Youth Preparedness 

Guide to Risk Management for Youth Preparedness Programs
Youth Preparedness Guide to Risk Management 1

YOUTH PREPAREDNESS

Guide to Risk Management for Youth Preparedness Programs

This document is offered for informational purposes only and should not be construed as providing legal or other professional advice. 

Contents

Introduction ���������������������������������������������������������������������������������������������������������������������������������������������������������������������������� 2

Risk Management ������������������������������������������������������������������������������������������������������������������������������������������������������������������� 3

 Step 1: Get Leadership Support ���������������������������������������������������������������������������������������������������������������������������������3

 Step 2: Gather Information���������������������������������������������������������������������������������������������������������������������������������������3

Step 3: Identify Risks�������������������������������������������������������������������������������������������������������������������������������������������������4

Step 4: Adopt Strategies to Manage Risks�����������������������������������������������������������������������������������������������������������������5

Step 5: Maintain the Momentum �����������������������������������������������������������������������������������������������������������������������������5

Conclusion������������������������������������������������������������������������������������������������������������������������������������������������������������������������������� 5

Appendix A: Risks and Mitigations��������������������������������������������������������������������������������������������������������������������������������������� 6

Appendix B: Resources����������������������������������������������������������������������������������������������������������������������������������������������������������� 10
Youth Preparedness Guide to Risk Management 2

INTRODUCTION

Youth preparedness programs provide a valuable service 

to the community. Training children on preparedness 

empowers them to act confidently during an actual 

emergency, encourages them to spread the message of 

preparedness to their families and communities, and helps 

to develop future generations of prepared adults. 

There are risks and liabilities to consider when putting 

together a youth preparedness program—just as there 

would be with any other program or activity. Programs 

should acknowledge and confront liability issues, and 

openly address the realities of the situation. At the same 

time, however, program managers will want to be careful 

not to dissuade parents/guardians from allowing their 

children to participate. 

There are several types of liability that apply to all programs 

(and people). Liability can arise from intentional acts as 

well as unintentional acts or negligence that result in harm. 

Four primary types of civil liability are identified on page 

four. Risk management refers to the process of identifying, 

analyzing, controlling, and mitigating risks so as to reduce 

the likelihood or impact of negative events for which the 

organization is liable. 

This document presents a five-step approach for developing 

a risk management plan and provides sample risks and 

mitigations for youth preparedness programs. The document 

is intended for anyone operating or developing a youth 

preparedness program, whether or not the program is part of 

a larger organization. Much of the material in this document 

has been excerpted from the Federal Emergency Management 

Agency (FEMA) Community Emergency Response Team 

(CERT) document titled CERT Liability Guide: A Risk Management 

Overview for Local CERT Programs. Additional information about 

liability, including sample materials, can be found in the 

CERT Liability Guide at 

http://www.fema.gov/library/viewRecord.do?id=6219.

Individuals starting or running youth preparedness 

programs are encouraged to read Youth Preparedness: 

Implementing a Community-Based Program, available from FEMA 

at http://www.ready.gov/youth-preparedness, for more 

guidance on developing a program.

Specialized liability issues that are not addressed in this 

guide may arise within individual programs� Persons 

responsible for addressing risk management for a youth 

preparedness program are encouraged to consult a lawyer, 

human resources professional, and/or professional risk 

manager� Youth preparedness programs that fall within 

a larger organization may have access to that larger 

organization’s risk management and liability mitigation 

capabilities. If that is the case, the program manager should 

consult the appropriate personnel at the larger organization 

for more information. It is essential to work within both 

federal laws and the laws of the state(s) in which the 

program operates. As you think through potential risks and 

associated mitigations, keep in mind the needs of youth 

and adults (e.g., participants, leaders, trainers, parents) with 

disabilities and others with access and functional needs, 

including accommodation needs. There may be unique 

risks that they face while participating in the program, so 

additional mitigations may be necessary.
Youth Preparedness Guide to Risk Management 3

RISK MANAGEMENT

Advanced preparation for potential liability issues can 

benefit the program by1

:

• Enhancing confidence in the program

• Promoting a positive public image

• Increasing participation in the program

• Reducing expenses and insurance costs

1 The benefits to the program and the five steps in this section have been duplicated, with minor changes, from the CERT Liability Guide, available at 

http://www.fema.gov/library/viewRecord.do?id=6219. The content has been tailored to youth preparedness programs. Please see the CERT Liability 

Guide for more information about liability and risk management. 

