Retention and Recruitment 

for the Volunteer 

Emergency Services

FA-361 | May 2023

Mission Statement

We support and strengthen fi re and emergency medical 

services and stakeholders to prepare for, prevent, mitigate 

and respond to all hazards.

Table of Contents i

Table of Contents

Introduction ............................................................................................................. 1

Part I: Critical Recruitment and Retention Challenges....................................... 5

Section 1: Changing face of volunteerism...................................................................... 6

Section 2: Aging of the volunteer fire service................................................................ 8

Section 3: Training demands............................................................................................ 8

Section 4: Unmet expectations ....................................................................................... 11

Section 5: Work-life-volunteer balance .......................................................................... 11

Section 6: Mission expansion .......................................................................................... 12

Section 7: Leadership........................................................................................................ 13

Section 8: Department image and culture..................................................................... 14

Section 9: Consolidations, mergers and regionalization ............................................. 15

Section 10: Tension with local government ................................................................... 16

Section 11: Other challenges............................................................................................ 17

Part II: Collaborating With Local Government .................................................... 19

Section 1: Department funding ....................................................................................... 21

Section 2: Making the case for support.......................................................................... 23

Section 3: Working together to meet the community’s needs ................................... 26

Section 4: Case studies ..................................................................................................... 30

Part III: Recruitment Strategies............................................................................. 33

Section 1: Membership requirements............................................................................ 33

Section 2: Understanding volunteer needs and motivators ....................................... 35

Section 3: Finding prospective volunteers..................................................................... 37

Section 4: Personal invitations ........................................................................................ 47

Section 5: Provide sampling opportunities.................................................................... 47

Section 6: Effective onboarding....................................................................................... 48

Section 7: Maintaining a positive image and culture.................................................... 53

Section 8: Embracing diversity and inclusion................................................................ 57

Part IV: Retention Strategies ................................................................................. 61

Section 1: Developing effective leadership.................................................................... 62

Section 2: Setting realistic expectations ........................................................................ 65

Section 3: Health and safety considerations ................................................................. 68

Section 4: Building camaraderie...................................................................................... 71

Section 5. Training requirements .................................................................................... 72

Section 6: Volunteer benefits and incentives ................................................................ 76

Section 7. Recognizing volunteers................................................................................... 79

Section 8: Nonoperational volunteers............................................................................ 81

Section 9: Mentor programs ............................................................................................ 83

Section 10: Family support............................................................................................... 84

Section 11: When it’s time to say goodbye..................................................................... 85

Part V: Marketing for the Fire Service .................................................................. 89

Part VI: Using Data To Drive Recruitment and Retention Efforts ..................... 97

Part VII: Funding Recruitment and Retention Efforts ........................................ 101
ii Retention and Recruitment for the Volunteer Emergency Services

Appendix A: Resources ........................................................................................... 105

Appendix B: Considerations for Department/Government Support................ 111

Appendix C: Sample Department Application..................................................... 117

Appendix D: Sample Exit Survey............................................................................ 123

Appendix E: Sample Stay Survey ........................................................................... 127

Appendix F: Sample Social Media Policies............................................................ 131

Appendix G: Sample Media Policy ......................................................................... 135

Appendix H: Sample Nondiscrimination Statements......................................... 137

Acronyms.................................................................................................................. 139

All photos courtesy of NVFC unless otherwise indicated.
Introduction 1

Introduction

Recruitment and retention are the cornerstone of any 

volunteer fire or emergency medical services (EMS) 

department. Without proper staffing, fire and EMS 

departments cannot provide the services and protection 

their communities need. It is critical that volunteer 

departments have the necessary tools, information and 

support to assist in their efforts to recruit and retain 

volunteers.

The origin of this document begins in 1993 with a national 

workshop. This workshop, managed by the National 

Volunteer Fire Council (NVFC) in cooperation with the U.S. 

Fire Administration (USFA), focused on recruitment and 

retention of the nation’s volunteer fire and EMS. The result 

of that workshop was the 1998 document “Recruitment and Retention in the Volunteer 

Fire Service, Problems and Solutions.” This document was also the companion text for 

a leadership course developed by the National Fire Academy (NFA).

In 2004, the NVFC and the USFA acknowledged the continuation of the challenges 

addressed in the 1998 document. A literature review and a field survey were conducted 

to determine the state of recruitment and retention in the volunteer emergency services. 

This resulted in the 2007 document “Retention and Recruitment for the Volunteer 

Emergency Services, Challenges and Solutions.”

In June 2018, representatives from national fire service organizations and leaders in 

the volunteer emergency services met at the USFA National Emergency Training Center 

in Emmitsburg, Maryland, to discuss current trends in recruitment and retention 

in the volunteer emergency services and conduct a review of the 2007 document. 

This review led to the document today that incorporates more extensive research 

on recruitment and retention since the original 2004 field survey and encompasses 

a more holistic perspective of recruitment and retention, including the role of all 

community stakeholders and the important role local government plays in recruitment 

and retention success.

The USFA would like to thank the following groups and individuals who contributed 

to the development of this guide:

Organizations:

ĵ International Association of Fire Chiefs — Volunteer & Combination Officers Section 

(IAFC-VCOS) 

ĵ International City/County Management Association (ICMA)

ĵ National Fire Protection Association (NFPA)

ĵ National League of Cities (NLC) 

ĵ NVFC

ĵ VFIS Insurance

ĵ Women in Fire
2 Retention and Recruitment for the Volunteer Emergency Services

Individuals:

ĵ Allen Baldwin, Stafford County (Virginia) Fire and Rescue assistant chief of operations 

ĵ John Brasko, USFA National Fire Data Center (NFDC) fire program specialist 

ĵ Ken Brown, NVFC director from Virginia

ĵ Dave Finger, NVFC chief of legislative and regulatory affairs

ĵ Charles Flynn, IAFC-VCOS chair 

ĵ Dr. David Greene, Colleton County (South Carolina) Fire-Rescue deputy chief

ĵ Kendall A. Holland, Jr., NFPA 

ĵ Sarah Lee, NVFC CEO 

ĵ David Lewis, NVFC director from Maryland/Odenton (Maryland) Volunteer Fire 

Company

ĵ Joe Maruca, NVFC director from Massachusetts/West Barnstable (Massachusetts) 

Fire Department chief

ĵ Dr. Candice McDonald, Cumberland Valley Volunteer Firemen’s Association vice 

president/Women in Fire trustee 

ĵ Peter Melan, NLC

ĵ Dave Michaels, VFIS 

ĵ Kevin Quinn, NVFC first vice chair and director from Rhode Island/Union Fire District 

(South Kingstown, Rhode Island) retired deputy chief and current firefighter

ĵ Kimberly Quiros, NVFC chief of communications

ĵ Kevin Roche, PSRM Consulting 

ĵ Bill Troup, USFA NFDC chief

ĵ Thomas Wieczorek, ICMA

Special thanks to U.S. Fire Administrator Dr. Lori Moore-Merrell and Deputy U.S. Fire 

Administrator Chief Tonya Hoover for their support of this project.

This guide contains a series of examples and case studies taken from volunteer and 

combination fire and EMS departments from across the U.S. Thank you to the following 

individuals who shared their insights:

ĵ John Bellino — Richmond (Maine) Fire Department 

ĵ Lenny Brown — Royersford (Pennsylvania) Fire Department

ĵ Sylvia Cancela — Town of Canton (Connecticut) Volunteer Fire and EMS Department 

ĵ Donald Cieciuch — Secaucus (New Jersey) Volunteer Fire Department

ĵ Wayne Clemons Jr. — Daggett (California) Fire Department 

ĵ Kevin Cooney — South Windsor (Connecticut) Fire Department

ĵ Dustin Courter — Kiowa (Colorado) Fire Protection District

ĵ Ryan Daughton — East Franklin Fire Department (Somerset, New Jersey) 

ĵ Lowell Ester — Mulvane (Kansas) Fire Rescue 

ĵ Brandon Fletcher — Gilt Edge (Tennessee) Volunteer Fire Department 

ĵ Joe Heim — East Dubuque (Illinois) Fire Department 

ĵ Zachary Hottel — Woodstock (Virginia) Fire Department

ĵ Michael Motta — Briarcliff Manor (New York) Fire Department 

ĵ Darin Needham — Lewisville (North Carolina) Fire Department

ĵ Sheri Nickel — Orlando (Oklahoma) Volunteer Fire Department/Oklahoma State 

Firefighters Association 

ĵ Vincent Nolan — Brighton Fire Department Inc. (Rochester, New York)

ĵ Paul Nowell — Gaston (North Carolina) Volunteer Fire Department 

ĵ Charles Perryman, Jr. — Culpeper County (Virginia) Volunteer Fire & Rescue 
Introduction 3

ĵ Jennifer Pinter — Foothills Fire & Rescue (Golden, Colorado)

ĵ Michael Rock — Blue Ridge (Virginia) Volunteer Fire Department

ĵ Pam Rogers — City of Moscow/Moscow (Idaho) Volunteer Fire and Ambulance 

ĵ Mark Schaefer — Westminster (Maryland) Volunteer Fire Department

ĵ James Sims — Holiday Park (Pennsylvania) Volunteer Fire Department 

ĵ Bryan Sorrows — Carlisle (Massachusetts) Fire Department 

ĵ Joe Tjaden — Rapid Valley Volunteer Fire Department (Rapid City, South Dakota) 

ĵ Thomas Thoreson — Berwyn (Pennsylvania) Fire Company 

ĵ George Turner — West Whiteland Fire Company (Exton, Pennsylvania) 

ĵ Craig Walker — Aberdeen (Maryland) Fire Department Inc.

ĵ Pete Warren — Siuslaw Valley Fire and Rescue (Florence, Oregon) 

ĵ Gary Wezel — Royersford (Pennsylvania) Fire Department

Content in this document is provided solely for informational purposes and is not 

intended to be an endorsement of any nonfederal entity by the Federal Emergency 

Management Agency (FEMA), U.S. Department of Homeland Security or the U.S. 

government.
Photo courtesy of iStock.
Part I: Critical Recruitment and Retention Challenges 5

Part I: Critical Recruitment and 

Retention Challenges

Recruitment and retention have become 2 of the biggest challenges facing the U.S. 

fire and emergency services in recent decades. The NFPA, which annually tracks the 

number of firefighters in the U.S., found that the number of volunteer firefighters 

in 2020 was 676,900. This is compared to 897,750 in 1984, the year the NFPA began 

gathering this statistic.

Even a cursory scan of news reports shows how dire the situation is in some areas. 

Headlines from communities across the country proclaim that departments have 

reached a crisis point and that some may have to close if they cannot find more 

volunteers quickly.

The first step to address the challenges facing local departments is to better understand 

the factors that are contributing to the decline in volunteer numbers. Solutions can 

then be presented that meet the challenges that can be overcome and work around 

those that cannot.

The root causes of recruitment and retention challenges have remained similar over 

the past decade. What has changed is the pace of the contributing factors and the 

urgency needed to address them. The demand on time, increased training requirements 

and poor leadership are a few of the challenges volunteer fire departments face in 

recruiting and retaining members. Part I of this document discusses recruitment and 

retention challenges from a holistic perspective within a community.

Closer look: Most of the time, it is not just one challenge that creates 

a barrier for departments to get and keep volunteers. Today’s fire 

departments are facing a multitude of obstacles and changes that make 

it harder to recruit and retain members. As the Woodstock (Virginia) 

Fire Department notes:

“Our department faces many of the same challenges departments 

around the country are facing. These include increasing competition 

for volunteers among organizations, a decrease in the amount of 

time community members can contribute due to job and family 

commitments, and the growing demands of the fire service related 

to training requirements, fundraising, administrative tasks, and an 

increasing call volume.

“In addition, our general community is aging, a growing number of our 

local workers are commuters which limits the amount of time they can 

contribute to community organizations, issues with other departments 

in our area have created a negative stigma related to volunteer fire 

departments, and [there’s been] a loss of connection between our 

department and the community as the demographics and population 

make-up continues to evolve.”
6 Retention and Recruitment for the Volunteer Emergency Services

Section 1: Changing face of volunteerism

Volunteerism has been an integral part of American society since the founding of our 

nation. From the earliest fire brigades, volunteers have built today’s fire service from 

the ground up, evolving into a complex system estimated at 29,452 volunteer, career 

and combination departments of varying size, mostly protecting rural populations. 

According to the NFPA data for 2020, there are an estimated 1,041,200 firefighters in 

the U.S., with 676,900 (65%) of those estimated to be volunteers.

The number of volunteers today is down significantly from 1984, when 897,750 volunteer 

firefighters were reported. This decline of over 220,850 volunteers took place while 

the United States population grew from nearly 236 million to over 331 million in the 

same time frame, indicating that volunteerism in the fire and emergency services has 

not kept pace with population growth.

Volunteerism in general has slipped and surged over the past several decades, peaking 

for a brief time after 9/11 and reaching a low around 2015. In 40 years of tracking 

volunteers, the U.S. Department of Labor’s (DOL’s) Bureau of Labor Statistics shows 

that volunteer rates tend to rise after the age of 20, peak between the ages of 35 and 

44 when people tend to be more settled and have strong career and social networks, 

and then decline as individuals age. According to Nonprofit Quarterly, this decline is 

believed to be associated with retirement, diminished physical capabilities and loss 

of connections with established social networks.

In 2020, the NVFC conducted a national survey resulting in the report “Volunteer 

Retention Research Report.” This survey of current and former members shows that 

over two-thirds of respondents feel their departments have (or had) a problem with 

volunteer retention. This includes nearly 70% of current department leadership. 

Additionally, nearly half of all current volunteers have considered leaving the fire 

service at some point. 

Even with significant volunteer interest, changes in everyday life and family dynamics 

affect the ability to both retain and recruit volunteers. Today it is increasingly common 

for families to have 2 working parents, perhaps reducing the time and energy left 

to volunteer, or single-parent households where child care or other considerations 

inhibit volunteerism, particularly when volunteer hours may require overnight shifts 

or responding to calls at a moment’s notice. Employers are also less likely to let their 

employees leave during the day to respond to calls than they were in the past, making 

fire department coverage during traditional working hours more difficult.

There are many unique recruitment and retention challenges facing emergency service 

volunteers. Unlike many other volunteer opportunities, the volunteer fire and EMS 

services require extensive training hours, sometimes rigorous and unconventional 

volunteer hours, and expertise in multiple areas from fire dynamics to hazmat 

operations. Another challenge to recruitment and retention is the increased risk to 

life and health, from fireground injuries to long-term exposures that could lead to 

cancer and other debilitating diseases. The fire and emergency services offer a much 

higher-stakes volunteer experience than what one may find volunteering in a school 

or local food pantry.

Added to these challenges is the impact that the COVID-19 pandemic may have on fire 

and emergency service volunteer numbers. During the pandemic, many departments 
Part I: Critical Recruitment and Retention Challenges 7

had to cease or modify their recruitment initiatives and cancel fire academies or 

recruit training programs. Some volunteers left their departments due to concern for 

themselves or a loved one about the risks of getting COVID-19 or because their employer 

prohibited activities that put them at risk of getting COVID-19. Decreased in-person 

contact may also have left volunteers feeling disconnected and unsure of their desire 

to continue their service. In addition, impacts to department funding created by the 

pandemic means there are less available resources to use toward recruitment and 

retention efforts.

It is hard to know yet exactly what the long-term impact of the pandemic may be on fire 

and emergency service volunteerism. Despite the challenges, there are also areas of 

opportunity that may result from the pandemic. For instance, there is greater awareness in 

communities of the work of emergency responders. There may also be more people who 

retain teleworking schedules, eliminating commute times and potentially creating a new 

pool of people available for volunteering. The transition to hybrid training programs that 

include online components may help both new and longtime 

volunteers better fit training into their busy schedules.

It should also be emphasized that the volunteer fire and 

emergency services have many strengths that can help 

counter some of the factors making it challenging to attract 

or retain volunteers. This lifestyle comes with an unparalleled 

level of camaraderie, opportunities to gain valuable skills 

and experience that extend well beyond the incident scene, 

and a chance to give back in a way so meaningful that life 

often hinges on it. Perhaps most notably, becoming a fire 

or emergency service volunteer secures one’s place in the 

fire service family, providing a lifetime, global network of 

family and friends.

Consider this: The fire and emergency services have some unique 

challenges to recruitment and retention that other volunteer 

organizations do not face, such as the significant time commitment, 

lengthy training requirements, dangerous work environment, and 

potential lack of family support due to the time commitment and 

dangerous work environment. However, other challenges, such as 

identifying new pools of potential volunteers, reaching younger 

audiences and finding ways to make their volunteerism message 

resonate, are similar across the volunteer world. The fire and emergency 

services can learn a great deal from other volunteer organizations 

that have had success with recruiting. Fire and emergency services 

departments should look at the messaging and recruitment and 

retention campaigns used by other local and national organizations that 

have maintained high volunteer numbers in today’s environment. Are 

there ideas, messages or concepts that could translate to the volunteer 

emergency services? Can aspects of what makes their recruitment 

and retention campaigns a success be applied to the local emergency 

services department?
8 Retention and Recruitment for the Volunteer Emergency Services

Section 2: Aging of the volunteer fire service

The NFPA’s “U.S. Fire Department Profile 2020” estimates 

that 50% of all firefighters are between the ages of 

30 and 49 years old. Volunteer departments tend to 

have a higher proportion of firefighters over the age 

of 50, and in some rural areas it is not uncommon to 

find volunteers in their 60s or 70s. About one-third of 

small-town firefighters are 50 or older. When the rates 

of volunteer firefighters per 1,000 people protected for 

mostly volunteer or all-volunteer fire departments are 

examined, the rates show a downward trend and range 

from a high of 8.05 in 1987 to a low of 5.66 in 2020 per 

1,000 population protected.

This aging population poses a challenge to the volunteer sector in that volunteer 

departments will find themselves with increasingly limited volunteers as members 

retire or otherwise find themselves unable to participate in an operational capacity. 

Younger members are needed to help fill the ranks, not just as entry-level recruits, 

but also as midlevel firefighters serving in officer and other leadership roles. The 

recruitment and retention process must be continual to ensure departments don’t find 

themselves with only older, retiring firefighters and younger recruits, without more 

experienced “midcareer” firefighters to help lead and mentor others.

Closer look: The aging population has posed a challenge for the East 

Dubuque (Illinois) Fire Department. “Our community has an aging 

population that makes it difficult for some of them to volunteer. The 

other [issue] is the fact that most of the younger people are moving 

out of the area, which makes it difficult to recruit them.”

