A. **First responders** can **fulfill their duties** **without** the
> added responsibility of **managing** **volunteers**.
>
> B. Experienced **volunteer coordinators** **can manage volunteers**,
> to ensure meaningful and quality volunteer experiences. As a result,
> **volunteers are more inclined to seek future community service
> opportunities** . . .
>
> C. **Communities** will know how to effectively **engage**
> **citizens** **as** **volunteers** in all phases of disasters.
>
> D. **Communities** can **respond** to and **heal** from disasters
> **more** **effectively** when volunteer efforts are well managed"
> (Points of Light 2002, 4).
>
> E. For these reasons, **"Our society can ill afford to ignore the
> potential capacity of its citizens to help improve conditions in their
> communities, especially in times of disaster"** (Points of Light 2002,
> 3).

**Objective 19.3** **Identify the potential problems volunteers may
create for first responders and emergency managers.**

**Requirements:**

**Present the following information as a lecture.**

I. Although **volunteers can be very helpful** to victims, first
responders, emergency managers and the community as a whole, **they are
not without potential drawbacks**. For instance:

> A. Volunteers may **lack the necessary training or skills**.
>
> 1\. **"These volunteers -- our neighbors and everyday citizens -- are
> eager to respond and contribute to the community's recovery, but
> usually lack the training to help them be effective in these roles."**
> (Points of Light 2002, 3).
>
> 2\. **"Helpers present particular challenges because their desire to
> help is often not matched by their ability to be integrated into the
> response milieu"** (Kendra and Wachtendorf 2003, 109).
>
> 3\. **"Convergence, at its heart, presents a conflict of legitimacy:
> whose motives for converging are most acceptable or laudable, which if
> any convergers can provide the greatest good, and which convergers
> don't belong"** (Kendra and Wachtendorf 2003, 103).
>
> B. The sheer **number** of volunteers **can** **be** **overwhelming**
> **to** **manage**.
>
> 1\. **"For example, after the 1985 Mexico City earthquake, it was
> estimated that 2 million people volunteered in the disaster aftermath,
> performing tasks such as search and rescue, clearing debris, offering
> medical aid, providing shelter and transportation, and serving as
> translators"** (Lowe and Fothergill 2003, 295).
>
> 2\. After 9/11, it was reported: **"According to one Red Cross
> professional 'We've never had this many volunteers at any disaster . .
> . This is the most volunteers we've ever had in the history of the Red
> Cross.' By two and one-half weeks after the disaster, the Red Cross
> had received approximately 22,000 offers of assistance and had
> processed 15, 570 volunteers"** (Lowe and Fothergill 2003, 294).
>
> 3\. **"Convergence typically generates a tension** since it both
> introduces needed resources and **presents additional management
> challenges** **for public officials already occupied with their
> emergency duties"** (Kendra and Wachtendorf 2003, 98).
>
> a\. **"Unaffiliated volunteers often arrive on-site in numbers too
> great to traditional disaster responders -- emergency management,
> disaster relief agency staff, and affiliated volunteers -- to manage
> as they try to meet the immediate needs of communities affected by
> disaster. The challenge, therefore, is reconciling the desire to help
> felt by unaffiliated volunteers with the need of responders to do
> their jobs unencumbered by the responsibility of managing
> volunteers"** (Points of Light 2002, 3).
>
> b\. **"Public officials often find emergence especially onerous during
> the response phase of a disaster, since the appearance of these groups
> can suggest the inadequacy of official response efforts. 'Municipal
> law enforcement in particular, \[tends\] to view volunteer emergency
> as a crowd control problem'** (Kartez and Kelley 1988, 140)" (Kendra
> and Wachtendorf 2003, 108).
>
> C. **Volunteers create additional concerns about safety.**
>
> 1\. **"Man-made disasters introduce unique security concerns** for the
> management of unaffiliated, and therefore, unknown volunteers" (Points
> of Light 2002, 10).
>
> a\. A volunteer **could be a terrorist** or **may not have the skills
> or credentials** he or she claims to have.
>
> 2\. **"In addition, such sites may present threats to the safety of
> professional responders and volunteers. Terrorism disaster scenarios
> may present extraordinary and life-threatening safety issues for
> emergency responders and volunteers, requiring stronger volunteer
> management safeguards for unaffiliated volunteers interested in
> assisting in or near a disaster area"** (Points of Light 2002, 10).
>
> D. **Volunteers** can **become upset** while trying to volunteer.
>
> 1\. Part of this may be **due to a lack of skills** **or a** **less
> urgent need** to utilize them.
>
> a\. **Some were frustrated that they didn't have the skills that were
> needed** (Lowe and Fothergill 2003, 302).
>
> b\. **"Some volunteers were offended that they were not allowed to
> assist"** (Kendra and Wachtendorf 2003, 109).
>
> c\. **"Over time, as the response evolved, volunteers were less and
> less welcome; it may even be possible to mark the shift from response
> to recovery by noting when non-affiliated volunteers were asked to
> leave or were evicted from various sites. A week after the event, some
> officials stated that they didn't 'want volunteers in even if they're
> already here'"** (Kendra and Wachtendorf 2003, 111).
>
> d\. **These** **situations may hurt the image** of those managing the
> disaster **" . . . emergency managers recognized that outright rebuffs
> of volunteers constitute bad public relations"** (Kendra and
> Wachtendorf 2003, 109).
>
> 2\. There are **other reasons** for their frustration however.