There are multiple types of liability that can result from 

either intentional or unintentional acts. Page four includes 

definitions of four types of civil liability that may apply to 

youth preparedness programs. The best way to think through 

and plan for potential risks and liability is to develop a risk 

management plan. The following five steps can guide a 

program manager through developing a risk management 

plan. The resources provided in Appendix B can provide 

additional information and tools related to risk definition 

and mitigation.

STEP 1: GET LEADERSHIP SUPPORT 

Ensure that organizational leadership understands 

the benefits of a youth preparedness program and is 

willing to provide the necessary resources. Leadership 

should understand and be involved in mitigating risks. 

Depending on the structure of the program, the youth 

preparedness program may have its own specific leadership, 

or the program’s leadership may reside within a larger 

organization. 

STEP 2: GATHER INFORMATION

Having a well-rounded vision of the youth preparedness 

program is essential to identifying and mitigating 

associated risks. The types of activities or trainings that 

will be conducted, the ages of participants, and the other 

organizations that will be involved can all impact risks and 

mitigations. Youth Preparedness: Implementing a Community-Based 

Program, available from FEMA at http://www.ready.gov/

youth-preparedness, can help with developing a program.

WHAT IS RISK MANAGEMENT?

Risk management refers to the process of identifying, 

analyzing, controlling, and mitigating risks, so as to 

reduce the likelihood or impact of negative events for 

which the organization is liable.

If the youth preparedness program is part of a larger 

organization, determine which tools are available through 

that larger organization. Examples of tools that might be 

available from a larger organization include an existing risk 

management plan, insurance policies, standard operating 

procedures (SOPs) or organizational policies, and/or 

templates for Memoranda of Understanding (MOUs) or 

permission slips. These tools may guide the program and 

inform a process to reduce any associated risks. The larger 

organization may also have information about past claims, 

losses, or “near-miss” events. Taking these things into 

consideration can help clarify the liabilities associated with 

the program. If the youth preparedness program is not 

part of a larger organization, the documents and websites 

identified in Appendix B of this document can serve as a 

starting point for conducting additional research.

FIGURE 1: DEVELOPING A RISK MANAGEMENT PLAN

STEP 1: GET LEADERSHIP SUPPORT 

STEP 2: GATHER INFORMATION

STEP 3: IDENTIFY RISKS

STEP 4: ADOPT STRATEGIES TO MANAGE 

RISKS

STEP 5: MAINTAIN THE MOMENTUM

KEY

5

1

2

3

4
Youth Preparedness Guide to Risk Management 4

STEP 3: IDENTIFY RISKS

Think through any issues that may arise with the program. 

In thinking through potential risks and issues, keep in mind 

that there are four primary types of civil liability that apply 

to any type of program (see Table 1); criminal liability 

would apply to acts that are illegal. 

In general, youth preparedness programs may face risks 

related to (1) the general management of a program, 

regardless of the topic; (2) working with minors; 

TABLE 2: IDENTIFYING POTENTIAL PROBLEMS AND SOLUTIONS

Problem Solution

A child could fall and injure him/herself.

A child could have an allergic reaction to tools used or 

snacks provided during the program.

An emergency could occur while the program is in session.

Keep a stocked first aid kit and emergency contact 

information for parents/guardians.

Ask parents/guardians for information about any known 

allergies, have emergency contact information for all 

parents/guardians, and learn steps to take in the event of an

allergic reaction.

Know and practice evacuation routes and shelter plans for 

the facility.

The Risks and Mitigations table in Appendix A will help program managers think through many of the applicable risks. 