Section 3: Training demands

The delivery of emergency services in the U.S. has become increasingly complex. The 

fire department has become the go-to agency for almost all non-law enforcement 

emergencies. This has led to the ill-born concept that the fire department must train all 

members on firefighting, EMS, hazmat, natural disasters, vehicle and water rescue, high 

angle and confined space rescue, and drone usage, to name just a few. Unfortunately, 

this leads to response agencies becoming a jack-of-all-trades but a master of few.

Unlike EMS, there is not currently a national minimum training level requirement 

for the volunteer fire service. Many states and localities adopt standards based on 

national consensus training standards developed by the NFPA. Once adopted either in 

whole or in part, these standards may require a recertification process or continuing 

education unit (CEU) accrual process. Both the initial training and the recertification/CEU 

processes pose major time constraints for most volunteer members. When multiple 

certifications are required by the state or locality, the time constraints on potential 

volunteer members become even more daunting.

In some instances, training requirements, schedules and class accessibility were 

developed for the career fire service without adequate consideration given to the 

unique needs of the volunteer service. While expectations between the career and 

volunteer models should both include providing trained, professional help in a timely 
Part I: Critical Recruitment and Retention Challenges 9

manner to handle emergencies, training requirements must take into account that 

volunteers are often balancing full-time jobs while trying to meet these requirements. 

The time frame, and in some cases the delivery method, in which training needs to be 

completed must be adjusted to better accommodate the availability of today’s busy 

volunteers, otherwise volunteers will become overwhelmed and frustrated, with 

attrition following suit.

The training of an emergency services volunteer requires 

a substantial commitment, starting with 120 hours 

for Firefighter I and 150 hours for emergency medical 

technician (EMT). Advanced, specialized and officer training 

all take a significant amount of additional training hours 

to complete. In cases where training is not offered locally, 

recruits must take time off work and away from their 

homes and families, adding to the many challenges training 

requirements pose to recruitment and retention.

The table that follows outlines the various courses that 

may be required, average hours per course, rank or level 

of firefighter needing the training, and approximate 

completion time.

Training requirements

Note: Departments should reference the unique training requirements in their state. The information below is an 

aggregate of individual state training requirements.

Training module Rank Average class 

length in hours

Approximate 

time to 

complete for 

volunteers*

Firefighter

Firefighter I All firefighters 120 hours 5 months

Firefighter II All firefighters 100 hours 4 months

Firefighter III Firefighters aspiring to 

be officers

60 hours 2 months

Officer I First-level company 

officer

40-60 hours 1 month

Officer II First-level company 

officer

40-60 hours 1 month

Officer III Command-level officer 40 hours 1 month

Officer IV Chief-level officer 40 hours 1 month

EMS licensure levels**

Emergency Medical 

Responder

Basic provider 

(firefighter)

48 hours

EMT Basic ambulance 

provider

150 hours

Advanced EMT Enhanced ambulance 

provider

200 hours beyond 

EMT
10 Retention and Recruitment for the Volunteer Emergency Services

Training module Rank Average class 

length in hours

Approximate 

time to 

complete for 

volunteers*

Paramedic Advanced ambulance 

provider

350-1500 hours 

(Committee on 

Accreditation for 

the EMS Professions 

standards)

Hazardous materials

Awareness All firefighters 24 hours 2 weeks

Operations Firefighter III/officers 40 hours 1 month

Technician Hazmat specialists 40-80 hours 1-2 months

Other courses

Vehicle operations All drivers 24 hours 2 weeks

Pumps/hydraulics All pump operators 40-60 hours 1-2 months

Vehicle extrication All firefighters and 

officers

24-60 hours 2 weeks to 2 

months

Water rescue All firefighters and 

officers as needed

16 hours 2 weeks

Wildland firefighting All firefighters and 

officers as needed

24-100 hours 1-4 months

Farm machinery 

extrication

All firefighters and 

officers as needed

25 hours 2-3 weeks

Silo rescue All firefighters and 

officers as needed

26-30 hours 4-6 weeks

Truck company 

operations

All firefighters and 

officers as needed

24-36 hours 4-6 weeks

Aerial operator 

course

All firefighters and 

officers as needed

24 hours 1 month

Trench rescue All firefighters and 

officers as needed

24-36 hours 4-6 weeks

Technical rescue All firefighters and 

officers as needed

24-36 hours 4-6 weeks

Aircraft rescue All firefighters and 

officers as needed

50 hours 1-2 months

*When taken several nights/week. Includes at least 1 (but typically more) weekend day of practical evolutions.

**Source: National Highway Traffic Safety Administration Office of EMS based on 2021 National EMS Education Standards.

Closer look: The Secaucus (New Jersey) Volunteer Fire Department 

notes that training is a barrier for some potential recruits. “The biggest 

challenge we are facing when it comes to recruiting new members is 

the time commitment. Besides a commitment to respond to incidents, 

drills, meetings, etc., new recruits often find it difficult to make time to 

attend proper training and complete state requirements to become a 

certified firefighter.”
Part I: Critical Recruitment and Retention Challenges 11

Section 4: Unmet expectations

New recruits have a certain set of expectations in their head about 

being a volunteer firefighter or EMS provider, and once they start the 

job, they often find that the reality is very different. It is unrealistic to 

recruit volunteer firefighters with visions of battling flames and heroic 

actions and expect them to become highly motivated team members 

after encountering the reality of the job. It is more common to do 

training, treat a patient for a medical call, decontaminate and restock 

the ambulance, check tire pressure on apparatus, write up reports, 

check inventory, and help the community with a host of minor tasks 

unrelated to fighting fires. If a recruit does not understand that they 

just signed up for all of this, poor morale will ensue, and the person 

may end up leaving the department.

In other cases, recruits expect to be welcomed into a close-knit 

group of supportive peers, and instead they may find themselves 

facing an outdated (and truly unacceptable) version of hazing. In 

addition to setting the department up for potential legal and public 

relations repercussions, this experience makes new recruits feel like 

outsiders and sets them up to fail as committed, valuable members of the department. 

In the NVFC’s “Volunteer Retention Research Report” (2020), 22% of former volunteers 

reported that they left their departments because the “department atmosphere was 

full of cliques and groups that exclude others.” 30% of current volunteers reported 

the same cliques and exclusion as reasons volunteers might leave the department. 

These behaviors are harmful, counterproductive and drive volunteers away almost 

as quickly as they come.

Unmet expectations about the job as well as negative treatment of recruits will 

unquestionably result in the loss of members over the short term. The latter can result 

in morale (and management) problems within the department even if new members 

stay on. And both will make recruitment more difficult because those who leave will 

share their negative experiences, sowing the seeds of discontent with friends, family 

and other community members, creating a downward spiral in recruitment that the 

department might not even realize.

Section 5: Work-life-volunteer balance

Individuals wanting to volunteer their time in their 

communities are often faced with balancing other 

responsibilities such as work, religious affiliations, children’s 

activities and other family obligations. Although a desire 

to give back to the community is a strong motivator for 

volunteerism, it can be challenging to strike a balance 

between volunteering and other life obligations. 

Complicating this is the fact that volunteering in a fire 

department is one of the most time-consuming volunteer 

opportunities available today; between extensive training 

requirements and ongoing emergency calls, it requires a 

significant commitment from the volunteer.
12 Retention and Recruitment for the Volunteer Emergency Services

The changing demographics of families may also affect one’s ability to volunteer. 

According to Pew Research Center, in 1960, 25% of households with children had 2 

working parents. In 2016, that number increased to 66%, and it is expected to keep 

increasing. Furthermore, Pew Research Center has reported that 12% of parents with 

children under 18 are also the caregiver of a parent or other adult. This makes it more 

difficult for a fire department volunteer to participate in department activities such 

as training, fundraising and responding to emergencies.

Other challenges affecting the work-life-volunteer balance may include employers 

who are unable or unwilling to accommodate emergency calls during working hours 

or are unsupportive of employees who may arrive late due to being on an emergency 

call. In addition, the time commitment faced by volunteers can put a strain on family 

relationships due to the long hours away from the family as well as missed milestones 

such as birthdays, holidays or kids’ sporting events.

As departments continue to struggle with recruitment and retention, the demand on 

active members increases. With fewer people to do the same amount of work, members 

may find themselves overextended in their time commitment to the department. This 

can lead to frustration and burnout and have a compounding negative impact on the 

department’s ability to recruit and retain volunteers.

Closer look: The Rapid Valley Volunteer Fire Department (Rapid City, 

South Dakota) finds diminished available time to be a barrier in gaining 

new recruits. “Work hours and family hours are completely dominating 

time of members and potential members. When the older members 

grew up, there was little travel for kids’ sports, but with the explosion of 

kids’ sports, families are traveling every weekend and they have games 

and practices all week. Places of work are demanding more hours from 

the workers; about half of the available work in this area for people 

in their 20s and 30s requires 6 days and 50 hours a week. Adding this 

with a family, members just do not have the time to commit to the 

department. Our most active members are either single or retired.”

The struggle with work-life-volunteer balance has also created staffing 

challenges for the Royersford (Pennsylvania) Fire Department: “We’ve 

struggled at times to staff apparatus during traditional daytime working 

hours as well as overnight as members have to weigh their work 

commitments in the morning.”

Section 6: Mission expansion

The days of a fire department only responding to fires are long gone, and the mission of 

the traditional volunteer fire department has changed. The modern fire department deals 

with a much greater range of complexities in the shape of far more emergencies and 

public assistance calls. This mission expansion has created conflict within department 

culture, complicated the leadership and financial needs of the department, and put 

an enormous strain on the time and skills of volunteer, part-time or understaffed 

administration.
Part I: Critical Recruitment and Retention Challenges 13

Data affirms how drastic the change has really been. 

According to National Fire Incident Reporting System (NFIRS) 

data, in 2019, only 4% of all reported fire department calls 

were fire related, while almost two-thirds of calls required 

emergency medical and rescue services. EMS dominates. 

The rise in EMS and other demands, coupled with the 

decline in firefighting, clashes with traditional firefighter 

culture and department traditions. For those who joined 

with visions of fighting fires, having to become certified 

for EMS and responding to a majority of EMS and other 

calls could, if not properly managed, lead to poor morale, 

frustrated or unmotivated firefighters, resignations, and 

department leaders overwhelmed with the administrative 

complexities of today’s fire and EMS services.

Departments that are struggling to keep up with everyday call volume, administrative 

requirements and significant training requirements simply do not have time to put into 

recruitment and retention. Volunteers who are unable to maintain the harried pace 

could leave, and prospective volunteers may think twice before joining an organization 

that barely has time for them.

Section 7: Leadership

Fire departments have many types of leaders. There are designated leaders, such as 

chiefs and officers, and there are informal leaders, those 

members of the department that others look up to, follow 

and seek guidance from. There may also be a divide in 

operational leadership and administrative leadership, with 

nonoperational duties such as recruitment and retention, 

building maintenance, membership, and fundraising 

falling to the president or administrative manager.

Problems can arise when there is conflict between 

leaders, conflict between leadership and membership, 

leadership that is not prepared/able to perform their 

expected duties, leadership that is unwilling to grow and 

evolve the department in positive and productive ways, 

and leadership that does not support the membership.

Leadership of a volunteer fire department is not about standing in the front yard of 

a burning house with a portable radio telling people what to do; this is emergency 

incident management. But all too often, fire department leaders are chosen for their 

emergency incident management skills, under the mistaken impression that how well 

a person manages an emergency incident indicates how well they will lead a volunteer 

or mostly volunteer fire department.

Successful leadership is about much more than emergency incident management. It 

is about providing a clear and positive vision for the fire department; communicating 

that vision to the firefighters, community and elected officials; and then working every 

day to make that vision a reality. There is a great deal of work that must be done in 

between fires and other emergencies relating to training, recruiting, planning, budgeting, 

preventing and solving personnel issues, and preparing.
14 Retention and Recruitment for the Volunteer Emergency Services

A calm, clear head under pressure at the scene of any emergency is critical, but the 

best chiefs and leaders will make sure that they are not the sole person capable of 

managing an incident. The best leaders design and implement systems that do not 

rely upon them to handle every situation. Moreover, they know their own limits and 

rely upon their officers and firefighters to fill in for their weaknesses. In departments 

that separate operational and administrative functions, the leaders on both sides need 

to understand they must work together for the good of the department, and that the 

department depends on both functions to be successful. Good leaders have developed 

a department where people are valued for their strengths and skills, not beaten down 

for the weaknesses. Good leaders also know how to utilize informal leaders within the 

department to facilitate change and garner buy-in. This results in a strong team. If the 

chief is not strong in one skill or knowledge, someone else is, and they step up to assist.

When leadership fails to set and communicate a clear and positive vision, does not 

understand or acknowledge their own weaknesses, does not delegate responsibility 

or authority to others, and allows negative actions such as cliques, bullying and unsafe 

practices to abound unabated, the department will fail. Members will become frustrated, 

feel unappreciated and undervalued, and recruitment and retention will become 

increasingly difficult. Poor leadership is consistently cited as a leading cause of why 

volunteers quit.

Closer look: The town of Canton (Connecticut) Volunteer Fire and 

EMS Department understands that leadership can make or break 

recruitment initiatives: “Challenges to recruitment involve not only 

selling the dangerous external environmental [and] health and safety 

realities of the fire and EMS service to a diminishing pool of prospects, 

but also the necessary and honest assessment of internal culture, 

communication, and strategic directives that are either conducive to 

or destructive of the goal to attract new members.”

Section 8: Department image and culture

When it comes to recruitment and retention, it is important to consider the image that 

the department puts out to the public. Nobody wants to be a part of an organization with 

a poor public image. Is there strong and effective leadership, or does the community 

see a department with infighting, disgruntled volunteers, poor leadership or morale 

problems? Often that image is deeply influenced by the organization’s culture. The 

culture of an organization is defined by the values, beliefs and behaviors of its members. 

In most organizations, the culture is developed over a long period of time, and sometimes 

the members aren’t even sure why they do things the way they do.

The department has multiple opportunities to communicate the type of organization 

it is to the public. These communications can come from simple on-duty interactions 

between department personnel and the public, as well as off-duty events such as 

family get-togethers, community events or even attending a kid’s softball game. 

Other communications may happen through news stories, press releases, posts on 

social media and information on the department’s website. When the public does an 

internet search for a department, what they find will impact their desire to join. Results 

showcasing members in action during incidents and in training, conducting fundraisers, 
Part I: Critical Recruitment and Retention Challenges 15

interacting with the public in a positive way, and taking pride in wearing their uniform 

can boost recruitment and retention efforts. On the other hand, a department with a 

poor reputation in the community, dissatisfied members and negative interactions with 

the public is not likely to be as successful in recruiting or retaining a volunteer force.

Section 9: Consolidations, mergers and regionalization

It is not uncommon for the topics of consolidations, mergers or regionalization to 

arise when discussing challenges facing volunteer fire departments, such as staffing 

shortages, financial needs and deployment problems. These are complex issues that 

vary greatly by state. State law will govern much of what can and cannot be done, and 

how it can or cannot be done. A comprehensive legal assessment is essential. State 

and local politics will also enter into the discussion and should not be underestimated.

When the idea of consolidation, merger or regionalization comes up, it often impacts 

department morale. Leadership must be prepared to manage the feelings of members. 

Members may feel that these efforts are being brought against them personally or 

based on some animosity toward them or the department by outsiders. Be honest and 

realistic about why these changes may happen, and clearly communicate to members 

the benefits to the department and their community as well as the positive new 

regionalized impacts. It is critical to keep members as well-informed as the law allows, 

and to involve them in the discussions and decisions as much as possible. Otherwise, 

the department may end up with 2 workforces coming together in an atmosphere of 

hostility that can drive existing volunteers out and make it exceedingly difficult to recruit 

replacements. Lawsuits, public outcry and poor service are also typical outcomes from 

forced, unhappy mergers and can damage the department’s public image.

Additionally, when faced with the issue of consolidation, merger or regionalization, it 

is best to address it and make decisions as soon as possible. Letting the issue drag on 

will destroy morale, create anxiety and further hurt recruitment efforts because it is 

difficult to attract volunteers to an organization that is perceived as having no future.

Also, local station of department mergers or regionalization can end up creating 

combination departments. If career and volunteer work and affiliation issues are not 

properly planned, this situation can become a cause for poor working relationships 

between career and volunteer firefighters. Strong, effective leadership is needed to set 

clear expectations regarding the working relationship, training, command structure, 

organizational roles and civility among members. Department leadership must quickly 

deal with all disputes in a manner that isn’t perceived as favoring one group or the 

other. Otherwise, leadership runs the risk of losing control of how people behave 

and could end up with grievances, dwindling ranks of volunteers, lawsuits and poor 

service to the community.

When facing regionalization, it is important to note that regionalizing a group of 

departments over a large geographic area may not result in improved response times. 

This outcome can be due to the overall geographic distances between responding 

units. For instance, merging 5 departments and putting a staffed station at the center 

of the geographic area will be great for those that live in the middle of the area, but 

as you move farther out from the regional fire station, response times get longer and 

longer. Creating a system with reasonable response times for all can be difficult. And, 

politically, the communities and residents at the edges are likely to object to paying 
16 Retention and Recruitment for the Volunteer Emergency Services

for a service that is no longer local and is far away. First responders may balk at longer 

commutes to the station and longer response times, and morale may decline as the 

department image suffers in the eyes of the community. These types of regionalization 

work best when the focus is on administrative regionalization, along with other areas 

such as maintenance, training and purchasing, but leave the local stations intact.

Closer look: While often there is resistance to consolidations or 

mergers, if done well, it can be a solution to address staffing and funding 

issues facing local departments. An article from The Reading Eagle 

on June 1, 2021, reported that over the past 15 years, several large 

municipalities in Berks County and the Tri-County area in Pennsylvania 

consolidated independent volunteer fire companies serving the 

same communities into 1 fire department helmed by a paid chief or 

commissioner. The new municipal fire departments are able to pool 

equipment and volunteers to better respond when the community 

calls. In addition, municipal governments now have more control over 

how money from fire taxes is spent.

Section 10: Tension with local government

How a volunteer fire department is structured varies by department, with some part 

of the local government and some separate. Funding sources also vary, with some 

departments fully funded by the local government, some partially funded by local 

government and some completely on their own. However, just like the community, the 

local government benefits from the fire department, and the fire department benefits 

from local government support.

Unfortunately, many departments have weak or even poor relationships with local 

officials. Local officials and department leaders may find themselves at odds instead 

of working together to ensure the community has the emergency services it needs. 

This can create obstacles to the success of the department, including in areas of 

retention and recruitment. In many instances, the fire department may not even try 

to approach the local officials for support as they may see it as too difficult a process 

for too little gain or think they will have to sacrifice too much autonomy if the local 

government is involved.