a.  **In New York after 9/11, "The spontaneous volunteers in this study
    described frustrations of long lines, uncoordinated leadership,
    disorganized lists, and unclear information about what to do
    immediately after the attacks"** (Lowe and Fothergill 2003, 300).

-   In some cases **volunteers cut in line** or **walked into relief
    centers without authorization** because they didn't want to wait and
    they knew their skills were needed as a translator (Lowe and
    Fothergill 2003, 301).

-   Those not given sufficient direction or supervision may
    "**freelance**."

> b\. "Researchers have found that spontaneous volunteers face many
> challenges in getting involved during a disaster. At the site, **they
> may find long lines, uncoordinated leadership, and vague directions
> and information about what to do. These negative experiences may
> discourage volunteers from serving in the later recovery phase when
> their help may be desperately needed"** (Points of Light 2002, 8).

**Objective 19.4 Point out the steps that can be taken to overcome the
challenges presented by volunteers.**

**Requirements:**

**Present the following information as a lecture.**

I. **Emergency managers** and **first responders** can i**ncrease** the
chances for **successful volunteer management** before disaster by
networking with other organizations.

> A. Be sure to **"identify all potential partners and build cooperative
> relationships with organizations such as: universities, youth groups,
> schools, ethnic associations, neighborhood groups, civic associations,
> foundations, faith-based organizations, corporations/businesses,
> special needs groups, voluntary agencies, senior program, national
> service programs, hospitals, professionals in volunteer
> coordination"** (Points of Light \[undated\] 8).
>
> B. **"Participate in state and local VOADs"** (Points of Light 2002,
> 12).
>
> C. And, **"participate in state and local Citizen Corps Councils"**
> (Points of Light 2002, 12).

II\. While networking with others, **planning** for volunteer management
**should be a high priority**.

> A. **"Recent disaster experiences both large and small have
> demonstrated the need for the early implementation of a disaster
> volunteer management plan**. **Without a plan** to manage volunteer
> resources, **there is**:
>
> 1\. **Confusion** on the part of the public on **how to volunteer**
> appropriately
>
> 2\. **Frustration** on the part of **first responders** regarding
> **how to work with volunteers** while attempting to meet basic human
> needs, and
>
> 3\. **Recognition** on the part of community leaders of **missed
> opportunities** to organize and leverage the surge of spontaneous
> volunteers" (Points of Light 2002, 7).
>
> B. **"Collaborative planning by disaster groups and other
> organizations can help ensure that we avoid creating a 'disaster
> within the disaster'"** (Points of Light 2002, 3).

III\. **Emergency managers should consider** the following measures in
their **planning**:

> A. " . . . **Identify a local lead organization** with the expertise,
> resources, and capacity **to coordinate the unaffiliated volunteers**
> and involve that organization in emergency response planning" (Points
> of Light 2002, 8).
>
> B. "**Develop forms and key documents** **for the VRC \[Volunteer
> Reception Center\] such as: Volunteer Instructions, Disaster Volunteer
> Registration Form with Release of Liability, Safety Orientation
> Checklist, Disaster Volunteer Referral, Role Descriptions, Work Site
> Sign-in/Sign-out Record, VRC Volunteer Sign-in/Sign-out, Coordinating
> Agency Employee Sign-in, Sign-out, Expenses Incurred by Coordinating
> Agency"** (Points of Light \[undated\] 13).
>
> C. **Create "standardized processes, procedures, and forms** for use
> by emergency planners and others to facilitate the timely deployment
> and effective use of volunteers in times of disaster" (Points of Light
> 2002, 9).
>
> D. " . . . **develop a strategy** for unaffiliated volunteers that
> includes **creating a central volunteer registration** area located
> outside the perimeter of the disaster impacted zone when necessary"
> (Points of Light 2002, 9).