2 This content has been derived and updated from the CERT Liability Guide, page 8, available at http://www.fema.gov/library/viewRecord.do?id=6219.

TABLE 1: TYPES OF CIVIL LIABILITY

• Negligence or acts of omission—failure to use 

ordinary care, defined as the care that a reasonable 

and prudent person would use under similar 

circumstances. Negligence may arise from any 

activity in which carelessness can lead to injury or 

damage to individuals or property. 

• Vicarious liability—in some cases, an individual 

or organization may be held liable for the actions 

of its agents. The most common example is of an 

employer being responsible for harm caused by an 

employee in the course of doing his/her job.

• Intentional tort—harm that was 

intentionally caused.

and (3) any liability that may arise if participating youth 

cause harm while applying training learned through the 

program. 

Use a table (like Table 2) to identify problems that could 

potentially arise with the program, and solutions or 

preventative measures that could be used to solve those 

problems. It is impossible to predict everything that could 

possibly go wrong, but thinking through common issues is 

a good exercise. A few examples are provided in Table 2.

• Strict liability—even if harm is not intentional 

or related to negligence, an individual or 

organization can still be held responsible for 

the harm itself, especially if the harm is caused 

while doing an inherently dangerous activity or 

while using inherently dangerous equipment or 

materials. Workers’ compensation is also a form 

of strict liability. Strict liability may have limited 

applicability to youth preparedness programs. 

Types of Civil Liability2
Youth Preparedness Guide to Risk Management 5

Organizational responsibility refers to the responsibility/

liability that an organization may have for its employees/

staff/participants. Since there may be multiple organizations 

involved in the program (for example, the instructors may 

be from various government agencies), it is important 

to know who is responsible to prevent any particular 

undesired outcome/risk. Each group is generally 

responsible for the actions of its own employees (assuming 

they are acting within the capacities of their jobs). 

Considering the likelihood and impact of identified risks 

is critical to effective implementation of mitigations, as 

you may want or need to prioritize risk management 

activities based on which risks can cause the most harm. 

Determine how often each potential issue is expected to 

occur, as well as what the costs or consequences would 

be if/when it does, to both the program and its partners. 

Costs may include judgments, settlements, and member 

injury claims, as well as damage to the program’s (or larger 

organization’s) reputation—which may lead to a decline in 

participation. Though these larger costs are unlikely, they 

still should be taken into consideration. 

STEP 4: ADOPT STRATEGIES TO MANAGE RISKS

Implementing standardized processes and procedures is 

one of the most effective ways to manage risks. Identify 

precautions that can be taken to mitigate risks, and develop 

ways to consistently implement and document those 

precautions. Again, the Risks and Mitigations table in Appendix 

A may be helpful in identifying and implementing 

mitigations. Consider ways that the program will interact 

safely with (1) participating children; (2) participating 

adults (both staff and volunteers); and (3) 

the general public. 

If possible, risks and liabilities should be considered and 

mitigations should be implemented before the program 

begins working with youth. Some circumstances cannot be 

predicted, however, and mitigations should be adopted as 

the need arises. Whether the program is in development or 

currently operational, the risks and mitigations identified in 

Appendix A (and any others that may be relevant to a given 

program) should be taken into consideration.

STEP 5: MAINTAIN THE MOMENTUM

Risk management should be an ongoing activity. Implement 

changes as needed, and periodically hold an in-depth 

review of the previous four steps to identify the areas that 

need improvement.

CONCLUSION

Youth preparedness programs have positive impacts on 

both the youth they train and the larger community. 

All programs are subject to potential liability issues, but 

there are additional risks associated with running a youth 

program. The risks and liabilities of the program will 

be dependent on both the characteristics of the program 

and the laws of the state(s) in which it operates. Ideally, 

program managers should identify and mitigate risks before 

they begin a program. Periodically, they should re-assess 

risks and mitigations, to ensure that they are accurately 

and adequately protecting their programs. As mentioned 

previously, there will always be risks that are unforeseeable. 