One of the greatest contributing factors in a poor relationship between a fire or EMS 

department and local officials is lack of transparency and insight into response and 

operational data. However, the government officials need this additional information 

to justify potential expenditure for the department. Another point of tension is a 

fundamental lack of understanding exhibited by elected officials about the department. 

It is not uncommon for those who are in positions of power to simply not understand 

the information being presented to them, and they are often placed in scenarios of 

making decisions in a short amount of time.

The local government can and should be a great source of support for the fire 

department. In addition to financial support, the local government has a plethora 

of resources at its disposal that can be utilized by fire and EMS departments to help 

alleviate some of its staffing challenges. These include assistance with administration, 

human resources and legal support; funding incentives that help with recruitment 
Part I: Critical Recruitment and Retention Challenges 17

and retention; and raising awareness in the community of the need for fire service 

volunteers. Open and honest communication, transparency, and a willingness to 

cooperate are keys to breaking down barriers that exist between the department and 

the local government.

Section 11: Other challenges

Volunteer firefighters contribute millions of hours to staffing apparatus, maintaining 

buildings and equipment, training, fundraising, and a host of other activities related 

to serving their communities. In doing so, they must often adhere to legislation, 

standards, codes and best practices. Achieving compliance can challenge even the 

most progressive and well-equipped volunteer department. Some of these challenges 

include the following.

The Fair Labor Standards Act

This federal law defining compensation and overtime is most critical for volunteer 

leadership tobe aware of when considering what constitutes a “volunteer” firefighter 

and incentives departments can use for recruiting and retaining their members. The 

Fair Labor Standards Act (FLSA) includes caveats as part of the definition of “employee” 

that allow for volunteers who receive nominal benefits and/or are employed by the 

employer, but in a different capacity thanthe one in which they volunteer, to provide

services on a volunteer basis.

29 USC 203(e)(4)(A) The term “employee” does not include any individual who volunteers 

to perform services for a public agency which is a State, a political subdivision of a 

State, or an interstate governmental agency, if –

(i) the individual receives no compensation or is paid expenses, reasonable 

benefits, or a nominal fee to perform the services for which the individual 

volunteered; and

(ii) such services are not the same type of services which the individual is employed 

to perform for such public agency.

Subsection (i) is significant because it establishes that volunteers can receive some 

benefits without being considered an employee by the DOL. In a 2006 letter to the 

International Association of Fire Chiefs (IAFC), the DOL established that for a fee paid 

to a volunteer to be considered “nominal,” it cannot exceed 20% of what the public 

agency employer would otherwise pay to hire a full-time employee for the same 

services. There are also a number of other stipulations beyond the 20% rule that must 

be met in order for benefits to be considered “nominal.”

Subsection (ii) allows for someone to volunteer for their employer as long as they are 

not providing the same services on a volunteer basis that they provide in their role 

as an employee. In other words, a career firefighter is not allowed to volunteer as a 

firefighter for the same fire department that they work for, but an employee of the 

city who works in a different part of the municipal government could still volunteer 

for the municipal fire department. This can become an issue when a volunteer fire 

department hires 1 or more of its volunteers to fill a paid staff position.

The IAFC’s “Managing Volunteer Firefighters for FLSA Compliance: A Guide for Fire 

Chiefs and Community Leaders” is a great resource to help volunteer fire service 

leaders navigate these and other FLSA-related issues.
18 Retention and Recruitment for the Volunteer Emergency Services

Medical examinations

Fire departments should take every step possible to minimize the physical and mental 

risks their members may face. Some volunteer fire departments may require annual 

or regular medical examinations. Other fire departments may fear losing members 

if medical examinations are required, so their only requirement is for a member’s 

physician to sign a form stating that the member is fit for duty. This reduces the 

liability of the fire department but doesn’t protect the member from physical risk. To 

best protect members and reduce fire department liability, it is a recommended best 

practice for members to have a thorough examination following NFPA 1582, Standard 

on Comprehensive Occupational Medical Program for Fire Departments.

If a fire department is unable to provide an annual physical, it is important that members’ 

primary care providers understand the health risks firefighters face and the most 

up-to-date research on firefighter health. The IAFC released the “Healthcare Provider’s 

Guide to Firefighter Physicals,” which can be downloaded and provided to the primary 

care provider to help evaluate and treat firefighters. The NVFC Position on Firefighter 

Medical Assessments provides guidance to volunteer departments on firefighter 

physical options.

Financial limitations are often cited as the reason why a volunteer fire department 

doesn’t provide medical examinations to members or potential members. Requiring 

members to pay for their own medical examination may often be a barrier to recruitment 

and retention. One way to address this is to actively recruit a local doctor to provide 

physicals for free or at a discounted rate.

2 in-2 out

Occupational Safety and Health Administration (OSHA) Regulation 1910.134(g)(4) is a 

component within the OSHA Respiratory Protection Standard that requires a rescue 

team of at least 2 properly equipped and trained personnel to be in place prior to 2 

other properly equipped and trained firefighters entering an Immediately Dangerous to 

Life Hazard environment. The requirement is an outgrowth of OSHA requirements for 

workers entering environments that are oxygen deficient, poisonous or have elevated 

temperatures. The impact of the ruling has caused strains to volunteer departments as 

they have had to increase staffing per duty shift, member rolls and/or units assigned 

to calls. The requirement can be used as a talking point in recruitment efforts.

State and local challenges

In addition to challenges presented on a federal level, there are also state and local 

regulations that may impact a fire department’s ability to recruit and retain volunteers. 

These challenges typically include a set number of hours of training required to be 

certified (or recertified) as a firefighter, fire officer, EMT or paramedic, etc. Additionally, 

there are minimum age requirements at which a person can fully function as a firefighter, 

EMT, etc. Costs of initial and annual medical examinations also impact fire departments. 

Departments can work with their municipal government to identify and address any 

local challenges that may exist. The state firefighters’ association should be able to 

assist in identifying statewide challenges or pointing departments to the right state 

agency for assistance.
Part II: Collaborating With Local Government 19

Part II: Collaborating With Local 

Government

Many states require local government to provide for fire 

protection. Yet, while local governments pay for many 

kinds of services for their residents — including police, 

water and sewer, among others — in many cases, volunteer 

fire and EMS departments are either left largely on their 

own to fund their services or are provided a revenue from 

the local government that does not meet the full costs 

of operating a department and purchasing necessary 

equipment. These fire and EMS departments provide 

essential public safety services in their community, from 

responding to emergencies of all kinds to preventing them 

from happening in the first place.

It is the local government’s role and responsibility to reach 

out and develop, support and maintain an open partnership with the volunteer fire 

and emergency services in order to ensure that their citizens have adequate fire 

protection. At the same time, fire and emergency service departments need to foster 

and maintain this relationship with local government to get the support they need to 

operate effectively.

According to the NFPA, it would cost communities across the country nearly $47 

billion annually to replace volunteer firefighters with career staffing. Many small 

town and rural communities cannot afford to switch their staffing model to paid 

firefighters. In addition, community members may pay a high price in property damage 

or life-threatening situations if there is slow fire department response due to a lack of 

active volunteers. Residents may also have to pay higher insurance premiums if poor 

department response times and insufficient training and equipment leads to a worse 

rating from the Insurance Services Office or American Association of Insurance Services. 

It is in the best interest of the local government to support the fire department and 

provide them with the resources and assistance they need to be successful. The costs 

related to such support are far more manageable than the cost community members 

would face if the locality switched to an all-paid fire service.

Consider this: The state government in Pennsylvania realized it 

needed to step up as the numbers of volunteers dwindled in the state. 

In recognition of the situation, the state legislature passed Senate 

Resolution 6 in 2017, which included establishing a commission of 

lawmakers, municipal officials, and fire and emergency service leaders to 

work on solutions to assist fire and EMS systems. The commission issued 

a report the following year urging action and warning of a public safety 

crisis as the number of volunteer firefighters in Pennsylvania dropped 

from 300,000 in the 1970s to just 38,000 in 2018. The report listed close 

to 100 recommendations for how the state and local governments can 

be part of the solution.
20 Retention and Recruitment for the Volunteer Emergency Services

The Delaware General Assembly also created a task force to determine 

how to improve volunteer firefighter recruitment and retention within 

the state. A June 16, 2021, article from First State Update reprinted 

the findings and recommendations of the task force, which included 

additional training; a website and marketing campaign; vocational 

training, college credits and tuition reimbursement for students; and 

a tax deduction.

The NVFC conducted a survey in 2020 to gain a better understanding of how local 

governments across the country currently support volunteer fire departments, as 

well as the types of support volunteer fire departments still need. The majority of the 

departments that responded to the survey were either nonprofit (45%) or municipal/local 

government (41%). 80% were located in communities with a population under 25,000.

On the positive side, 74% of respondents described their department’s relationship 

with local government to be good or excellent. In addition, 82% said they receive 

support from local government. However, the survey found that this support did not 

always match the needs of the department. For instance, 41% indicated they need 

local government support with volunteer recruitment, but only 7% said they have this 

support. 29% need help with awards/recognition, but only 12% have the support. 32% 

need help with pension/Length of Service Award Program (LOSAP) programs, while 

20% have this help.

While just a snapshot of fire departments, the survey does show that when it comes 

to working with local government, there are many areas that can be improved. From 

providing more funding, to offering staffing support in the form of human resources 

and retention benefits, to assisting with marketing to gain new recruits, there are many 

ways that local governments can support their community’s fire and EMS department. 

Both department leaders and local governments need to take the initiative to build 

a better partnership to ensure that the department has what it needs to serve the 

community safely, effectively and efficiently. This includes department leaders educating 

local leaders on what is needed, why it is needed and the importance of this assistance 

to the municipality.

In action: According to a spring 2021 article in the Sea Isle Times, the 

Sea Isle (New Jersey) City Council showed its support for the Sea Isle 

City Volunteer Fire Company by establishing a duty crew program to 

ensure the department would have staffing at all hours. Volunteer 

firefighters who take night duty shifts during the summer and other 

select times will get a $160 payment per 12-hour overnight shift. This 

is in addition to the pay-per-call stipend that was already established. 

Up to 4 volunteers can participate each night. The council capped the 

program at $30,000 per month.
Part II: Collaborating With Local Government 21

Section 1: Department funding

How volunteer fire and EMS departments are funded is 

wildly variable across the U.S. Some departments are 

fully funded by local government, others get no local 

government funding at all, and then there are those that 

get local government funding that does not support the 

entire operation.

However, while there is some similarity with how local 

recreation programs and libraries may be funded through a 

mix of tax dollars and donations, the volunteer fire service 

is far and away the public service that is most reliant on 

fundraising to provide essential public services.

There is no reliable data that reports how much volunteer fire and EMS departments 

rely on fundraising, but observations indicate it is widespread and a deeply ingrained 

practice. The “Fifth Needs Assessment of the U.S. Fire Service” published by the NFPA in 

2021 found that fire departments in communities under 2,500 averaged 12% share of 

revenue from fundraising compared with 74% from taxes. However, that statistic does 

not tell the full picture. There are departments that rely on fundraising for a far greater 

percentage of their revenue, and there are many departments where the revenue from 

taxes or other government funding sources only covers basic operational expenses 

and not enough for new equipment, gear and apparatus. In the world of $500,000 fire 

engines, $300 helmets and $600 nozzles, most long-held fundraising practices cannot 

keep up with the costs of running a modern fire department.

Consider: How does a small town of 500 residents raise $250,000 to purchase a modest 

fire engine? Selling 16,666 chicken dinners at $15 a piece is not a realistic goal. The 

fundraising challenges are compounded if all the neighboring towns are also trying 

to do the same thing.

Budget concerns also impact recruitment and retention in various ways. For one, the 

department may not have the time or resources to spend on recruitment or retention 

initiatives if they have to prioritize fundraising to make ends meet. Also, prospective 

and new recruits may think twice about joining or staying with the department if much 

of their time is spent cooking chicken or setting up bingo halls.

Meanwhile, the gap between the “haves” and the “have nots” is growing wider and 

wider. A group of chronically underfunded volunteer fire departments is developing. 

These departments are falling behind on equipment, training, new missions and their 

operational ability to serve their communities. These departments have old trucks, 

unsafe personal protective equipment (PPE) and substandard stations. On the other 

side, departments with significant public funding, and/or with adequate public funding 

supplemented by fundraising, are progressing faster and further. They are keeping up 

with training needs and generally have better equipment.

Many community members assume that public safety is a necessary public service 

afforded to residents, but the costs of this public safety often aren’t factored into this 

assumption. Public safety protection can be highly effective given adequate funding 

to provide for the necessary equipment and PPE to provide that protection. However, 
22 Retention and Recruitment for the Volunteer Emergency Services

in areas where that funding is simply not available, there is likely to be a degradation 

in service, and yet the link between funding and service isn’t often clear to the general 

community.

Closer look: The need for local government to support volunteer fire 

and EMS departments cannot be overstated. If volunteer departments 

fail due to lack of funding or members, the entire community suffers 

and critical public services may be lost. In some communities, this is 

no longer a hypothetical. According to an article in the New York Times 

from April 25, 2021, at least 10 localities in Wyoming were in danger of 

losing ambulance service due to budget and/or volunteer shortages, 

which would leave communities without nearby EMS.

A May 12, 2021, story from ABC 12 News in Flint, Michigan, reported 

that volunteer fire department staffing shortages in mid-Michigan have 

resulted in cases where there are too few firefighters responding to the 

scene, with departments relying on mutual-aid deployments that then 

leave those communities with thin staffing. Adequate volunteer numbers 

are needed to improve response times and save lives and property.

Barriers to local government funding support

There are many barriers to increased local government support of volunteer fire and 

EMS departments. For starters, there are 50 different state laws regarding how to 

organize, fund and operate a fire department. This means that the funding issues vary 

from state to state, and many states have multiple systems. The result is that no one 

solution is going to address the hundreds of different types of situations that exist.

For example, in Massachusetts, cities, towns and counties are not required to provide 

fire protection. Whether they do and what level of protection they provide is strictly 

a local matter. And, while every fire department in Massachusetts is a municipal 

department, the funding varies dramatically from town to town. According to data 

from the Massachusetts Call/Volunteer Firefighters Association, the typical small town 

(under population 2,500) fire department in Massachusetts had an annual budget 

of $58,663 in 2015. As a result, many of these departments are supplementing their 

budgets with fundraising while running 25- and 30-year-old trucks, operating out of 

old garages, and struggling to keep firefighters in compliant PPE.

Another barrier to local government funding of volunteer fire departments is that 

some departments, or at least their leadership, do not want government funding. 

They feel that government funding comes with too many strings attached and may 

also not want the transparency that comes with public money. They are unwilling to 

give up the traditional ways, even if it means better funding and being better able to 

meet their mission through the training, newer trucks and new equipment that tax 

dollars will bring.

These departments see purchasing and bidding requirements as an impediment to 

success. They see accounting rules, human resource procedures and having to report 

response times as burdens that interfere with their operation. They may also have had 

bad experiences working with local government officials in the past and are reluctant 

to try again. These perceived obstacles are not cumbersome and can be resolved with 

frequent updates to the local government with automated reports that are readily 
Part II: Collaborating With Local Government 23

available through the public safety answering point or the department itself. Elected 

leaders are in the business of making sure their constituents are properly represented, 

and their safety is a top priority. The indication that departments encounter burdens 

is easily resolved if effective lines of communication are established and followed.

Closer look: Some fire departments report that it is difficult to build 

long-term relationships with government officials when the positions 

keep revolving. This frustration is felt by the Berwyn (Pennsylvania) 

Fire Company. “Our townships have supervisors that take years to be 

brought up to speed on the inadequacies of our operations. Seems like 

just about the time they ‘get it’ there is a new group of supervisors and 

we have to start all over. Too much passing the buck down the road.”

The public officials and community leaders that fire departments are turning to with 

those requests (when they make them) are also part of the problem. Many are reluctant 

to fund the fire department. Given the choice between spending public money on 

replacing a 15-year-old snowplow for $189,000 or replacing a 30-year-old fire truck 

for $300,000, they will pick the snowplow every time. For a fire department that goes 

to 80 or 100 emergency calls per year, and less than 10 of these calls are actual fires 

of any kind, the need to invest hundreds of thousands of dollars in a response vehicle 

is a tough sell to town officials.

In addition, when the fire department becomes part of small-town politics and finance, 

it also falls into competition with other public services that impact citizens daily and 

have powerful advocates, such as the highway department or schools.

Closer look: The Aberdeen (Maryland) Fire Department Inc. notes 

that challenges they face in working with local government include 

developing an understanding with city council of the difference between 

fire department services and other civic groups, establishing the 

department as a resource to city government, and being involved 

with appropriate decisions that affect public safety.

Section 2: Making the case for support

The importance of educating governing bodies about 

the services provided by the fire/EMS department 

and encouraging a symbiotic relationship cannot be 

underestimated. Ensuring local government understands 

the value volunteers bring to the community in clear, 

specific terms can go a long way in obtaining their buy-in 

to the mission, goals and needs of the department and 

can better position the department to be able to recruit 

and retain much-needed volunteers.
24 Retention and Recruitment for the Volunteer Emergency Services

Consider this: Local government officials may benefit from a better 

understanding of the day-to-day needs of the fire or EMS department 

through experiencing it firsthand and talking to department members. 

Consider hosting a training day that local government representatives 

can attend, invite them for a ride-along or to participate in the 

department’s Citizen’s Academy, work with a local training facility to 

allow them to experience certain aspects of the job, and/or ask them 

to attend fundraisers and other community activities the department 

hosts. These events can also be used to educate local officials on all 

the fire department does for the community besides fighting fires.

Lines of communication between the department and local government should be 

ongoing. Department leaders should be transparent about how local support is being 

used and how the community is benefiting.

There are resources to help departments better engage public officials at all levels of 

government, including the NVFC’s “Guide to Communicating with Elected Officials,” and 

the “Beginner’s Guide to Working with Elected Officials” offered by ICMA. See Appendix B: 

Considerations for Department/Government Support for a list of considerations 

that departments and local governments should keep in mind to facilitate effective 

communication.

In action: The West Whiteland Fire Company (Exton, Pennsylvania) 

stresses that communication and transparency are key in building a 

strong relationship between the department and local government. 

“Being transparent has reaped the rewards over the years. We are in 

almost daily contact with the township management and meet monthly 

with the Board of Supervisors.” Their tip for fire departments working 

with local government: “Communicate, communicate! Ultimately the 

governing bodies will have to address the level of service. There should 

be no surprises.”

The Berwyn (Pennsylvania) Fire Company recommends keeping open, 

honest and direct communication with local officials as frequently as 

possible. They have monthly reports and bimonthly meetings with 

the 2 townships they serve and the other area fire departments. 