IV\. Besides planning, **additional preparedness activities** should
also be undertaken:

> A. "Participate in joint **public education campaign**" (Points of
> Light 2002, 12).
>
> B. "Emergency management planners at all levels in government and in
> non-governmental organizations should **develop and conduct disaster
> volunteer management exercises and drills** as part of their routine
> emergency exercises" (Points of Light 2002, 8).

V. It is possible to successfully **manage volunteers during or after a
disaster**.

> A. **"Responsibility for the on-site coordination of unaffiliated
> volunteers needs to be clearly designated by state and local
> leadership"** (Points of Light 2002, 8).
>
> B. **"Experienced and identifiable volunteer resource managers are
> needed on-site to work with members of the public and to manage
> unaffiliated volunteers"** (Points of Light 2002, 9).
>
> C. **"When collecting information on volunteers, consider tracking the
> following types of data: name, address, phone/fax/e-mail,
> availability, skills (languages, communications, computer, counseling,
> heavy equipment operator, medical, etc.), previous emergency/training
> certification, task preferences (willing to provide animal care,
> animal rescue, child care, clean-up, damage assessment, data entry,
> driving, etc.), geographic area preferences, phase of emergency
> (skills and interests are most suited to use in
> mitigation/preparedness/**
>
> **response/recovery)"** (Points of Light \[undated\] 8).
>
> D. **"Develop streamlined registration, screening, and interviewing
> procedures for unaffiliated volunteers that include: databases that
> catalog needed skills, information about individual volunteers (for
> example: skills, interests, availability, geographic location),
> contact information for voluntary organizations, tasks, roles and time
> commitment requirements for individuals and groups of volunteers,
> approximate number of volunteers needed to perform tasks,
> compatibility of relevant computer systems, back-up plan for power
> failures and portability"** (Volunteer Management Committee 2003, 7).
>
> E. **"There is a need in disasters for a central phone bank that will
> combine with a web-portal to provide the public with access to
> information on volunteer opportunities. This capacity would allow
> volunteer managers to redirect some volunteers to ongoing needs in the
> community"** (Points of Light 2002, 9).
>
> F. **"Ensure the availability of services for volunteers, including
> counseling, operations debriefing, health screening, or mental
> health"** (Points of Light \[undated\], 14).
>
> G. **" . . . develop appropriate security procedures to allow
> unaffiliated volunteers, when advisable, access to designated areas of
> the disaster site"** (Points of Light 2002, 10).
>
> H. **"The lesson . . . is that if they \[first responders and
> emergency managers\] adapt rapidly to changing circumstances and are
> ready to sponsor or include emergent groups in their existing
> structure they can reduce or eliminate conflict"** (Scanlon 1999, 30).
>
> I. **"Recognize and thank volunteers for their service to the
> community"** (Points of Light \[undated\], 15).
>
> J. **"Capture and document important facts, such as the dollar value
> of unaffiliated volunteers, success stories, and special activities.
> Utilize photographs, print and video stories from the media, and
> feedback from organizations"** (Points of Light \[undated\], 15).

VI\. The Volunteer Management Committee of the National Voluntary
Organizations Active in Disaster (NVOAD) has several **related points to
incorporate into the response**:

> A. "**Implement the Unaffiliated Volunteer Management Plan**
>
> 1\. **Activate the Volunteer Coordination Team** **(VCT).** Use
> pre-identified and trained staff to fill key roles. The VCT will
> function within the Emergency Operations Center (EOC) as the primary
> coordination cell for unaffiliated volunteers.
>
> 2\. **Activate the Volunteer Reception Center (VRC)** to serve as the
> coordination point for unaffiliated volunteers, develop partnerships
> with community and responding agencies, identify volunteering
> opportunities, and fill staffing needs. Operational considerations
> include:
>
> a\. **Implement plan to register and place unaffiliated volunteers**.
>
> b\. Implement process to **determine volunteer's skills, interests,
> and ability** to do the assigned work.
>
> c\. **Identify organization's needs and volunteer opportunities**.
> Develop or identify opportunities for volunteer groups, as well as
> individuals. As needed, do targeted recruiting of volunteers to fill
> positions.
>
> d\. **Refer unaffiliated volunteers to appropriate response agencies**
> after initial screening.
>
> e\. **Ensure** that **receiving** **organizations** are **aware**
> **of** their **responsibility** for any additional credentialing or
> identification procedures.
>
> f\. **Provide** **information** on available **medical** and
> **mental** **health** **services** to ensure the wellbeing of all
> workers.
>
> g\. **Provide security** within the VRC and other facilities where
> volunteer management takes place.
>
> h\. **Provide a hazard-free work environment**.
>
> i\. **Evaluate process and outcome by all stakeholders** (VCT members,
> emergency management, recipient agencies, and unaffiliated
> volunteers).
>
> j\. **Recognize** the efforts of **individual volunteers and the
> community**.
>
> B. **Address communications needs**.

1.  **Coordinate with the Public Information Officer** at the Emergency
    Operation Center (EOC).

> 2\. **Utilize pre-developed public messages** about how and where to
> volunteer. Let all segments of the community know what resources are
> needed during the response and recovery phases of disaster.
>
> 3\. **Use a flexible outreach strategy** to maximize media and public
> interest generated by the disaster.
>
> 4\. **Implement the pre-developed media plan**. Ensure that messages
> to the media and public are standardized and consistent.
>
> 5\. **Ensure communication needs are addressed within the Volunteer
> Reception Center (VRC), and at service delivery sites** where
> unaffiliated volunteers are working.
>
> 6\. **Provide ongoing contact with volunteers after they have
> completed their service**, if they remain unaffiliated. Provide
> information on other opportunities, organizations, and the **benefits
> of affiliating before a disaster**.
>
> 7\. **Ensure** all **stakeholders** (such as voluntary organizations,
> community-based groups, and government) **have access to current
> information on volunteer, recruitment and opportunities**. **Utilize
> available technologies, such as websites and listservs**.
>
> 8\. **Activate a dedicated toll-free number**, or use other community
> resources such as 2-1-1.
>
> C. If necessary, **activate state or regional mutual aid agreements to
> support the Volunteer Coordination Team (VCT) or the Volunteer
> Reception Center (VRC)**.
>
> D. **Maintain a database of volunteers with skills for use during the
> recovery phase**. The VCT should promote close coordination with
> long-term recovery groups to identify new or ongoing opportunities.
> Ensure continuity of service to stakeholders and volunteers transition
> from response to recovery is completed" (Volunteer Management
> Committee 2003, 4-6).

**Questions to be asked:**

1.  **Why do people feel compelled to volunteer in a disaster?**

2.  **Are the characteristics of volunteers similar or dissimilar?**

3.  **Are volunteers beneficial or detrimental for disaster response
    operations?**

4.  **Why do volunteers present management challenges to first
    responders and emergency managers?**

5.  **What sorts of problems are created by volunteers and how can they
    be overcome?**

**Sample Volunteer Agencies**

-   Adventist Community Services

-   American Red Cross

-   Catholic Charities

-   Christian Disaster Response

-   Church of the Brethren Disaster Response

-   Church World Services

-   Episcopal Church Presiding Bishop's Found for World Relief

-   Friends Disaster Service

-   International Association of Jewish Vocational Services

-   International Relief Friendship Foundation

-   L.D.S. Charities

-   Lutheran Disaster Response, Mennonite Disaster Services

-   National Organization for Victim Assistance

-   Nazarene Disaster Response, Northwest Medical Teams International

-   the Phoenix Society for Burn Victims

-   Points of Light Foundation

-   Presbyterian Disaster Assistance

-   REACT International

-   Salvation Army

-   Second Harvest National Network of Food Banks

-   Society of St. Vincent De Paul, Southern Baptist Disaster Relief

-   United Methodist Committee on Relief

-   Volunteers in Technical Assistance

-   Volunteers of America

-   World Vision

Common Misconceptions about Voluntary Agencies and Their Disaster Relief
Assistance

(FEMA 1999, 1.9-1.10)

Myth: Voluntary agencies should be able to address all of the needs of
disaster victims following a disaster.