These risks should be addressed as they arise. 

Youth preparedness programs that follow the risk 

identification and mitigation process outlined in this 

document will be better prepared to deal with potential 

issues. Effective risk management strategies will also make 

the program more appealing to participants, participants’ 

parents/guardians, and staff/volunteers, as well as to 

partner organizations and the community. Effective 

risk management strategies can enhance confidence in 

the program, promote a positive public image, increase 

participation in the program, and reduce expenses and 

insurance costs. Thus, effective risk management can help 

facilitate the overall long-term success of the program.
Youth Preparedness Guide to Risk Management

APPENDIX A: RISKS AND MITIGATIONS

This appendix will help program mangers think through the risks associated with their youth preparedness programs and 

the ways to mitigate these risks. As mentioned previously, youth preparedness programs may face risks related to (1) the 

general management of a program, regardless of the topic; (2) working with minors; and (3) any liability that may arise if 

participating youth cause harm while applying training learned through the program. 

Consider each of the following risks and potential mitigations when thinking through risk mitigation techniques for 

a particular youth preparedness program. Please note that this list provides just a few examples of potential risks and 

mitigations—additional risks may exist that are not addressed here. The more risks that a program manager can identify and 

prepare for, the better protected and more effective the program will be. However, there will always be unforeseeable risks, 

and no risk management plan can include preparation for every possible situation.

Risk Mitigation

GENERAL PROGRAM: ANY PROGRAM CAN FACE LIABILITY

 State laws vary, and unfamiliarity with the laws of the 

state(s) in which the program operates may lead to 

actions or harm for which the program is found liable.

• C omply with state laws, especially as related to 

volunteering and working with children, and 

consult local legal counsel with specific questions. 

The Nonprofit Risk Management Center’s State 

Liability Laws for Charitable Organizations and Volunteers

(http://www.nonprofitrisk.org/downloads/stateliability.pdf) provides state-specific information 

related to volunteers. 

• E nsure that staff and volunteers have completed all 

training applicable to the state (safety training, etc.).

 Adults or children involved in the program may behave 

irresponsibly or engage in risky behavior that may cause 

harm to themselves or others.

• D evelop codes of conduct for everyone involved 

(adults and minors). Consider topics such as attire, 

attendance, cell phone use/texting, social media, 

and safety rules. 

• Set standards for the required youth/adult ratio. 

 Emergencies can arise from inside or outside the 

program; confusion about what to do may lead to harm.

• Stock a first aid kit and keep it readily available. 

• A sk parents/guardians for information about 

known allergies or other health concerns of 

participants, as well as information on the 

precautions to take and ways to respond. 

• K eep emergency contact information on file for all

parents/guardians. 

• L earn the steps to take in the event of an allergic 

reaction or other illness or injury. 

• E nsure that facilities and equipment meet safety 

standards. 

• L earn evacuation routes and shelter plans for 

program facilities. 

6
Youth Preparedness Guide to Risk Management 7

Risk Mitigation

 Organizations involved with the program may be held 

responsible for the actions of their staff (such as trainers); 

confusion may result if organizational roles are unclear.

• F ormalize interactions with other organizations 

through contracts or Memoranda of Understanding 

(MOUs). Consult with legal counsel about 

developing these types of documents.

 Personal or sensitive information may be collected as part 

of the program, and its unauthorized use may cause harm 

to those involved in the program.

• P rotect all sensitive information, especially the 

names and contact information of both youth 

and adults.

• I dentify the reason that personal and sensitive 

information is needed, before it is collected. 

 All organizations/programs may be liable if harm results 

from their activities. Not having sufficient resources 

(including insurance) to deal with that harm may 

increase the likelihood of damaging the program.

• E nsure that the program, larger organization, and/

or facility carry sufficient insurance. Possible types 

of insurance to consider include: 

− Commercial general or public entity liability 

insurance 

− Directors and officers (D&O) or public officials 

liability insurance 

− Non-owned and hired auto insurance

− Professional liability insurance (PLI) 

− Property insurance 

− Volunteer accident insurance 

− Volunteer liability insurance 

− Workers’ compensation (In some states, 

volunteers can be covered under a nonprofit’s 

workers’ compensation policy.)