In addition, they annually present an “ask” for funding from the 2 

townships. “We are an open-book organization with our townships 

and share all information.”

The Gaston (North Carolina) Volunteer Fire Department formed a 

partnership with local government through one-on-one talks with 

the county manager and board of commissioners. Their tip for other 

departments is to: “Have a good working relationship with government 

leaders and be able to demonstrate how their efforts equate into a 

better emergency response.”

Conversely, a poor working relationship and lack of communication 

between the local government and the volunteer fire department 
Part II: Collaborating With Local Government 25

could have dire consequences. News stories in May 2021 reported on 

a volunteer fire department in Burlington County (New Jersey) that 

was suspended by the township, leaving protection of its residents 

up to outside fire services. While the local officials claimed they had 

made the department aware of its concerns, the department leaders 

said they had gotten no warnings and were not given any reason as to 

why the department was suspended. While subsequent talks helped 

both sides see common ground and work toward a resolution, the 

situation could have been avoided with better ongoing communication 

and collaboration.

In communicating to city and town leaders concerning why they need additional support, 

volunteer departments should utilize data-driven requests, reports or proposals. 

More information on data is provided in Part VI: Using Data to Drive Recruitment 

and Retention Efforts of this guide. The NVFC’s Cost Saving Calculators can help fire 

and EMS departments determine and present the local cost-savings their volunteers 

provide the community. Similarly, the local government may need support from the 

department in terms of data, reports or even something as simple as extra staffing 

at community-sponsored events.

Department leaders need to remember that their request for support requires validity. 

Far too often, departments present funding requests that are considered unrealistic 

by local officials without supporting documentation. One suggestion is to offer viable 

options when requesting the funding or ancillary support. Engage local elected officials 

and provide them with the information and solutions the department needs to operate.

In action: Mulvane (Kansas) Fire Rescue realizes that in order to maintain 

government support, they need to show the value of the department. 

“I use every chance I get to remind my city council and fire board that 

the money they save utilizing volunteers should be invested in having 

the best equipment possible so our firefighters go home safe at the 

end of the call!”

The Carlisle (Massachusetts) Fire Department emphasizes to local 

officials the better service that a dynamic staffing model allows. 

They also have become the go-to department for solving the town’s 

logistical problems. They provide manpower and services for things 

like building temporary buildings or doing COVID-19 testing for all the 

town’s residents during the pandemic.

According to the Royersford (Pennsylvania) Fire Department, “The 

biggest thing that we have found is that most decisions from the local 

government are data-driven. Without proper data to reflect your needs, 

it becomes tough to justify the department needs.”
26 Retention and Recruitment for the Volunteer Emergency Services

Section 3: Working together to meet the community’s needs

Government entities can provide support in a variety of 

ways, and not all of them have to be costly. The following 

are some examples of how the local government can 

partner with the fire department to assist with staffing 

needs such as recruitment, retention and administration. 

Additional examples are included throughout this guide 

and in Appendix B.

Many states have laws that prohibit a town from using 

public funds or resources to benefit private organizations, 

including nonprofit volunteer fire or EMS departments. In 

cases where these laws would impede the local government 

from helping a fire or EMS department, the laws might have 

to be amended or repealed, or in some cases a contractual 

agreement could be made that makes support services 

by the town a part of the agreement for public fire and 

emergency service protection.

Consider this: Local governments and departments should think 

outside of the box when it comes to opportunities to collaborate in 

order to bolster volunteer recruitment and retention. For instance, 

there is some movement in Carlisle, Massachusetts, to turn unused 

town buildings into housing for on-call personnel, which could make 

a major difference in recruiting and retaining community members.

Administration

Many chiefs are overwhelmed with paperwork. At the same time, they may lack the 

specific skill set to best deal with the administrative aspect of the job. Local government 

can provide a professional administrator to assist department leadership. Depending 

on the size and activity level of the department, this might be a 1 or 2 days a week, 

part-time position, or it might be a full-time job. Another option would be for a group 

of towns to band together to hire a full-time administrator that would help a group 

of departments.

The administrator would ideally excel at filing, deadlines, responding to document 

requests, writing reports, gathering data and tracking training. While the department 

chiefs would have the overall authority in their department, the administrator would 

have limited authority to complete reports, chase members for compliance with 

regulations and filling out forms, and handle bill paying, routine purchasing and 

monthly reports.

To avoid the costs of hiring a full-time administrator, another option is to obtain the 

services of a consultant to help bridge the gap to complete the tasks that inundate the 

chief/director. There are companies that provide temporary assistance for administrative 

tasks at a fraction of the overall cost of a full-time employee.
Part II: Collaborating With Local Government 27

In action: The Blue Ridge (Virginia) Volunteer Fire Department maintains 

a good partnership with the career staff of the county fire and EMS 

department. Through this partnership with the county, they were 

able to get a full-time recruitment and retention specialist to help 

with administration and marketing for new recruits. The recruitment 

and retention committee meets monthly with the specialist. However, 

keeping the volunteers involved is critical to success. “Continue to stress 

how important it is for the volunteers to feel a part of the overall system. 

A suburban/rural mixed county will not have the tax base to support a 

full-time career staff, so it is important to keep the volunteers involved 

and part of the process.”

Moscow (Idaho) Volunteer Fire and Ambulance relies on their local 

government for administrative support, which benefits their recruitment 

and retention efforts. “The City of Moscow supports the volunteer agency 

with administrative staff to help volunteers through onboarding, training, 

equipment, and general support. This allows for more consistent followthrough with new volunteers and allows our volunteers who signed up 

to volunteer as firefighters and EMTs to actually be first responders and 

not agency administrators.”

In Centre County (Pennsylvania), the Centre Region Council of Governments 

set up a Regional Fire Protection Program to provide the support and 

assistance necessary to ensure the volunteer Alpha Fire Company can 

deliver quality services to the community. This includes ensuring the fire 

company has the facilities, equipment, personnel, and recruitment and 

retention support it needs. Program administration is handled by a fire 

director, volunteer fire chief, 2 full-time and 2 volunteer assistant chiefs, 

a full-time office manager, and other volunteer officers.

Accounting

Requesting that the community’s accounting office assist in managing the fire or EMS 

department’s books and procurement systems could allow the department to focus 

resources on emergency response, so long as the government support is focused on 

ministerial duties and does not try to strip the fire/EMS company of making its own 

financial decisions. Local government involvement can also add another layer of checks 

and balances when it comes to ensuring the financial integrity of the department.

Human resources

The government entity could provide guidance from a human resource professional to 

ensure the fire/EMS department is following rules and best practices in their recruitment 

and onboarding processes. This support can alleviate the burden felt by department 

leadership and provide much-needed expertise the department may not otherwise have 

access to. In addition, the government’s human resources department or other entity that 

performs background checks for government employees could assist the department 

by performing the necessary background checks for potential department recruits.
28 Retention and Recruitment for the Volunteer Emergency Services

Marketing and awareness

The government entity can help communicate the need for volunteers, promote 

department activities, provide awards and recognition for high-performing department 

members, and highlight department successes, thereby aiding in recruitment and 

retention efforts.

In action: Royersford (Pennsylvania) Fire Department relies on local 

officials to help amplify the department’s messages. “Social media and 

engaging with the community is a game-changer. Royersford Borough 

is a tremendous community with a phenomenal mayor and Borough 

Council who routinely share and spread the posts from the department. 

Don’t underestimate the value of those partnerships.”

A Jan. 29, 2021, article in the Daily Progress highlighted a new marketing 

campaign that the Orange County (Virginia) Board of Supervisors 

and the 5 volunteer departments that make up Orange County’s fire 

service were getting ready to implement. The county planned to hire 

a marketing firm to create a new recruitment campaign to attract 

volunteer fire and rescue personnel.

Volunteer pool

Local government employees could be a source of prospective fire or EMS department 

volunteers. Government officials can distribute recruitment information or host 

informational sessions with the fire/EMS department and local government employees 

to encourage them to consider volunteering in their off time. Government agencies 

could consider offering incentives or flexible scheduling to those who volunteer.

In action: The West Whiteland Fire Company (Exton, Pennsylvania) 

received 4 additional daytime certified firefighters thanks to their 

partnership with the local government. The Board of Supervisors 

encourages government employees to participate as volunteers for 

daytime response and provides an annual stipend for those who do. 

They also provide an income tax credit up to $500 for volunteers who 

live or work in the township and continuously promote the department’s 

need for volunteers in their monthly newsletters.

However, the Carlisle (Massachusetts) Fire Department warns that 

paid-on-call departments that are part of the local government may 

meet obstacles when it comes to town employees volunteering. Their 

town discourages or disallows town employees from joining the fire 

department because of overtime rules.

Health and wellness

There are many ways the local government can support the health and wellness of its 

community’s volunteer firefighters and emergency services personnel. This includes 

giving volunteer fire and EMS department members access to their Employee Assistance 
Part II: Collaborating With Local Government 29

Program (EAP), adding volunteers to their health insurance plans, providing annual 

NFPA 1582 physicals and offering life insurance to volunteers. In addition, if the local 

government runs any community centers with gym equipment or exercise classes, 

they can provide complimentary access to emergency services volunteers.

Consider this: One hurdle that may need to be overcome is the local 

government entity not being on the same timeline as the department is 

when it comes to onboarding new recruits. The Carlisle (Massachusetts) 

Fire Department, for instance, notes that it can take months to get a 

town physical for new recruits, which is an impediment to onboarding. 

“Full-time employees do not understand the needs of recruiting and 

getting new personnel involved ASAP after recruitment.” Department 

leaders may need to educate local officials as to why a specific timeline 

should be followed, such as needing a quick onboarding process so 

as not to lose any potential new recruits or because the department 

is short on members and needs to get new personnel trained quickly 

to keep up with response demands. Having examples or data to back 

up the need for a specific timeline will be helpful in communicating 

the urgency.

Retention benefits

The local government can support the retention of volunteers through benefits such 

as real estate tax exemptions, establishing a LOSAP or setting up a 457 retirement 

plan for volunteers where the town contributes matching funds.

In action: Having a positive working relationship with the town 

government has enabled the South Windsor (Connecticut) Fire 

Department to have a robust retention program for its 120 members.

“We are very blessed with great support from the community leaders 

— especially through the budget process. When a member joins, there 

is NOTHING out of pocket. We provide a full NFPA 1582 physical [and] 

full background and motor vehicle checks. Upon completion of the 

intake process, they are issued a full NFPA-compliant set of turnout 

gear, pager, access to I Am Responding, and full coverage of insurance 

by the town. All training, from tuition to books, is covered in addition to 

a training stipend. They have full use of department vehicles to travel 

to/from training.

“Additionally, the town/department provides a Length of Service Awards 

Program (LOSAP). It’s similar to a retirement program, but not exactly. 

The average member will receive between $200-300 monthly after 

being fully vested.

“We also offer a tax abatement program based on a tiered system of 

a percentage of $1,500 annual — after 2 years 25%, after 5 years 50%, 

after 7 years 75%, and after 10 years 100%.”
30 Retention and Recruitment for the Volunteer Emergency Services

Section 4: Case studies

While there are a variety of approaches to forming a collaboration between the local 

government and the volunteer emergency service department, the following case 

studies spotlight how 3 departments are able to enhance their recruitment and retention 

initiatives by working with local government.

Moscow Volunteer Fire and Ambulance

Moscow Volunteer Fire and Ambulance is a rural, mostly volunteer department located in 

northern Idaho on the border of Washington state. The department has approximately 

115 volunteers and has had great success recruiting local college students.

As volunteers found themselves taking on more and more administrative responsibilities, 

they advocated using funds generated from the ambulance service — which would 

typically be used to purchase equipment, vehicles, uniforms, etc. — to pay for a 

specialist that could handle the recruitment, retention and administrative tasks that 

were difficult for time-constrained volunteer first responders to manage. The city of 

Moscow stepped in and added this job as a paid city position in 2018.

Pam Rogers, a 10-year volunteer with the department, took the paid administrative 

position with the city, helping to ease the transition and build initial trust with the 

department. To keep the relationship strong and continue to build trust with new 

volunteers she never served with, Rogers continually solicits volunteer feedback about 

decisions and communicates as much as possible through a variety of methods, such 

as email, group text and, for a while, a department newsletter. She also makes herself 

available outside of city business hours to meet the needs of volunteer schedules.

The city also helps the department maintain continuity when volunteers who head 

a program, conduct trainings or lead a station must leave their post due to life or 

family circumstances. In these situations, a city staff member will step in to assume 

the responsibilities until another volunteer can take over. Again, communication has 

been key to make sure no toes are stepped on.

The city is invested in supporting the volunteer system, and the department relies on 

the city to handle the significant workload involved in hiring, onboarding, managing and 

supporting over 100 volunteers. In coordination with the department leadership, a small 

administrative team employed by the city of Moscow manages the entire application 

process, including background checks, coordinating interviews and subsequent 

onboarding for applicants the department accepts. They also contact applicants not 

chosen by the department to be volunteers.

In Rogers’ position with the city, she also helps ensure volunteers are meeting 

participation requirements. She works with department leadership to identify those 

not meeting the minimum requirements and contacts them after a month for an 

initial check-in to make sure the volunteer is OK and let them know the department 

misses them. Most of the time this is sufficient to resolve the issue. When it’s not, she 

follows up again after 2 months with a reminder that the volunteer needs to meet 

minimum requirements and that the next step is either probation, leave of absence 

or resignation. If the department ultimately decides to terminate the volunteer, the 

city staff handles the meeting and correspondence.
Part II: Collaborating With Local Government 31

In addition, Rogers provides the department with information technology (IT) support, 

updates the website, manages Google accounts and training logins, develops training 

videos and manages social media. She solicits input and help from any volunteer that 

wants to assist and offers training to interested volunteers in various areas such as 

creating graphics or making training videos.

To facilitate collaboration and communication, volunteer EMS leaders from local agencies 

in Latah County and the local government staff supporting the agencies meet every 

few months to talk about updates in protocols, training opportunities, communications 

with each department and volunteer leadership. They have a small budget provided 

by Latah County that can be used to purchase equipment and conduct trainings. This 

helps ensure that all of the stakeholders are on the same page and support each other 

in service to their rural area.

Says Rogers: “There has been a significant increase in call volume with EMS over the 

last five years, and there are current strains on our national and local health system 

with COVID. [The city of Moscow] is currently working with the volunteer leadership 

[at Moscow Volunteer Fire and Ambulance] to identify opportunities in improving 

participation and response times and to identify any other resources that may be 

needed. We are all working together to make sure our community continues to get the 

care they need by our volunteer department, first responders, and city.”

Briarcliff Manor Fire Department

Briarcliff Manor Fire Department is an all-volunteer department with 150 members in 

a suburban community in New York. The department is part of the local government 

and works with the mayor’s office, village manager’s office, department of public works, 

American Legion Post and Rotary Club to enhance recruitment and retention initiatives.

Communication was key in solidifying the partnership with local government, and 

the department also created partnership opportunities at village events. Challenges 

they have experienced include personality conflicts, fears of losing staff attention to 

primary government tasks and tightening budgets.

Among the ways that local government supports the department’s volunteer staffing 

initiatives are:

ĵ Supporting administration of LOSAP.

ĵ Marketing through community-based publications and events.

ĵ Supporting new membership through recruiting, retention and engagement initiatives.

Thanks to the local government support, the department was able to launch a digital 

advertising campaign aimed at recruitment in the spring of 2021. In addition, they 

encourage other departments to dig deep to uncover outreach programs where 

partnerships may attract fire department prospects, such as high school internship 

programs, children and family events, and holiday events.

Culpeper County Volunteer Fire & Rescue

Culpeper County Volunteer Fire & Rescue is an all-volunteer department serving a 

rural community in Virginia with 590 volunteers. The department is separate from the 

local government but works with the Culpeper County Board of Supervisors, county 

administrator and county attorney for administrative support, recruitment and retention 

benefits, and funding for training and resources that support volunteer staffing.
32 Retention and Recruitment for the Volunteer Emergency Services

The county provides the department with an operations budget for recruitment and 

retention activities and supplies a part-time administrative assistant to assist with 

recruitment and retention. They also offer incentives to the fire department volunteers, 

including a property tax waiver on 1 vehicle, workers’ compensation insurance and 

death benefits.

In order to establish a partnership with the local government, the department worked 

with the county administrator to create the part-time administrative assistant position 

for the benefit of all 8 volunteer agencies in the county. The position reports directly 

to the Culpeper County Volunteer Fire and Rescue Association and also works with 

the department’s recruitment and retention committee.

The key in building the partnership is open and ongoing communication, transparency, 

and a strong dialog between the department and the county government, including 

the Board of Supervisors, town council and planning commission. They have regular 

meetings where the department provides updates on successes as well as their needs 

and areas of improvement. They communicate to local officials the efforts required 

to provide service in an all-volunteer system, including time, training, fundraising, 

community involvement, fire prevention, the growing demands the community places 

on emergency services and feedback on new infrastructure. The department has a 

solid financial process that provides checks and balances and reports on income efforts 

in fundraising, as well as training and equipment needs.

The partnership between the department and the local government has opened up 

avenues for volunteer recruitment. For instance, thanks to the part-time administrative 

assistant, the department has been able to foster an ongoing relationship with the 

Chamber of Commerce as well as with local radio and television stations, the library, and 

other outlets for recruitment. Having an administrative assistant has also enabled the 

department to post information on social media more regularly. The budget provided 

by the local government enables the recruitment and retention committee to expand 

their reach through things such as banners, brochures and paid social media promotion.
Part III: Recruitment Strategies 33

Part III: Recruitment Strategies

Part III will discuss various strategies to help departments identify and recruit volunteers, 

from identifying policies that may inhibit recruitment to locating prospective volunteers 

to onboarding successful applicants. Part III will also discuss how department culture 

and image can impact recruitment as well as ways to ensure the department makeup 

reflects the community it serves.

Closer look: It is important to remember there is no one-size-fits-all 

strategy when it comes to recruiting and retaining volunteers. Instead, 

consider the options that are the best fit for the specific department 

and community. The key, however, is to do something. The Woodstock 

(Virginia) Fire Department offers this tip: “In order to recruit and retain 

people, you have to do something. It won’t always be right, but you 

can adjust to continue what is working and to reevaluate what is not. 

A department that simply stands around complaining that no one is 

around is the only one doing the wrong thing.”

Section 1: Membership requirements

Most departments have rules or criteria that determine 

who is eligible for volunteer membership. Many of these 

rules were established years ago, when the community 

may have looked much different than it does today. One of 

the most common criteria is a residency requirement such 

as living within a minimum distance from the firehouse. 