Reality: Voluntary agencies, working alone, cannot be expected to meet
the wide array of human needs that arise after a disaster. When
voluntary agencies collaborate with their other emergency management
partners -- local, State and Federal Government, local businesses, and
the general public -- there is a much greater chance of a successful
disaster relief effort. In addition, it is important to note that
voluntary agencies focus on meeting the needs of the most vulnerable
disaster victims, rather than trying to meet all of the needs of the
entire community.

Myth: Voluntary agencies receive a considerable amount of government
funding to provide disaster relief.

Reality: With few exceptions, voluntary agencies receive no government
funding for disaster relief. Most voluntary agencies receive their
disaster relief funds from private donations. For example, many of the
faith-based agencies will establish disaster relief funds to which its
member constituencies will contribute.

Myth: The national offices of voluntary agencies and the Federal level
of government know best how to respond to disasters.

Reality: All disasters are local and being sensitive to the needs of the
locally-affected communities should be a constant priority for all
emergency workers. Local emergency management authorities should be
supported, not directed, by their national offices. While outside help
in a disaster is often needed and welcomed, everyone needs to remember
that the goal is to support the local community and not overtake it.
Conflicts may arise when the national teams and the local response teams
do not coordinate and collaborate. One example is a national team making
a decision on behalf of its local affiliate without understanding the
cultural, economic, and political sensitivities of the local community.
In this case, the credibility of the local response team may be
jeopardized, possibly harming that agency's level of trust in the
community, its funding base, and ultimately its effectiveness in
responding to the communities' needs.

Myth: If a disaster victim receives disaster assistance from a voluntary
agencies then they are not eligible for government assistance.

Reality: This is a common myth that causes confusion and, as a result,
sometimes a delay in disaster assistance. The government disaster
assistance programs are based on a verified need. If a disaster victim
has receive assistance from a voluntary agency and is still in need of
assistance, they should seek assistance from all available sources,
including government programs. The sequence of disaster assistance is
such that government and voluntary agency programs augment and support
each other so that a disaster victim can be afforded the maximum
possible eligible programs. As an individual progresses through the
sequence of delivery, unmet needs are noted and the individual is
referred to the next applicable program. Also noted are the
disaster-caused needs that are met, so that possible duplication of
benefits can be avoided. It is therefore important that anyone who has
disaster-caused needs be encouraged to contact the American Red Cross,
other voluntary agencies providing assistance, and their local, State
and Federal governments.

Myth: Most unsolicited donated goods and unaffiliated volunteers are
useless and a hindrance to important emergency response operations and
therefore should not be allowed into the area.

Reality: Uncontrolled numbers of donated goods and services can
seriously interfere with response operations. However, many of these
goods and services can be converted into valuable resources for response
and longer term recovery needs when a State works closely with its
voluntary agency partners and addresses the issue rather than overacting
and closing down the supply of donated resources.

**Services Provided by Volunteers**

**advocacy distribution**

**case management child care**

**clean-up and rebuilding community disaster education**

**community outreach counseling**

**damage assessment debris removal**

**disaster planning donations management**

**elder care emergency repairs**

**emergency assistance financial assistance**

**financial planning funeral services**

**health care identification**

**international services massage therapy**

**mass care mental health services**

**mitigation planning mobile feeding**

**organizational mentoring pastoral care**

**pet care radio/communication services**

**relocation services resource coordination**

**sanitation services special needs**

**technical assistance training**

**translation services transportation services**

**volunteer assistance volunteer services**

**warehousing**

**Common Problems Volunteers Present to Emergency Managers**

-   Lack of training

-   Unmanageable quantity

-   Safety

-   Disgruntled attitudes

**Managing Volunteers Effectively**

-   Network with volunteer organizations

-   Plan for volunteer management

-   Educate the public about volunteering

-   Conduct exercises with volunteer groups

-   Put someone in charge of volunteers

-   Collect adequate information about volunteers

-   Streamline registration and placement

-   Provide information to volunteers via phone or Internet

-   Ensure services, safety and security of volunteers

-   Adapt to changing circumstances

-   Thank volunteers

-   Document facts about volunteers