 Inconsistent processes and procedures may open the 

program to charges of discrimination.

• D evelop and use standardized processes and 

procedures whenever possible. 

− Use standardized processes for selecting youth t

participate in the program, if applicable. 

− Use standardized procedures for volunteer and 

staff selection/hiring, supervision, warning, and

termination. 

− Avoid questions that could lead to actions that 

would be discriminatory in an employment 

setting. For example, omit questions related to 

age, race, religion, national origin, pregnancy, 

disability, health problems, and prior workers’ 

compensation claims. 

− It is advisable to have any forms reviewed by 

an attorney or a human resources professional 

familiar with federal law and the state’s 

employment law.

o 
Youth Preparedness Guide to Risk Management 8

Risk

 People with disabilities and others with access and 

functional needs may take action against the program if 

reasonable accommodations are not made for them to 

participate.

• D evelop protocols for ensuring that youth and 

adults (including participants, leaders, trainers, 

and parents) with disabilities and others with access 

and functional needs, including accommodation 

needs, can participate in the program.

Mitigation

 If an individual’s property (such as their home or car) is 

used in conjunction with the program, the program may 

be liable for harm caused while using that property.

• D etermine what is or isn’t covered by adult staff and 

volunteers’ various insurance plans, including auto, 

homeowners’, renters’, and/or personal liability 

insurance. Based on the findings, determine if the 

program itself requires additional insurance. 

MINORS: ORGANIZATIONS THAT WORK WITH MINORS FACE SPECIFIC TYPES OF LIABILITY

Individuals participating in any type of program may 

face harm, but preparedness activities with youth may 

pose particular risks.

• G et program participation permission slips and 

liability waivers signed by the parent/guardian and 

the minor, if appropriate. 

• S ecure signed permission slips for all activities that 

pose additional risks, including field trips, activities 

that require transportation, and activities that take 

place outside the regular program time or location. 

 Running a program for youth may increase the 

likelihood of harm or abuse.

• Screen all staff and volunteers—possible 

screening tools include the application process, 

interviews, reference checks, background checks, 

fingerprinting, drug testing, driving record 

checks, etc. 

• D iscourage misrepresentation by requiring the 

applicant to sign a statement agreeing that the 

information provided is accurate and complete 

(the specific language may vary). 

• S ecure a signed liability waiver for each staff 

member or volunteer. 

• R equire staff and volunteers to report any changes 

that may impact their ability to participate in 

the program (arrests, moving violations, loss of 

professional credentials, etc.). 

• E ncourage or require staff and volunteers to take 

training related to working with youth. 

• I mplement policies to dictate how adults interact 

with minors in the program (e.g., two adults in the

room at all times, all one-on-one interaction held 

in the same room as the rest of the group). 
Youth Preparedness Guide to Risk Management 9

Risk Mitigation

 Youth participants may face risk from individuals outside 

the program.

• D evelop protocols for when and to whom youth 

can be released at the end of each session.

• T ailor the program’s activities and trainings to 

the ages of the youth involved with the program. 

Reference current research about youth and their 

behaviors to properly tailor the program.

 Youth may face harm if they attempt to do tasks or 

trainings that exceed their developmental capabilities.

LIABILITY FOR ACTION: CONSIDER WHETHER THE PROGRAM COULD BE HELD LIABLE IF A MINOR 

TRIES TO APPLY HIS/HER TRAINING AND CAUSES HARM TO HIM/HERSELF OR SOMEONE ELSE.

• E nsure that all instructors are appropriately 

credentialed and licensed. 

• T he curriculum should include information 

about the appropriate roles for youth to play in an 

emergency and when youth are encouraged to act. 

• K eep records of all program participants—making 

sure to protect any sensitive information—and the 

specific training they have received, if applicable.