Such a requirement immediately eliminates a wide swath 

of prospective volunteers and may no longer be relevant 

depending on your department structure and service 

area. When possible, it is recommended that departments 

eliminate any residency requirement that is not required 

by local ordinance or benefit eligibility requirement. In 

some cases, this may mean volunteers having assigned 

duty shifts and responding from the station rather than 

home, but eliminating residency requirements can allow 

for a much broader pool of prospective volunteers.

Another common obstacle to attracting new members is the lack of reciprocity between 

states and/or regional training programs. This means an already trained firefighter’s 

certifications may not be recognized in another state or jurisdiction, thus requiring that 

individual to retake coursework. Oftentimes the most basic courses are not recognized, 

which, in turn, invalidates the upper-level courses. This can be a significant deterrent 

for volunteers who move from one state or area to another but do not want to repeat 

this time-intensive training. It is important to become familiar with the laws and 

requirements in your state when it comes to accepting training from other jurisdictions, 

states or the military. In some cases, the local governing body can choose to accept 

training that does not satisfy the state or region’s certification requirements; however, 

the governing body would accept any liability for this uncertified member. Finding 

ways to encourage reciprocity across jurisdictions or advocating to state agencies 

the importance of establishing training reciprocity may be the better solution to this 

ongoing challenge.
34 Retention and Recruitment for the Volunteer Emergency Services

To assist with other necessary training requirements, it is recommended that 

departments sponsor required classes within the local area or form partnerships 

with adjacent departments for convenience and to reduce travel time for members. 

Hybrid classes, consisting of both face-to-face training and online instruction, are other 

possible means in which to make training more accessible. Offering the same class at 

multiple times and on various dates may better accommodate the busy schedules of 

volunteer members.

Many departments have minimum requirements in terms of hours, percentage of 

calls, duty shifts, etc., which volunteers may struggle to meet. Some departments 

have successfully eliminated minimum weekly hour requirements in lieu of a flexible 

schedule so long as minimum staffing is maintained. To obtain an active membership, 

a minimum level of activity can be established which must be met on a monthly or 

yearly basis, allowing each member to schedule shifts that accommodate the busy 

and not-so-busy periods in their life and work schedules.

Closer look: In the course of a 3-year research project on volunteer fire 

service retention, Dr. Candice McDonald found that 70% of volunteer 

firefighters report a failure to balance volunteer and family commitments. 

She proposed several solutions that emergency service departments can 

implement to help their volunteers achieve a better work-life-volunteer 

balance. One of the top strategies is to move away from the typical 

1-night-a-week training schedule and offer training on multiple days, 

including both a weeknight and a weekend. Another strategy is to switch 

from requiring a certain percentage of calls to a set number of hours 

per month so the volunteer can fit service into their busy schedules. For 

instance, if the department requires 10 hours per month, one firefighter 

may be able to meet this requirement by spending a full Saturday at the 

department while another may need to break it up into a couple hours 

each week depending on their work or child care schedule. Allowing for 

temporary leaves of absence without ridicule is another way to help 

ensure that those who need a break from the fire service are welcomed 

back when they once again have more time to give.

It is also still common to find membership requirements that only recognize emergency 

first responders as members. Every organization needs members to fill nonemergency 

roles such as mechanic, bookkeeper, data entry, recruiter, station attendant and 

fundraiser, to name just a few. Individuals interested in filling these positions should 

not be overlooked. Including nonoperational volunteers as members will ensure 

they feel valued, and, in some cases, it may also allow them to be covered under the 

department’s insurance policies and LOSAP, which are pension-like programs offered 

by some volunteer emergency service departments.

Policies are inherently intended to enhance the ability of an organization to operate 

efficiently and effectively, yet over time these policies can become outdated or irrelevant. 

In any organization, it is a good idea to review policies on a regular, ongoing basis, and 

membership requirements should be included in this review.
Part III: Recruitment Strategies 35

In action: The Rapid Valley Volunteer Fire Department (Rapid City, South 

Dakota) decided to accept volunteers from outside its coverage area 

as long as the volunteer agrees to spend time at the station instead 

of trying to respond from their home for every incident. They have 

gotten several members through this expansion. The Brighton Fire 

Department Inc. (Rochester, New York) created a “cafeteria plan” of 

participation models for their volunteers that includes on-duty at the 

station, privately owned vehicle (POV) response from home, on-duty 

flycar response from home, on-duty at the fire house, bunker program 

for college students and off-duty POV response from home.

The West Barnstable (Massachusetts) Fire Department was struggling 

to find new members in a village where 30% of residents are over 60. 

They decided to throw out counterproductive residency requirements, 

allowing volunteers to come from outside the community. The 

department now has college students volunteer from as far as 65 miles 

away who spend one weekend a month at the station to respond to calls. 

Other volunteers who live 10-20 miles away stay at the station when 

they are on call. In addition, the department abandoned a membership 

requirement for volunteers to be both firefighters and EMS providers, 

which was preventing people from joining. Now people can choose 

to join as a firefighter or an EMS provider and then learn about other 

aspects of the job at their own pace.

Section 2: Understanding volunteer needs and motivators

To be successful in volunteer recruitment, it is important 

to understand why people volunteer. Some motivators 

frequently cited by current volunteers include:

ĵ Giving back to the community.

ĵ Learning or developing new skills.

ĵ Developing pride and a sense of accomplishment.

ĵ Having a family history of volunteerism.

ĵ Finding friendships and camaraderie.

Recruitment messages can be strengthened by focusing 

on these motivators. Highlight how department members 

are giving back to their community, learning valuable new 

skills, and the great camaraderie that is universal and 

unique to the fire service family. Consider using member 

quotes about all they have gained by volunteering and 

accomplishments they are proud of. This serves not only to highlight current volunteers 

but can speak volumes to someone who is looking for a meaningful way to get 

involved in their community. Invite family and friends of current members to attend 

department events. This will strengthen these relationships and also introduce them 

to the department, perhaps sparking that desire to get involved.
36 Retention and Recruitment for the Volunteer Emergency Services

In action: Showcasing how their members give back has proven to 

be a successful recruitment and community relations strategy for 

the Gilt Edge (Tennessee) Volunteer Fire Department. “Social media, 

specifically Facebook, has been our bread and butter in direct and 

indirect recruiting. We have used the department’s social media page 

as a tool to tell our department’s story and to show the public what 

their volunteers are doing every day and at all hours. In addition to 

sharing fire prevention and safety tips, we show our members training, 

in action on incidents, and serving the public by installing address 

signs and smoke alarms. While we always accept applications, during 

certain times of the year we also use the Facebook page to advertise 

that we are actively recruiting. This social media presence, as well as 

other positive reputation management tools such as news media, has 

led to a positive image of our department through word of mouth in 

the community.”

The work doesn’t end there, however. Volunteers must continue to feel that their 

needs are being met throughout their volunteer experience and, in some cases, these 

needs may change over time. A new recruit may be looking to learn new skills or gain 

experience, while a seasoned member may find tangible benefits such as pension 

plans an appealing motivator. In the NVFC’s 2015 “Volunteer Firefighter Recruitment 

and Retention Formative Research Results,” isolation, unmet expectations, frustration 

with leadership, and lack of support from family or employers were cited by current 

volunteers as challenges to a sustained commitment to the department. It is important 

for leadership to keep a finger on the pulse of the membership, identifying areas where 

needs are not being met or where needs have changed. This can be accomplished by 

surveying new and existing members to determine current needs and wants as well 

as any possible challenges that may cause them to leave. These are often called “stay 

surveys” since they have the added benefit of catching issues before the volunteer 

makes the decision to leave and instead result in them staying. For members that do 

leave, exit surveys should be conducted to determine why they left so that trends can 

be identified and adjustments made to ensure that, moving forward, volunteer needs 

are met to the best of the department’s ability. See Appendix D: Sample Exit Survey 

and Appendix E: Sample Stay Survey for examples.

In action: The town of Canton (Connecticut) Volunteer Fire and EMS 

Department understands that the satisfaction of its current members 

is directly related to its ability to attract new members. “Because 

recruitment is a daily and ongoing priority, we have found that it is 

critical to continually assess what new recruits see when they walk in 

the door — on day one. To that end, we have embarked on a strategic 

planning process that will inform the work of the department for years 

to come. Significant time has already been spent on phase 1, developing 

and assessing town-wide surveys of not only members, but community 

groups, town officials, and the general public.
Part III: Recruitment Strategies 37

“While strategic planning is a long-view exercise, we are also following 

best practices by addressing any significant issues that become 

apparent, in the short term, as a found opportunity. If this strategic 

directive, ‘We listen to our members and react accordingly,’ is built into 

the fabric of the department, it becomes a tool for how we promote the 

department and treat fellow members and others. It is an indisputable 

truth that the most successful recruitment ‘tools’ are happy, busy, and 

proud members who feel appreciated and heard.”

Section 3: Finding prospective volunteers

Prospective volunteers are all around you — at work, in your neighborhood, in line at 

the grocery store, at places of worship and maybe even in your own family. The first step 

in reaching prospective volunteers is to make them aware of the need. According to the 

2015 research from the NVFC, 41% of the population doesn’t know if their department 

is career, combination or volunteer, and 79% don’t know if their department needs 

volunteers. Make sure these messages are clear in department communications, on 

social media, in press releases and in other ways in which the department interacts 

with the community.

It is also important to consider the target audience. While there is an indisputable need 

to recruit younger members to replace those that age out of or retire from the volunteer 

emergency services, it is important to also consider the life stage of the recruits you are 

seeking. Members as young as high school may have fewer outside commitments, but 

they may also soon leave for college or move out of the area as they launch a career. 

Conversely, more established residents, such as those in their mid-30s who may be 

homeowners and more settled in a career and in the community, may become longer-term 

volunteers, but may also struggle to balance family and other outside commitments. 

More mature volunteers may bring experience and an ability to mentor others. Finding 

balance and diversity in your volunteer force is imperative to sustainability.
38 Retention and Recruitment for the Volunteer Emergency Services

Closer look: Having an online presence is critical for reaching 

prospective volunteers in today’s world. Keeping the department’s 

website up to date and with a clear call to action for joining are musts 

as the website is often a community member’s first stop to find more 

information about the department. Sites that haven’t been updated 

in months or even years as well as sites with hard-to-find information 

on joining will quickly turn away potential recruits.

Social media is also an important and highly effective tool for connecting 

with the public. It is another way to recognize the great work your 

volunteers are doing, let the public know what the department does 

for them, impart important safety information and get out recruitment 

messages. Posting frequently will help build engagement and interest 

in your department. Time-constrained departments may find social 

management tools like Hootsuite and SocialPilot beneficial to manage 

and preschedule posts across all the department’s social media pages.

Make sure that your department has policies in place for members 

who use social media. Remember that everything a member posts 

on social media could reflect back on the department. In terms of 

the department’s social media accounts, there should be designated 

administrators who do the posting and make sure that all content 

adheres to the department’s policies. Refrain from posting anything 

from incident scenes that violates privacy or Health Insurance Portability 

and Accountability Act (HIPAA) laws or disrespects those impacted by 

the incident or the seriousness of the situation.

The Fire Law Blog provides a framework that departments can use to 

develop a social media policy. While not specific to emergency service 

departments, the Society for Human Resources Management has an 

informative article on “Managing and Leveraging Workplace Use of 

Social Media.” Appendix F: Sample Social Media Policies also provides 

example social media policies.

To best support recruitment through online outreach, make it easy 

for people to apply to be a volunteer with your department. Include a 

link to the application on the department’s and municipality’s social 

media pages, and establish a dedicated and easy-to-find page on the 

department’s website focusing on why community members should 

volunteer, along with a link to the application.

Online campaigns can garner positive results for a department 

often with little or no monetary cost. The East Dubuque (Illinois) Fire 

Department noted: “The methods that have proven to be successful 

for us to recruit new members is our presence on Facebook, Instagram, 

and other social media platforms, along with members spreading our 

information via word of mouth.”

According to Foothills Fire & Rescue (Golden, Colorado), to find new 

volunteers, “We launched a social media campaign, posting pictures 

and videos of our volunteers on Facebook and Nextdoor to introduce 
Part III: Recruitment Strategies 39

our team to the community, a look at the everyday people behind the 

mask. We have created marketing mailers and a lot of web site content 

using Canva.”

South Windsor (Connecticut) Fire Department reports: “Our department 

uses Facebook and Twitter. We are very active in keeping the media 

and public up to date with all our activities, incidents, training, public 

relations, etc. With most posts, we not only share fire prevention tips, 

but messages on joining the department.”

Royersford (Pennsylvania) Fire Department also found success online. 

“Over the last handful of years, we’ve greatly expanded our social media 

and online presence, purchasing a new web site and regularly updating 

the information. We’ve acquired 5,800+ followers via Facebook and 

approximately 1,500 followers on Instagram. We post pictures and 

quick-hit stories often and also unveiled a Virtual Tour Series during the 

COVID-19 outbreak. Our PIO team highlighted our apparatus and then 

was able to connect with mutual aid and outside agencies to highlight 

their specialty apparatus.”

The Secaucus (New Jersey) Volunteer Fire Department has built up its 

digital profile to connect with recruits and enable them to take direct 

action to apply. “Over the past few years, our presence on social media 

has grown immensely. In the past two years, we have set up multiple 

Facebook and Instagram pages that allow us to further connect with 

our community. Additionally, we have launched a department web site 

that has an entire section dedicated to joining the department. One 

key feature on this section is that we have a general information form 

that potential applicants can complete to let our recruitment team 

know that an individual is interested in joining.”

Consider the many ways and places departments can reach prospective volunteers:

Personal contacts

The most common source of new recruits is through referrals by current members 

or family members. Many departments rely on their members to recruit. Giving 

current members something tangible to provide to prospective volunteers is useful. 

Fire Corps® teams, auxiliary programs and other nonoperational volunteers that are 

already engaged with the department may also be interested in taking that next step 

to become an operational member.

Door-to-door

Some departments go door-to-door to recruit or link their recruitment efforts with 

home fire safety inspections or fundraising. Consider other methods to reach homes 

as well. For example, if your department offers a property tax benefit to its volunteers, 

ask local government to include a small flyer about volunteering in the annual property 

tax bill.
40 Retention and Recruitment for the Volunteer Emergency Services

New community members

Volunteer departments should make a special effort to reach new people in the 

community to explain the function of the department and its membership options. 

The fire department can include this information in literature disseminated by welcome 

wagons, the chamber of commerce, local realtors and others.

In action: Foothills Fire & Rescue (Golden, Colorado) combines a doorto-door approach with reaching new residents. “One of our biggest 

annual recruitment efforts is to do walk-arounds, knocking on the doors 

of homes that recently sold within our district to introduce ourselves, 

provide fire mitigation information, and ask if they are interested in 

volunteering.” The Carlisle (Massachusetts) Fire Department has a 

plan to work with the town clerk to include an explanation of the fire 

department and invitation to join in the information packet sent to 

new residents.

Schools

Recruitment materials can be sent to parents and teachers and disseminated on career 

days in grade schools and high schools. However, it is even better to work directly on 

educating guidance and/or career counselors on the benefits of being a volunteer and 

to participate in career fairs. Departments can also tie recruitment efforts to their 

visits to schools to conduct fire education and safety programs. High visibility helps 

the department make contacts at the school, sparks the students’ interest, and can 

go toward building long-term relationships with the community. Departments with a 

junior firefighter program can talk to the school about making this an eligible activity 

for any volunteer service requirements the school has for its students.

In action: The Westminster (Maryland) Volunteer Fire Department works 

with school officials to showcase to students the benefits of volunteering. 

“By gaining access to the administrators and career counselors in the 

local schools, we’ve been able to pitch the free training and benefits 

of being a volunteer firefighter. We are also pursuing middle schools, 

both public and private, to promote our junior program. The junior 

program has been very beneficial to bringing in volunteers that stay.”

Some high schools have emergency services programs that train students to a certain 

certification level (such as Firefighter I or EMT). This provides a great pool of potential 

recruits for local volunteer fire and EMS departments, as the students are trained, 

ready to respond and likely looking for some real-life experience in a department.

In action: Departments can work with the local school system to set 

up a vocational program that offers fire and EMS classes if one doesn’t 

already exist, which worked for the Lewisville (North Carolina) Fire 

Department. “Lewisville Fire partnered with the school system and NC 

Department of Public Instruction to bring a vocational fire academy to 

our local high school. This program certifies students to be firefighters 

and EMTs as a part of their curriculum. This provides the local volunteer 

departments in the area with fully qualified fire/EMS responders right 
Part III: Recruitment Strategies 41

out of high school. An added benefit to the student: they are capable 

of entering the professional fire/EMS workforce immediately.”

According to an article in the Williamsport Sun-Gazette, the Williamsport 

(Pennsylvania) Area School Board voted in July 2021 to allow high 

school students to take an EMT course at the Pennsylvania College of 

Technology. The course will act as an elective for high school students, 

and the cost will be paid by the students’ families.

Departments that are in or near college towns can recruit students to serve as 

firefighters during their college stay. Some departments offer a live-in program where 

the participants are given free room and kitchen privileges in return for volunteering. 

Live-ins may be required to serve weekend duty and a specified number of incidents 

and drills. While the students eventually graduate and may leave the area, the pool of 

student members is constantly refreshed by the new students. These students may 

go on to volunteer elsewhere or serve the emergency services in some other capacity.

In action: The Rapid Valley Volunteer Fire Department (Rapid City, 

South Dakota) implemented a student resident program to reach college 

students. “We provide a dormitory-type residence, kitchen, living area, 

rooms for schoolwork, and high-speed internet for four students per 

school year. The students live in the station and respond to incidents 

over night when incidents are hardest to staff. The students receive a 

monthly stipend and a small scholarship. We provide all their training 

and certifications to be a full-trained member.”

The Daggett (California) Fire Department partners with local colleges to 

attract EMT students. “We consistently collaborate with local community 

colleges by offering students who are enrolled in an EMT course the 

opportunity to apply for our department. Once accepted, the new hires 

are required to continue and complete their EMT course to be eligible 

to continue with the department. Once the candidate completes their 

EMT course, they are ready to begin their in-house fire training by our 

state certified fire instructors.”

Explorer, junior firefighter and cadet programs

Explorer, junior firefighter and cadet programs are an 

organized way to encourage young peoples’ interest 

in the fire department as well as gain assistance with 

nonoperational tasks. Some fire departments run 

programs that accept youth as young as age 13. They 

train the juniors like recruits. When the juniors turn 18, 

they can join the department as full members. Most 

departments require the parents of recruits to sign an 

approval form and liability waiver.

Because the minors are still in school, departments 

involved in these programs usually stress that education 

is very important and that their volunteering should not be done at the cost of their 

schoolwork. Some departments require that their juniors maintain an 80% grade 
42 Retention and Recruitment for the Volunteer Emergency Services

average to participate. Each state has rules that govern child labor practices and 

set age limits. These must be reviewed before implementing a junior program. For 

additional information on state labor laws, visit www.osha.gov. The NVFC’s National 

Junior Firefighter Program provides information and resources to help departments 

implement a youth program.

In action: Many departments find that junior firefighter programs 

engage participants so that they want to join as full members when 

they turn the appropriate age. The South Windsor (Connecticut) Fire 

Department considers its junior firefighter program to be its best source 

for gaining new firefighters. “We have the oldest serving Fire Explorer 

Post in CT. Like most things, the numbers fluctuate, but we average 

15-25 young adults, male and female between the ages of 14-18. We 

generally see about 75 percent continue on to join the department as 

regular firefighters.”

The Secaucus (New Jersey) Volunteer Fire Department launched a 

junior firefighter program in 2014 for residents between the ages of 

16 and 18. “This allows us to build the future of the fire department 

while also instilling core mindsets and lessons in younger individuals 

that reside in our community.”

The Sardis (Ohio) Volunteer Fire Department found that once they 

started a cadet program, it led to new young adult members as well. 

“Once we got a few cadets, word spread and we started getting interest 

from younger residents between the ages of 18 and 25. We have added 

12 members in the last two years!”

According to an April 21, 2021, article in the Kokomo Tribune, the Cicero 

Township (Indiana) Volunteer Fire Department’s junior firefighter 

program is open to any high school student who wants training 

to prepare for a future in the fire service. The deputy chief of the 

department estimated that about 75% of the juniors end up working 

either in a volunteer or career department. The department’s view is 

that even if the juniors go on to a different department, they are still 

helping to fill needed volunteer positions.

Retirement communities

Retirement communities are a rich source of people who could serve in a nonemergency 

capacity. Retirees often look for ways they can stay active and give back to their 

communities. Fire departments should approach the retirement community’s activity 

coordinator to set up a meeting to educate residents about volunteer opportunities. 

The meeting can also provide life safety information important for mature adults while 

creating yet another connection with the community served.

In action: The Secaucus (New Jersey) Volunteer Fire Department finds 

that community engagement benefits recruitment. “Our department 

visits local public schools, senior citizen centers, and businesses to 

keep everyone up to date on the latest in fire prevention. This also 

allows us an outlet to recruit and inform the public about the benefits 

of joining the department.”
Part III: Recruitment Strategies 43

Civic organizations and churches

In many areas, clubs and civic organizations such as the Elks, Veterans of Foreign Wars 

and Knights of Columbus are very prominent. These groups have civic-minded citizens 

who volunteer for many activities. Some may be interested in volunteering in the fire 

service. Parent-Teacher Association meetings and places of worship are other good 

sources for potential volunteers.

Department of parks and recreation

Many communities have a government-run parks and recreation department. 

Consider workingwith this department to reach people who are physically active, 

such as those who like to hike, kayak or swim in the parks, or who participate in 

sports or fitness classes. Fire and EMS departments could set up a recruitment 

table at local recreational hot spots or work with the department to distribute

information on volunteering to their customers.

Previous or current firefighters

Individuals who have served in other departments, either career or volunteer, may 

be interested in volunteering and can often make an easy and seamless transition to 

a new department. When recruiting a volunteer from another department, it is still 

important to follow your application process, including any background checks, to 

maintain consistency and fairness among all recruits. It is also important to follow 

the FLSA, which prohibits career firefighters from volunteering in the same capacity 

in a fire department in the same jurisdiction in which they work as a paid firefighter.

In action: The Kiowa (Colorado) Fire Protection District found an 

out-of-the-box method for reaching potential volunteers. “A lot of our 

firefighters are looking to go career; we support them in their efforts but 

ask them to wear our FD’s t-shirt when they go test. You’d be surprised 

how well this works!” The East Dubuque (Illinois) Fire Department 

has had success recruiting volunteers from a neighboring city that 

has a career department. “We are not taking people away from their 

recruitment; it has actually helped these members obtain jobs in the 

fire and EMS career field.”

County fairs/events

County fairs are often good sites for recruitment efforts. Fire and EMS units are usually 

present for display and should have volunteer applications and information on-hand. 

Other community events such as Fourth of July festivals, job fairs, garden festivals, 

parades or community get-togethers can also prove to be an effective way to get out 

in the community and invite people to experience all your department can offer.

Resorts

During the in-season, population swells enormously in resort areas. Demand for 

services, especially EMS, also rises sharply. Resorts are good places to advertise for 

volunteers for the entire region, as well as for the department that protects the resort. 

Resort areas attract many healthy, able-bodied men and women who are oriented 

toward physical activities.
44 Retention and Recruitment for the Volunteer Emergency Services

Fire and EMS departments can recruit volunteers to serve only during the tourist season 

to help handle the surge in calls. Sometimes they can be recruited from the visitor 

population itself, or from volunteer firefighters and EMS providers from other areas 

who take jobs in the resort area during tourist season. Some departments in resort 

towns allow a few out-of-town volunteers who have relocated for the resort season to 

sleep at the station. This is a major incentive for recruiting volunteers in resort areas.

Local businesses

Recruiting from nearby local businesses, with their permission, is another option. This 

may appeal to business owners whose employees would learn critical leadership and 

life-saving skills. Creating this relationship with business owners may also go a long 

way toward securing buy-in for flexible schedules, allowing volunteers to respond 

during daytime hours when many volunteer departments have difficulty getting 

adequate turnout.

Publicly staged events

Fire departments can use Fire Prevention Week as a chance to show off apparatus 

and attract new recruits. Other events that are good for recruiting include parades, 

demonstrations for fire and life safety education, gatherings for elected officials, 

training events, department open houses, and local festivals and events.

Fitness events or challenges

Physical fitness can be an important attribute of the job, and the volunteer emergency 

services may be attractive to individuals seeking a mental or physical challenge. 

Departments may consider setting up a recruitment table at a local fitness event or 

challenge, such as a Tough Mudder or Spartan Race, or reaching out to local gyms to 

distribute or display flyers about volunteer opportunities.

Utility companies and county and local government employees

Law enforcement officials, gas and electrical utility workers, public works 

employees, recreationemployees, and other local workers make good volunteers 

and can provide special assistance intheir areas of knowledge. County workers 

employed in road and park maintenance and utilities may also be well-positioned

during the day to respond to calls.

In action: The Royersford (Pennsylvania) Fire Department demonstrated 

to the local government through personnel response numbers during 

daytime hours the need for the borough to assist with getting more 

volunteers on board. They now partner with the borough’s public works 

department to encourage employees to volunteer. The borough allows 

the public works employees to respond to calls, and when they hire, 

they look for personnel who are already state-certified firefighters.

Military bases and veterans groups

Military personnel are accustomed to discipline, may be physically fit, have a history of 

service and often have acquired relevant skills. Current and retired military personnel 

may find solace in the similar leadership structure of the fire service, and the camaraderie 

they find may help outgoing military members transition back to civilian life. Consider 

reaching out to a local veteran affairs office or other veteran groups to reach former 

military personnel.
Part III: Recruitment Strategies 45

Closer look: The Pennsylvania Fire & Emergency Services Institute 

provides the following advice for recruiting veterans:

“Each year over 200,000 individuals leave military service and return 

to the community, most from where they were born and raised. These 

are very talented individuals who have worked within an organized 

structure to achieve objectives in sometimes difficult and life-threatening 

situations.

“Those in the military make good fire and EMS personnel, many times 

coming with the skills and knowledge already needed to fight fires, 

rescue people, and perform medical services. This is a very talented pool 

of job seekers looking for a military-like or military-friendly organization 

to become a part of for a career or to volunteer. Veterans can play a 

big part in your organization. Recruit them, engage them, make them 

welcome and they will help make your organization successful.

“So, the question becomes — how do I attract them? Here are some 

steps:

1. Develop a recruitment strategy for veterans. Find out who is 

returning home, when they are returning home, etc. If there are 

local groups such as the VFW or American Legion, work with them 

to recruit.

2. If you have connections to current members of the armed forces 

(their parents, relatives, or friends), advise them that the fire 

company is a way for the returning service member to get engaged 

with civilians and the community, make new friends, etc.

3. Work with local military recruiters when individuals leave the service 

to route them to you for engagement. Provide promotional items, 

if necessary, to pique their interest.

4. If there are existing veteran websites in your area, they may be 

willing to allow you to advertise your organization.

5. Be able to translate the current military activities, language, and 

engagement into your organization. Current members with prior 

military experience can help achieve this.”

Other emergency volunteers

Citizens who have volunteered in the time of an emergency are often well suited to be 

fire and emergency service department volunteers. People offer to help at community 

disasters ranging from floods to hurricanes. These individuals may already be part of 

emergency response groups such as Medical Reserve Corps, Red Cross, Community 

Emergency Response Team or others. They may be interested in more consistent 

volunteer opportunities that the fire department offers, which can supplement their 

existing volunteer activities.
46 Retention and Recruitment for the Volunteer Emergency Services

Consider this: Potential recruits are all around, but it takes effort to 

reach them. Recruitment is an ongoing process, and success often comes 

from a coordinated campaign that targets multiple audiences in various 

ways. It is not realistic to think that simply attending one community 

event or putting up one flyer will be enough to have significant results 

over the long term.

The town of Canton (Connecticut) Volunteer Fire and EMS Department 

encourages identifying new markets to find volunteers. “Deliberately 

seek out untraditional markets. Is there a pool of: stay-at-home parents 

with school-age kids; college/tech school students; small business 

owners who have flexible schedules and are looking for a different 

way to enhance their skills?”

Siuslaw Valley Fire and Rescue (Oregon) set up a table at a local 

department store with positive results. They also have gained recruits 

from their Reader Board and by recruiting at a gym. According to the 

Kiowa (Colorado) Fire Protection District, to reach audiences: “You can’t 

just do one thing; it takes visiting colleges, social media, web sites, and 

much more.” The East Franklin Fire Department (New Jersey) utilizes 

this same strategy by going out in the community as much as possible 

through community events, camp programs with community partners, 

fire prevention programs in the schools, advertising to local college 

students and hosting holiday events.

This type of campaign proved to be very successful for the Woodstock 

(Virginia) Fire Department. “To address the challenges we face with 

recruitment, we launched a coordinated recruitment campaign that 

has helped us recruit 11 new members [in about six months]. The 

most successful thing about it is the fact it is a saturation campaign. 

We have reached every aspect of our community through as many 

avenues as possible. The campaign included social media outreach, a 

dedicated recruitment page on our website, free print advertisements, 

visits to local schools, visits to a wide array of community events, and 

has included several recruitment events at the fire station. Basically, 

we push recruitment and promote our department all the time. This 

means individuals in the community learn about us and see us in a 

positive light, become interested, and then are easily able to find how 

to become a member of the department and start the process.”
Part III: Recruitment Strategies 47

Section 4: Personal invitations

While social media, newspaper ads and the station 

marquees are great ways to let the community know 

volunteers are needed, research shows that most people 

volunteer because they were personally invited to do so. 

The NVFC’s 2015 study on volunteer recruitment indicated 

that most current volunteer firefighters were personally 

invited by a family member or friend to join. A personal 

invitation can go a long way in communicating trust and 

faith that that person has what it takes to become a fire 

and emergency service volunteer and can give them the 

nudge they may need to overcome self-doubt or simply 

to take that first step to becoming a volunteer.

A personal invitation doesn’t need to be fancy or even time-consuming; it could 

simply involve verbally inviting a friend, family member, neighbor, coworker or even 

an acquaintance to come to the department and check it out. For those wanting to 

take that extra step, the NVFC’s Make Me A FirefighterTM campaign portal offers an 

online materials generator that allows the user to create email invitations and print 

handouts in a matter of minutes.

Consider this: A personal connection goes a long way. Even if you are 

able to get people interested through other means, it is a personal 

connection that often seals their commitment to the department. The 

Brighton Fire Department Inc. (Rochester, New York) recognizes this 

need for a connection. “People don’t join the fire department based 

upon a Facebook post or a billboard (and we spend a lot of money on 

those); they join on because of a personal connection. Remember that 

the money you spend on advertising is to get more people to make a 

personal connection with your organization — you need a good team 

of recruitment people to quickly and personally make that connection 

with those who express interest.”

Section 5: Provide sampling opportunities

The NVFC’s 2015 recruitment research also showed that many current volunteers reported 

that they were more likely to join after being given a taste of what it’s like to be a volunteer. 

Having an opportunity to experience various firefighting tasks firsthand allowed them to 

picture themselves in that role and overcome doubts and fears. Furthermore, interactions 

with the fire department allowed them to see how they could fit in.

One way to provide these valuable interactions is through sampling events where 

members of the community can get a small taste of what it’s like to volunteer. These 

sampling events include things like ride-alongs or fun contests at community events 

where they can practice donning or doffing gear quickly. Explorer programs, citizen fire 

academies, open houses and other recruitment events can help interested individuals 

connect with departments and build the confidence and excitement that is needed to 

truly consider the opportunity.
48 Retention and Recruitment for the Volunteer Emergency Services

In action: The Firemen’s Association of the State of New York annually 

holds a RecruitNY Weekend in April where hundreds of fire departments 

across the state open their doors to allow the public to get a taste of 

what it’s like to be a firefighter. Visitors take a station tour, try on gear 

and see demonstrations of firefighting techniques. While the event had 

to be canceled in 2020 due to COVID-19, it ramped up again in 2021, 

with many stations opting to do a virtual open house or participate in 

other digital outreach. While most states may not have a coordinated 

open house weekend, departments can tie in events like this to National 

Volunteer Week in April and Fire Prevention Week in October.

Section 6: Effective onboarding

A department’s onboarding process 

will communicate a lot about the 

depar tment. Is the depar tment 

responsive to inquiries? Organized? 

Clear on what the steps are for any 

prospective or new recruit? Is the 

department proactive and does it follow 

up with new and prospective recruits? 

Onboarding requires a series of steps 

from the initial contact with prospective 

volunteers to training them as recruits 

and ensuring they become an integral, 

accepted part of the team.

Consider this: The amount of time required of volunteers may seem 

daunting to new recruits. The onboarding process can be a critical 

component of retention to help recruits adjust and learn how to manage 

their new responsibilities. Moscow (Idaho) Volunteer Fire and Ambulance 

recommends having “dedicated people to support volunteers through 

onboarding to consistently check in with volunteers who are not meeting 

training or call volume expectations and to provide encouragement 

through the process.” They also recommend that departments value 

volunteers’ time and “maintain a balance of accountability for meeting 

call and training requirements with opportunities to thank volunteers 

and make them feel appreciated and valued.”

Application process

The application process should be clear, easy to follow, and resolved quickly with a 

membership acceptance or decline. What follows is an example of a 6-step approach 

to the application process to build upon based on a fire department’s needs and 

resources. Ensure the application process is in line with the FLSA and other best 

practices in human resources. This is a good opportunity to involve a volunteer human 

resources professional from local government or a local business. It is also valuable 

to have a recruitment committee or one person solely responsible for the application 

process to maintain the confidentiality of the process.
Part III: Recruitment Strategies 49

Most departments have a packet of information they provide to an applicant that 

includes the written job description of the position, the agency’s expectations of 

volunteers, and the requirements and expectations of a probationary firefighter and 

a full member.

Consider this: Local government already has a system in place for 

administration and human resources that fire departments may be able 

to tap into for support with their onboarding process. This may include 

help with managing the application process, conducting background 

checks on applicants, questions to ask during the interview, practices 

to follow to ensure a fair and equitable evaluation of all applicants, and 

even guidance on how to decline an applicant if they are not the right 

fit for the department.

Moscow (Idaho) Volunteer Fire and Ambulance relies on assistance 

from the city to help with the application and onboarding process. 

A very small team of city of Moscow administrative staff manage the 

whole application process, run background checks and coordinate 

everything for interviews. The department chooses the candidates 

to bring on, but city staff handle calling the candidates, walking them 

through the next steps, and communicating training and leadership 

opportunities, as well as contacting the applicants that are not chosen 

as volunteers. The city staff also works with the department leadership 

to coordinate onboarding calendars and timelines, then meets 1-on-1 

with newly accepted volunteers to go over dates, expectations and 

deadlines, equipment, etc. Department leadership is included on all 

important correspondence, provides input on the schedule, and does 

a large part of onboarding trainings, but the administrative staff is also 

there to help coordinate the space and resources needed and follow 

up with trainees as well as with the department leadership to remind 

them to check in with their volunteers, if needed.

Step 1: Application

Some departments use an electronic application while others use a paper application. 

Departments need to ensure that whatever process they use is secure and that 

personally identifiable information is protected. Departments can use the NVFC’s 

Make Me A Firefighter campaign to create a volunteer opportunity landing page that 

includes a volunteer inquiry form and a tracking system where departments can 

manage their applications. Online form-making solutions such as JotForms, Google 

Forms, Wufoo and others provide a quick and easy method of creating, distributing 

and tracking online applications. See Appendix C: Sample Department Application for 

a sample department application.

It is important to verify receipt of the application to the applicant, and it is equally 

important to provide them feedback and information on the next steps in a timely 

manner so they don’t lose interest in volunteering or lose confidence in the department 

due to lack of response. This is another reason it is beneficial to have a designated 

person or committee in charge of the application process to ensure no applications 

fall through the cracks.
50 Retention and Recruitment for the Volunteer Emergency Services

In action: Bay County (Florida) Fire Services offers an online application 

process, or prospective volunteers can get an application from the 

county’s human resources department. They also emphasize that library 

computers can be used to fill out the application online. As part of the 

application process, they require prospective volunteers to complete 

a bloodborne pathogens presentation and quiz.

The West Barnstable (Massachusetts) Fire Department revamped its 

application process after realizing in 2005 that their application was 

over 20 years old, asked unlawful and irrelevant questions, and just 

looked sloppy. They created a new application, attached a current job 

description to it and made sure it was easily available to community 

members — including keeping a stack at the front counter of the fire 

station. They now update the application every 3 to 5 years to keep it 

relevant and lawful and have added an extra attachment that provides 

an overview of what being a volunteer firefighter/EMS provider is like, 

including the rewarding and enjoyable aspects of public service.

Step 2: Background checks

It is important to verify the laws governing your state for background checks for volunteers, 

especially for operational firefighters, EMS personnel, and department members who 

work with children such as in public education efforts or with junior firefighter programs. 