 If youth attempt to use their training and end up harming 

someone, the program and/or its instructors may be 

found liable.
Youth Preparedness Guide to Risk Management 10

APPENDIX B: RESOURCES

The following resources provide additional information that may be useful for thinking through liability and risk 

management for a youth preparedness program. The following information and links are provided for reference only. 

FEMA does not endorse any non-government website, company, or application.

WORKING WITH YOUTH

Boy Scouts of America. Youth Protection. 

http://www.scouting.org/Training/YouthProtection.aspx 

Child Welfare Information Gateway. State Statutes Search. 

http://www.childwelfare.gov/systemwide/laws_policies/state

FEMA CERT. Teen CERT: Launching and Maintaining the Training. 

http://www.fema.gov/library/viewRecord.do?id=6218 

FEMA Office of Disability Integration & Coordination.

http://www.fema.gov/office-disability-integration-coordination

Girl Scout Council of the Nation’s Capital. Volunteer Essentials. 

http://www.gscnc.org/files/pdf/pubs/volunteeressentials.pdf

Girl Scouts of Southern Appalachians. GSCSA Volunteer Handbook. 

http://www.girlscoutcsa.org/content/dam/southern-appalachian/documents/Volunteer_Handbook_2013.pdf

Oliver, Barbara B., John C. Patterson. The Season of Hope: A Risk Management Guide for Youth-Serving Nonprofits. 

Washington, D.C., Nonprofit Risk Management Center, 2002. 

Utah State University Extension. ABC...123: Starting your Afterschool Program. 2007. 

http://www.afterschoolalliance.org/Utah4HAfterschoolGuide.pdf

LIABILITY AND RISK MANAGEMENT

FEMA CERT. CERT Liability Guide: A Risk Management Overview for Local CERT Programs.

http://www.fema.gov/library/viewRecord.do?id=6219 

FEMA Citizen Corps. Citizen Corps Volunteer Liability Guide: An Overview of Legal Issues and Approaches to Address Liability for Emergency Volunteers.

http://www.fema.gov/library/viewRecord.do?id=6529 

National Council of Nonprofits. Risk Management and Insurance.

http://www.councilofnonprofits.org/resources/resources-topic/risk-management-and-insurance

Nonprofit Risk Management Center (especially the trainings under “Web Tools”). 

http://www.nonprofitrisk.org

Nonprofit Risk Management Center. State Liability Laws for Charitable Organizations and Volunteers. December 2009. 

http://www.nonprofitrisk.org/downloads/state-liability.pdf

Public Entity Risk Institute. Citizen Corps Volunteer Liability Project. 

http://www.riskinstitute.org/peri/component/option,com_deeppockets/task,catContShow/cat,52/id,619/Itemid,80/

University of Wisconsin 4-H Youth Development. Risk Management and Insurance. 

http://www.uwex.edu/ces/4h/resources/mgt/risk.cfm

42 USC § 14503 - Limitation on liability for volunteers. Available from the U.S Government Printing Office. 

http://www.gpo.gov/fdsys/granule/USCODE-2000-title42/USCODE-2000-title42-chap139-sec14503/content-detail.html
Youth Preparedness Guide to Risk Management 11

INSURANCE

GuideStar. Insurance Advice for Start-up Nonprofits. 

http://www.guidestar.org/rxa/news/articles/2006/insurance-advice-for-start-up-nonprofits.aspx 

Nonprofit Risk Management Center. Frequently Asked Questions: Insurance. 

http://www.nonprofitrisk.org/advice/faqs/insurance2.shtml 

Nonprofit Risk Management Center. Ten Tips for Buying Insurance. 

http://www.nonprofitrisk.org/library/articles/insurance01001995.shtml

U.S. Small Business Administration. Running a Business: Types of Business Insurance. 

http://www.sba.gov/content/types-business-insurance 

This document is intended to be used in conjunction with Youth Preparedness: Implementing a Community-Based Program 

and the supplemental tools for youth preparedness programs. These materials are available at 

http://www.ready.gov/youth-preparedness.