Background checks are highly recommended and can protect departments from liability 

risks. The local government or police department may be able to provide background 

checks for fire and EMS volunteer applicants. Develop a written policy regarding background 

screenings and ensure these are implemented equally for all applicants. 

Background checks may include the following:

ĵ Driving and criminal background.

ĵ Social Security number/address history.

ĵ Education and employment verification.

ĵ Drug tests.

ĵ Credit history.

ĵ Sexual crimes database.

Step 3: Interview

The interview is an opportunity for the department to determine if the individual is 

a good fit for the department and for the individual to determine if they are a good 

fit for the department. It is recommended to divide the interview into 3 phases. The 

first phase would allow the individual to learn more about the organization. These are 

some sample topics to be discussed with the individual:

ĵ Provide an overview of the organization and both the tangible and intangible 

benefits of volunteering.

ĵ List different types of operational and nonoperational volunteer opportunities.

ĵ Give a realistic overview of the types and frequency of calls the department typically 

receives. 

ĵ Discuss the requirements and expectations (training, fundraising, administrative 

duties, hours per month).
Part III: Recruitment Strategies 51

ĵ Discuss what the department provides in terms of paid training, PPE, firefighter 

physicals, etc.

ĵ Give a tour of the station.

ĵ Answer their questions.

The second phase of the interview should provide more detailed information about 

the applicant. Aside from asking questions based on their application (where they 

have volunteered before, past firefighting experience, etc.), other general questions 

could include:

ĵ Why are you interested in volunteering with this organization?

ĵ What types of roles are you interested in serving in at the department (firefighting, 

EMS, driver, support, etc.)?

ĵ What do you hope to gain from this volunteer experience?

ĵ Do you prefer to work alone or in a team?

ĵ Do you have any questions about the interview, membership process or the 

organization?

If it is determined that the applicant may be considered for department membership, 

the third phase of the interview should provide more details for the applicant such as 

training requirements, schedules and expectations during the probationary period.

Step 4: Application decision

The recruitment committee or department leadership should determine if the applicant 

will be offered a volunteer position. It is best to have a small cadre of committed people 

make this determination to ensure the process is managed in a fair and balanced 

manner and with department needs in mind.

Step 5: Notification to applicant

Applicants should be notified in a timely manner if they 

have or have not been accepted. Ensure they understand 

the next steps such as their schedule and what is expected 

of them in terms of duty shifts, training and other 

participation requirements. Provide a primary contact 

for them to reach out to with questions along the way.

Step 6: Welcoming new recruits

Onboarding doesn’t end with notifying the new recruit of 

their acceptance. It is important to pay special attention 

to a new volunteer to ensure they feel included and wellinformed. Provide a tour of the station, introduce them to 

their fellow volunteers, and provide ample time for them 

to ask questions and learn about the department and their peers. It is recommended 

to assign them a mentor to help them assimilate to the department environment and 

to cheer them along as they take on challenging new tasks and responsibilities (see 
52 Retention and Recruitment for the Volunteer Emergency Services

Part IV, Section 9: Mentor Programs for more information). Check in with them often, 

and ask for feedback on their recruit experience, using this feedback to improve the 

process for others.

Consider this: Some departments have found success in a cohort 

style to onboard and train recruits. Moscow (Idaho) Volunteer Fire 

and Ambulance recently adopted this strategy for their ambulance 

company. “We now onboard new volunteers in groups 2-3 times a year, 

instead of every other month. The new volunteers have a group (5-12 

volunteers) of people to train with; all get the same message, initial 

training, and timeline/deadlines for trainee task book completion. We’ve 

seen a significant increase in retention rates, and more camaraderie 

and communication with new trainees and trainers/crew coordinators. 

It’s also been more efficient for our administrative, leadership, and 

EMS training teams.”

The Richmond (Maine) Fire Department also found success with the 

cohort method:

“A recruitment campaign was established in the fall of 2019 using social 

media as well as flyers in the community and word of mouth by our 

staff. A recruitment information session was held in November of 2019 

with six people attending, in addition to others filing applications. In 

January 2020 we took on seven new department members, and they 

attended a full-day orientation session. This orientation session served 

as the first class of the Maine Basic Fire School Program, [which is] a 

75-hour training academy. The training program meets the minimum 

Maine Bureau of Labor firefighter training requirements. It was run as 

an academy over three months and included live fire trainings. While 

in training, members also attended department meetings and began 

running calls.

“This process modeled the process that full-time departments do when 

hiring and seemed to be a successful approach that will hopefully be 

repeated in the future. Possibly an every-other- year process.

“The method of taking on a group/cohort worked best as we were able 

to train them equally and recognize them as a graduating class just the 

same as full-time departments do when they hire a batch of recruits. 

It made it seem more professional, and a graduation ceremony was 

held as part of a first annual awards ceremony when they completed 

the in-house academy. The group became close and had camaraderie 

together; however, given the small size of our department [they still] 

blended well with existing staff.”
Part III: Recruitment Strategies 53

Section 7: Maintaining a positive image and culture

It is important to understand that recruitment 

is marketing. Consider what retail stores do to 

attract your business. The ones that are most 

successful have attractive displays in the store, 

are well stocked and kept clean, and offer good 

customer service. Employees are happy and 

invested in the outcome of customer transactions. 

Fire and EMS departments should build a public 

image in the same manner that these retailers 

attract business. Apparatus and tools should be 

kept clean and ready for use. Staffing levels should 

be adequate to handle each response and the 

members trained to perform the necessary tasks. 

And above all, members must be invested in the 

customer service experience.

When members of the community see the department, do they see a high-achieving 

organization with camaraderie among its staff and leadership? Can community members 

see themselves becoming part of the current department makeup — for example, are 

there women, minorities and various generations reflected in current department 

outreach materials? If a community member does an online search for the department, 

will they see dedicated members working to serve the community?

Fortunately, the department has a great deal of control over the image the community 

sees. Highlighting department or member accomplishments on social media, through 

news stories and press releases, and on the department’s website, are a few options 

for bringing attention to the many positive ways a department contributes to the 

community. Increasing exposure in the community through fire prevention and 

educational activities, communicating with the community through a newsletter, and 

training in visible locations can demonstrate the important role the department plays 

in keeping the community and its citizens safe.

Many departments use web-based platforms and social media to disseminate information 

about the department to the public and communicate its need for volunteers as well as 

financial support. Truth in advertising can go a long way in ensuring the department is 

seeking and accepting the right individuals for the job and attracting donors and other 

community supporters. Information that is posted on public media must reflect the 

culture of the organization and communicate that everyone is welcome and needed. 

Showing instances of camaraderie and skill-building on social media can demonstrate 

what prospective volunteers stand to gain from joining the department ranks.

Department image must go deeper than a public perception and reflect the underlying 

culture and values of the department. Strong, effective leadership will result in happy 

volunteers who will speak positively about their experience to others. Maintaining a 

department culture that supports its members, is inclusive and prohibits harmful 

practices such as hazing, harassment or cliques will reflect a positive image of a 

welcoming place that people want to be part of.
54 Retention and Recruitment for the Volunteer Emergency Services

But perhaps the single most important influence on a positive department image is 

fostering a team of fulfilled, happy members who have quality interactions with the 

public. Members must remember that they represent the department when they are 

responding to a call as well as when they have their department T-shirt on in public, are 

driving their vehicle with firefighter tags or a department sticker in their rear window, 

or even when they are talking about their volunteer experience with a neighbor, friend 

or coworker. Every member is a direct representative of the department, from the 

chief to the newest recruit.

Consider this: Prospective volunteers want to feel like they will belong 

at the fire department. Many departments find success using messaging 

that makes the department relatable and open to new recruits. An article 

from Hudson Valley 360 on Sept. 3, 2020, highlighted the Chatham (New 

York) Fire Department for its award-winning recruitment campaign that 

featured photos of their members with the theme that these volunteers 

are your friends, neighbors and family. The ads were displayed at the 

local movie theater, outdoor billboards and in local businesses. Thanks 

to the campaign, the department saw a 20% increase in membership 

over 2 years.

The Ulster County (New York) Volunteer Firemen’s Association sponsored 

a web series featuring local fire departments and giving the public a 

behind-the-scenes look into the firehouse and the equipment and tools 

firefighters use as well as a chance to meet the firefighters themselves. 

The series is called “Ride With Us” to emphasize camaraderie and 

friendship, and the running theme is that there is a job for everyone at 

their local volunteer fire department. In addition to distribution on social 

media, episodes have been played at community events, department 

open houses and during previews at a local movie theater.

A Sept. 2, 2020, article in The Times Herald announced that the 

Harmonville Fire Company (Plymouth Meeting, Pennsylvania) used 

a Staffing for Adequate Fire and Emergency Response (SAFER) grant 

to launch a new website and recruitment campaign centered around 

the slogan “Honor. Family. Community.” The campaign highlights the 

department’s strengths and vision and promotes all the different 

volunteer opportunities available through the department.

Consider the following policies and resources that can help ensure a positive image 

within your community and a positive culture within the organization:

Reputation management

The Cumberland Valley Volunteer Firemen’s Association has a “Reputation Management 

White Paper” that outlines actions taken by individuals that have a negative effect 

on the public image of the emergency services and individual departments. Topics 

covered include misuse of department facilities, theft, substance abuse, harassment 

and discrimination, and misuse of social media. The white paper recommends that 

every department establish a code of conduct or code of ethics that clearly defines 

expected behaviors of its members.
Part III: Recruitment Strategies 55

Code of ethics

A code of conduct or code of ethics spells out the expected behaviors of a department’s 

members. It is important for departments to establish and maintain a code of ethics, 

and to get buy-in from all stakeholders. There are numerous tools departments can 

use to set guidelines and serve as a compass for behavior at the station, on scene 

at an incident and in public. Building on the “Reputation Management White Paper,” 

the National Society of Executive Fire Officers created a Code of Ethics to serve as a 

model for departments. Fire and EMS departments may also consult with the human 

resources department of local government for samples of this and other policies.

Social and traditional media policies

A social media policy is another critical tool that outlines appropriate and inappropriate 

use of social media by department members. A negative or inappropriate social 

media post can cause irreparable harm to the department’s reputation, open the 

door for possible litigation or liability, and make recruitment and retention more 

challenging. Similarly, posting images of training events, camaraderie around the 

station, or accomplishments of members or the department can entice others to want 

to join while elevating those whose accomplishments and successes are celebrated by 

the department. The IAFC offers a Social Media Toolkit to help departments use and 

manage social media. Also see Appendix F for sample social media policies.

Departments should have a traditional media policy as well for public information 

officers (PIOs) and others who will be talking with local media. How department members 

represent themselves and the department in the media is critical to public perception. 

For instance, a department member who is interviewed by the local news station can 

damage the department’s reputation by speaking callously of the incident, disrespecting 

the victim or saying something that makes the department look incompetent or 

uncompassionate. A mishandled interview could even have legal repercussions if the 

person interviewed discloses confidential or privileged information or says something 

slanderous or derogatory. On the other hand, a media-trained member who knows 

how to handle the interview, is compassionate and speaks competently, and uses 

the opportunity to respectfully provide fire prevention and life safety advice to the 

audience can enhance the reputation of the department. See Appendix G: Sample 

Media Policy for a sample media policy.

Anti-harassment, bullying and discrimination statement

Harassment, bullying and discrimination must never be tolerated within an emergency 

services department. As representatives of the emergency services profession, fire and 

EMS members pledge to protect the public against all hazards. Likewise, department 

leaders must take action to protect their members from the hazards generated by a 

threatening workplace.

The NVFC, International Association of Black Professional Firefighters, IAFC, IAFCVCOS, International Association of Women in the Fire & Emergency Services, National 

Association of Fire Training Directors, and National Association of Hispanic Firefighters 

released a Joint Anti-Harassment, Bullying, and Discrimination Statement. This statement 

asserts that all members of fire, EMS and rescue services should be treated and treat 

others with respect and dignity, and makes it clear that harassment, bullying and 

discrimination of any kind will not be tolerated. The statement issues a call to action that 

all fire and emergency service organizations implement an anti-harassment, bullying 
56 Retention and Recruitment for the Volunteer Emergency Services

and discrimination policy that is actively communicated to personnel and actively 

and consistently enforced. See Appendix H: Sample Nondiscrimination Statements 

for sample nondiscrimination statements.

Diversity and inclusivity

Diversity in the workplace is defined as an organization that includes a membership that 

is reflective of the community that it serves. Inclusivity is defined as an environment 

where all individuals are treated fairly and equally, have equal access to opportunities 

and resources, and can contribute to the organization’s success. Every fire and EMS 

department must value the participation of each member and develop a culture where 

diversity and inclusivity are part of the organization. Concepts that strengthen diversity 

and inclusion should be incorporated into the department’s policies and procedures. 

All department members should receive training to include anti-harassment policies 

and why diversity and inclusivity are important to the department’s success so that 

each member understands their responsibility for creating an all- inclusive culture. 

This topic is further discussed in Section 8: Embracing Diversity and Inclusion.

Equality and equity

Equality in a workplace means that all members are treated in a systematic, impartial 

and evenhanded manner regarding access to all department activities and opportunities. 

Equity means different people are offered necessary accommodations to do the same 

job or validate a skill, including people with disabilities. This allows for individual 

variables like reach or ability to lift so long as the job is completed following all safety 

procedures and functions. Another example is providing women PPE that fits them 

rather than issuing one-size-fits-all gear designed for men.

Consider this: In addition to harming the image of the department 

in the community and lowering rates of recruitment and retention of 

volunteers, harmful actions such as harassment, bullying, discrimination, 

and inappropriate social media usage can open the department up 

to lawsuits and liability. The Fire Law Blog founded by Curt Varone 

delves into legal issues that confront the fire service as well as offers 

templates and training to help departments establish policies that can 

strengthen the department and lessen liability.

Crisis management plan

Despite all best efforts, sometimes a crisis does befall a department that has the 

potential to damage its reputation, decrease morale and hurt its ability to recruit and 

retain volunteers. It is important to have a crisis management plan in place for when/

if such a disaster hits, whether it is a poor customer service experience, a mishandled 

incident, a member who commits a crime or any event that can negatively impact the 

department. This plan should lay the groundwork for both an internal and external 

response that is clear, immediate and focused. The plan should include communication 

to department members who may be seeking leadership and guidance, as well as 

guidelines on who is authorized to speak on behalf of the department to ensure 

consistent, informed messaging. A department that consistently does its due diligence 

through things like background checks, proper training, having anti-harassment and 

bullying policies in place, not tolerating a toxic culture, etc., not only decreases the 

chance of many types of potential crises, but also may lessen its legal liability and 

mitigate the damage to its public reputation should a crisis arise.
Part III: Recruitment Strategies 57

Positive department culture

Just as important as policies and guidelines is the department culture. A positive 

culture that encourages idea-sharing and innovation and values the contributions 

of its members will result in happy members. Happy members are the department’s 

single best recruitment tool as they share their positive experiences with others. The 

NVFC’s “Volunteer Fire Service Culture: Essential Strategies For Success” discusses 

fire and emergency department culture in depth, as well as strategies to improve it.

In action: The Lewisville (North Carolina) Fire Department recognizes 

the impact that department culture has on recruiting and retaining 

volunteers. “We have focused on changing our environment more than 

any other single factor. With a previous large recruitment and retention 

grant we attempted paid-for-call response and other financial incentive 

ideas. Money is a short-term motivator. Stipend expenditures are still 

an option to offset out-of-pocket costs for volunteers. At the end of 

the day, we have found that much like new recruits, we must make 

current members ‘want’ to be here. Positivity has been key. The fire 

service is often quick to judge, yet slow to praise. Members have been 

challenged to self-reflect before voicing a complaint. If a complaint 

remains, bring one or more ideas on how we can improve in the area 

to the conversation also. This subtle change has provided an attitude 

shift. Even our complaints come with a way in which we may improve our 

service. If you’re not planted firm and at risk for failure, dig in, and don’t 

back-slide. Once you’ve restored a strong foundation, move forward!”

Section 8: Embracing diversity and inclusion

Fostering a diverse and inclusive membership 

and department culture has many benefits, 

including increasing recruitment and retention, 

strengthening an organization, and providing robust 

skills, experience and backgrounds that can allow 

departments to achieve their mission more easily. 

To fully embrace these concepts, it is important to 

understand what these terms really mean.

Diversity

Diversity refers to people of different ages, 

experience, educational backgrounds, cultural 

backgrounds, abilities, genders, religions, 

personalities, sexual orientation, skill sets and 

more. Diversity is an attribute or attributes of 

an individual.

While many departments may have a volunteer force that is diverse in many ways such 

as age, experience, personalities and more, the fire service is significantly less diverse 

when it comes to gender, race and ethnicity. According to U.S. Census Bureau data 

analyzed by DataUSA (2020), an estimated 77.3% of the nation’s firefighters are white, 
58 Retention and Recruitment for the Volunteer Emergency Services

1.96% are Hispanic/Latino, 6.9% are Black, and 1.3% are Asian. While women make up 

half of the population, the NFPA’s “U.S. Fire Department Profile 2020” estimates that 

only 89,600 firefighters are female, with a higher ratio of women on the volunteer side 

(11%) than the career side (5%).

The fact that the fire service is historically made up primarily of white males means 

there are significant areas of opportunity for today’s departments looking to recruit new 

members. The NVFC’s 2015 research on recruitment indicates that there is considerable 

interest in volunteering as first responders among minority groups (36% were either 

definitely or possibly interested) while women were just as interested as men in 

volunteering as first responders. Those in the 18-34 age group showed a 44% interest 

in volunteering. These numbers point to largely untapped markets of potential recruits.

Departments should consider if their staffing mirrors their community makeup. 

Encouraging diversity can be as simple as communicating that everyone is welcome, 

regardless of race, ethnicity, sexual orientation, gender, age, etc. Ensure department 

recruitment messages are welcoming and reflect the diversity of the community 

through images and words. Individuals recruiting on behalf of the department should 

also reflect diversity. If the department is seeking more female recruits or younger 

members, consider asking existing female firefighters and younger members to help 

with outreach in the community or at recruitment events.

Inclusion

Inclusion is an environment where people are treated fairly and respectfully, have 

equal access to opportunities and resources, and contribute fully to the department’s 

success. Creating an inclusive environment is a conscious effort that requires the buy-in 

and commitment of department leadership.

Below are some characteristics of an inclusive environment:

ĵ Empowerment. Encourage team members to learn new skills, bring ideas to the 

table and solve problems. Provide opportunities for growth.

ĵ Equality. The consistent and systematic fair, just and impartial treatment of all 

individuals.

ĵ Equity. Different people need different things to reach the same goal or demonstrate 

a skill. As long as the job gets done and safety protocols are followed, equity may 

mean making adjustments for differences such as height or strength or shape.

ĵ Acceptance. Make room for everyone in the department. Each individual brings 

skills, knowledge and experience that can benefit the team.

ĵ Camaraderie. Lift each other up instead of tearing each other down. Everyone in 

the department is on the same team. Help each other out.

ĵ Respect. Treat others as you want them to treat you. Learn from different points 

of view and seek to understand others. Handle disagreements in a constructive 

and professional manner.

ĵ Accountability. Take personal responsibility for your decisions and performance. 

Have pride in your successes, learn from mistakes and be open to criticism in areas 

where you can improve.
Part III: Recruitment Strategies 59

ĵ Courage. Stand up for what you think is right, even when it means taking a risk. 

Try to find support from others.

Diversity is a fact, while inclusion is an act. Diversity comes when you invite and welcome 

people with varying attributes to join your department, while inclusion is a conscious 

effort to ensure those individuals are treated as an integral part of your organization. 

A department that is both diverse and inclusive will be attractive to a much broader 

audience of potential recruits and will be more successful in retaining those recruits over 

time. The IAFC’s “Guide for Creating a Diverse and Inclusive Department” is one tool to 

help departments plan, implement and preserve a diverse and inclusive environment.
Photo courtesy of iStock.
Part IV: Retention Strategies 61

Part IV: Retention Strategies

Retaining volunteers requires a multi-pronged approach that 

showcases the department’s support of and commitment 

to its volunteers and considers what the volunteers want. 

Conducting an internal retention assessment each year 

will help department leaders remain current on what is 

important to their volunteers, what changes should be 

considered, or benefits added, and if there are any issues 

that may be causing members to consider leaving.

Part IV will talk about the many factors that affect 

volunteer retention. Topics include effective leadership, 

setting realistic expectations upfront, health and safety 

considerations, building camaraderie, meeting training 

requirements, volunteer benefits and recognition, utilizing 

nonoperational volunteers, mentor programs, family 

support, and what to do when volunteers leave, retire or 

just aren’t a good fit for the department.

Closer look: Successful departments are in tune with what their 

members want and employ multiple strategies to keep their volunteers 

engaged, connected and part of the department. For instance, at the 

East Dubuque (Illinois) Fire Department: “We provide a stipend for 

responding to calls, pay for training for both fire and EMS, and encourage 

our members to bring their families to the station on a regular basis. This 

along with being cognizant of an individual’s time and the willingness to 

listen to their concerns has helped us keep people on the department.”

The Westminster (Maryland) Volunteer Fire Department has a robust 

retention program that includes a LOSAP benefit, state income tax 

credit, free training, all turnout gear and equipment provided, on-duty 

insurance coverage and workers’ compensation, college/technical 

school tuition reimbursement program, and a live-in program tailored 

to local college students.

The solutions that the East Franklin Fire Department (Somerset, New 

Jersey) implement include:

ĵ A culture that operates under the premise that they are one family 

and does not allow multiple cliques within the fire station.

ĵ A duty crew program consisting of daytime and nightly shifts 6 days 

a week excluding Saturdays, as well as bonus credit programs for 

attending overnight duty shifts.

ĵ Providing almost unlimited training, both classroom-based and 

hands-on, free of charge.

ĵ Several hangout rooms within the firehouse, including quiet study 

rooms for students.
62 Retention and Recruitment for the Volunteer Emergency Services

ĵ Free Wi-Fi internet access for everyone, as well as multiple printing 

stations for their college and high school students to complete their 

required coursework.

ĵ Paid-per-call response for showing up for fire calls.

ĵ LOSAP, which can be taken after 5 years of continuous service in 

good standing.

ĵ T-shirts, hats, stickers and other various fire department 

merchandise free of charge, as well as merchandise that can be 

purchased by the member to show company pride.

ĵ Free washer and dryer for use by the membership.

ĵ Sleeping quarters for any member that wishes to stay overnight 

and does not reside close to the fire station.

Section 1: Developing effective leadership

Strong fire and emergency service 

department leaders understand and 

accept that their job is about serving the 

community and serving their members, 

thereby fulfilling the organization’s 

mission. As a firefighter or EMS provider 

rises up through the ranks and takes on 

a greater leadership role, they take on 

more responsibility for the success of 

the department and the safety of the 

citizens. Strong leaders make sure their 

staff has all the tools and knowledge 

needed to accomplish the mission. 

Chiefs work for their members, not the 

other way around.

In action: The Gilt Edge (Tennessee) Volunteer Fire Department 

understands the critical role of leadership in retaining volunteers and 

creating a positive department culture. “ALL levels of leadership must 

care about their people as both people and firefighters. Our department 

follows the Fully Involved Leadership philosophy of the ‘Big 4’: Do your 

job. Treat people right. Give all-out effort. Have an all-in attitude. Those 

are the four things that we ask from people on day one of joining.”

Of all the resources that a volunteer emergency services department needs, volunteers 

themselves — human resources — are the most important. While the station, apparatus 

and the budget need attention, they are secondary to the needs of the people that 

make up the department.
Part IV: Retention Strategies 63

There are 9 key characteristics of successful volunteer fire and EMS department 

leadership:

1. Accountability. Chief officers must hold themselves accountable to the same 

standards and procedures they set for the members of the department, otherwise 

they lose respect and authority. If firefighters or EMS providers are required to 

pass an annual skills test or physical exam, the chief better be first in line and 

pass the test.

2. Forward-thinking mindset. Great department leaders cannot afford to become 

emotionally attached to the past, including old apparatus, favored vendors, outdated 

standards and tactics, the old guard members, and the big fires of yesteryear. 

Nostalgia that hinders progress is the enemy and will prevent leaders from seeing 

and leading into the future. There is always a place for tradition and honoring the 

past, but these are best left to the pictures and plaques on the department’s walls 

or website, and through reminiscing at social events.

3. Empowering. Delegating is a crucial skill that department leaders must have and 

practice. It is how a leader demonstrates trust in others and empowers them to 

take action. Good leaders also understand that even when they delegate, they are 

still ultimately responsible for the outcome of the project. Leaders do not blame 

their staff for failures. They take responsibility, find a solution and coach their 

staff for the future.

4. Respect. Department leaders should make sure that everyone on the department 

feels respected. A great leader understands that everyone brings important skills 

and knowledge to the department. If favoritism is shown, others will likely take sides 

and morale problems will ensue. This is especially true in combination departments, 

where both career and volunteer members are critical to departmental success. 

The failure of many combination departments can be traced to leadership that 

takes sides or plays one group against the other.

Consider this: The Gilt Edge (Tennessee) Fire Department advises 

departments looking to improve their retention to respect their 

volunteers. “Treat your people with respect! You are asking folks to 

give up their free time, time with their families, etc., to do a job that 

can get them killed for a small stipend or no pay at all. They keep 

showing up because they want to be there, not because they have to be 

there. Don’t forget that. You can enforce high standards and still keep 

people motivated to show up. Create a family-friendly atmosphere in 

the firehouse. Let people know that their work and sacrifice is valued 

and appreciated.”

5. Humility. Leaders must be prepared to accept criticism from staff when it comes. 

If members feel that leadership isn’t listening, then leadership isn’t listening. If 

they don’t feel supported, then leadership isn’t supporting them. What matters 

is how members perceive the words and actions of leadership, as this will affect 

their performance, loyalty and desire to volunteer. A great leader is willing to hear 

difficult feedback and take steps toward continual improvement.
64 Retention and Recruitment for the Volunteer Emergency Services

Closer look: There is oftentimes a disconnect between what leaders 

perceive as a problem and what members perceive as a problem. This 

disconnect creates a barrier to finding practical solutions that work to 

address the real issues affecting retention.

In 2020, the NVFC conducted a national survey of current and former 

volunteer firefighters to find out why volunteers leave. 20% of fire 

department leaders said that inflexible training was a reason people 

left their departments, yet only 7% of former volunteers agreed. 41% 

of department leaders said volunteers left because they could not 

juggle their department commitments with their jobs and family life, 

but only 8% of former volunteers agreed. Here is a case of leadership 

not listening to their volunteers.

On the flip side, when asked why they stopped volunteering, the 

biggest reason former members cited (22%) was that the department 

atmosphere was full of cliques and groups that exclude others. 30% 

of current nonleadership volunteers agreed with them. This illustrates 

that far too often department leadership does not see the problem 

or see their role in the problem. Poor leadership that allows cliques 

to dominate the firehouse is the number 1 reason people are quitting 

the volunteer fire service.

Similarly, in the “2020 EMS Trend Report” produced by EMS1, Fitch & 

Associates, and the National EMS Management Association, a number 

of problematic trends in EMS have been tracked over the past 5 years. 

These trends are industrywide and applicable to the volunteer EMS 

world. One of the report’s findings is that 70% of EMS medical directors 

described themselves as being engaged with the field providers they 

oversee, but only 21% of field providers reported having an EMS director 

they felt was engaging with them.

Change the title EMS director to fire chief, mayor or town administrator, 

and the problem is the same. Those at the top can fall into believing that 

all the work they are doing is engaging with those they lead, and while 

that work is important, meaningful and sometimes overwhelming, it 

isn’t necessarily engaging members and addressing their needs. Great 

leaders must work at not falling into this trap.

6. Transparency. Successful leaders share knowledge and information with everyone 

in the organization. There may be some confidential information that cannot be 

shared, but 99% of all that goes on is not protected by privacy laws. Everyone in 

the organization should know or have access to the budget, how the promotional 

process works, preplans, policies and procedures, who gets paid what and why, 

the chief’s schedule, as well as all of the technical information about equipment 

and apparatus. Sharing information publicly builds trust with members and the 

community. It pushes leadership to hold themselves accountable.

7. Integrity. Department leaders are the face of their department. On duty and 

off duty, everyone is watching. They need to understand and accept that how 

they behave is how their first responders will behave. How they are seen by their 
Part IV: Retention Strategies 65

community will determine the reputation of their department. Departments with 

excellent reputations are able to recruit new volunteers; those with poor reputations 

won’t attract the new members they need. Great leaders actively manage and 

protect the reputation of their department.

8. Principled. Leading by example is how a chief officer or department leader becomes 

respected, trusted and followed. Leaders must demonstrate knowledge and skills. 

They must have courage — the courage to speak up against dangerous or unjust 

practices, to insist all members are equal and treated well, to ask for help when 

they need it, and to accept feedback from their staff and community. They cannot 

be complainers or gossip about their members. They must be honest. Attitudes 

are contagious.

9. Strategic. Taking a long-term strategic view and planning for the future is a critical 

role of a chief officer. They must bring a vision to the department and the community. 

Maintaining a status quo is not a vision and will not motivate or inspire current 

members or recruit new volunteers. It is hard to break through all of the day-to-day 

administrative issues and emergency calls to focus on the big picture and the 

long-term plan, but this is an essential role of a successful leader.

Some of these elements are easier to adopt than others. Leadership does not always 

come naturally. It is a myth that the only way to be a great leader is to be born into it. 

Leadership is something that can be learned. Great organizations and their leaders 

teach others to be leaders. For instance, the Disney Corporation created the Disney 

Institute for the sole purpose of teaching leadership, and now it offers its leadership 

classes to others outside of Disney.

There are thousands of colleges and organizations that successfully teach people to 

be leaders. There is no need to limit a department’s leadership training to emergency 

services programs. Leadership cuts across industries, job titles and ranks. The skills 

it takes to manage a nonprofit food bank or a multinational corporation are equally 

applicable to the emergency services.

Other sources of fire and EMS leadership training include the NVFC Virtual Classroom, 

the IAFC-VCOS and the NFA.

Section 2: Setting realistic expectations

When recruiting and onboarding new members, the 

department must set clear and realistic expectations so 

that everyone understands what they have signed up for. 

They must also understand the expectations that recruits 

have for the department when they join, such as being 

accepted and respected. The following are tips for setting 

clear expectations for the volunteer so they understand 

what is required of them as well as meeting the volunteer’s 

expectations of how they will be treated.

ĵ Hold an orientation session for new applicants 

before conducting interviews or making hiring 

decisions. Tell them what the job truly entails and 

the number and mix of calls. Tell them how often 

they should expect to be called upon. Explain all of 

the non-fire and EMS duties such as apparatus checks, 
66 Retention and Recruitment for the Volunteer Emergency Services

report writing, station cleaning and community service projects. Explain the duty 

and training schedule (if applicable) and time requirements. Departments that 

do this find that many applicants drop out at this stage, but this is good. Having 

people drop out early in the process saves the department time and money in 

training someone who is not interested or cannot commit the time. It prevents 

morale issues and makes for a smoother-running organization. Those that stay 

on through the process will be happier and better members of the department 

because their expectations are being met.

ĵ Post written training schedules at either quarterly, semiannual or annual 

intervals. Duty calendars and written policies on trading duty shifts or absences 

for things such as work conflicts, sick children and vacations are critical. These 

policies and schedules need to be flexible and realistic, taking into account today’s 

hectic schedules and the need for a work-life-volunteer balance.

ĵ Influence the department’s public image by posting what’s real on social 

media. Departments can shape their public image on Facebook, Instagram, Twitter, 

YouTube and in media releases. Don’t just show heroic images or repost stock 

images from other sources. Show actual day-to-day activities, such as firefighters 

testing hose, cleaning the station and checking out a possible gas leak in knee-deep 

snow. Use images of staff in the rain at motor vehicle incidents, sitting in a class 

on stroke protocols and cleaning the ambulance after a call. This approach sets 

realistic expectations and will attract new members by being authentic and genuine.

ĵ Immediately stop any and all hazing and bullying. New recruits join the 

department with the expectation that they will be accepted. If a department is 

going to successfully recruit new people and foster a functional, effective team, 

it needs to think of hazing and bullying behaviors from the perspective of new 

recruits. Why would someone want to be part of an organization that treats them 

negatively and possibly harmfully? Hazing or bullying done under the guise of “good 

intentions” on the part of long-time members doesn’t matter. Nor does their view 

of what new people should be able to bear in terms of ribbing, teasing or other 

hazing practices. What matters is how new people perceive these behaviors. The 

quickest way to drive out new members is to have them feel unwelcomed, harassed, 

bullied or that their safety is threatened by other members. Put policies in place to 

address these behaviors and their consequences and consistently enforce them.

ĵ Demonstrate that leadership values all members. Departments need to look 

at their policies and procedures to make sure they are supporting their new and 

long-term members equally. They need to consider their customs and ask how they 

might be perceived by new members joining the department. Will they see any of 

these customs as department leadership not caring about them? Some behaviors 

are so habitual the leaders may not even notice that they are detrimental. For 

example, when a new member comes on board, it is still common to hand them a 

set of ill-fitting, worn-out PPE and tell them the department will get them new gear 

once they’ve earned it or proven themselves. The new recruit will likely perceive 

this as being told they are not valuable and that protecting them from injury and 

illness is not important. This might not be the intention, but that is what that action 

says to the new member.

In order to foster retention, new recruits need to know what they are signing up 

for — the whole of it. Leadership also needs to adjust department images, policies and 

customs so that new recruits feel valued from the first moment they become part of 
Part IV: Retention Strategies 67

the department. To both attract and retain members, the influence of bullies, hazers 

and other negative department members has to be neutralized by overwhelmingly 

better and more productive behavior from the rest of the department’s members, 

and from the training and example set by other peers and leaders.

Case study: The Woodstock (Virginia) Fire Department finds setting high 

expectations to be an important component of its retention strategy.

“Primarily we retain volunteers by having high expectations for our 

members, by treating everyone fairly, and by providing our members 

with the flexibility they need to volunteer with us. Our department 

requires each of our members to attend a certain number of activities 

throughout the year, no matter who you are or what position you hold. 

These expectations are clearly spelled out and can be met no matter what 

an individual’s level of experience, work schedule, or other commitments.

“While it may not be obvious how this helps with retention, the simple 

fact is that by requiring our volunteers to be a part of the organization 

and by making sure everyone is meeting those standards, we encourage 

involvement, brotherhood, and professionalism. This means members 

trust each other, want to help each other, want to be part of the 

department, and will call each other out when they do not meet 

expectations.

“Our department also works to make our organization fun and family 

friendly. We have events at the station where members can enjoy 

themselves outside the typically stressful role they play, including visits 

to pools, dinners, sporting events, etc. and by making the station an 

enjoyable place with a nice lounge, welcoming atmosphere, etc.”

The department also provides these additional tips for recruitment 

and retention:

ĵ Be positive about your department all the time; no one wants to 

join if they think there is something wrong with your department.

ĵ Recruit all the time. You never know when you might spark an 

interest.

ĵ Communicate with the community through every avenue possible. 

People aren’t going to join if they don’t know about you, and they 

get information in a wide variety of ways.

ĵ Make room for everyone. Hundreds of super athletic, dedicated, 

brilliant recruits aren’t out there. Instead, you have to bring in 

people to fill each role in your organization.

ĵ Be prepared for people. Have a smooth membership process, 

mentorship program, train them and be welcoming.

ĵ Address negative attitudes and actions. If someone in your 

department is not going to accept new members, that needs to be 

addressed before it scares every potential person away. Likewise 

if there are demographic issues, internal fighting, etc.
68 Retention and Recruitment for the Volunteer Emergency Services

Section 3: Health and safety considerations

As with all operational and functional practices, every fire and EMS department should 

have clear policies and procedures in place when it comes to the health and safety of 

first responders. Personnel is the most important asset any department has. Building 

and maintaining a safety culture will enhance the health and safety of members, build 

loyalty, and ensure members are able to respond for many years to come.

The National Fallen Firefighters Foundation’s 16 Firefighter Life Safety Initiatives are 

recommended for all fire department operations. Initiative #1 states: “Define and 

advocate the need for a cultural change within the fire service relating to safety; 

incorporating leadership, management, supervision, accountability and personal 

responsibility.” For safety’s sake, it is imperative that fire service leaders incorporate 

this life safety initiative in order to maintain a safe work environment.

Physical health and safety

Designing and adhering to standard operating 

policies and procedures to protect members is 

critical. Ensure that these policies and procedures 

are up to date, infiltrate all department trainings, and 

that they are enforced and reinforced well beyond 

training. It is all too common to see something taught 

in training and then negated later by cultural norms 

that dictate something is done a different (less safe) 

way. Provide annual physicals for members and 

encourage them to talk to their own doctors about 

the hazards they face as a first responder. Ensure 

members are aware of other risks, such as chemical 

exposures that can lead to cancer, and provide a 

mechanism for them to track these exposures as 

well as tools to wash and decontaminate their gear. 

Ensure PPE fits properly and isn’t too big or too small, 

posing a hazard to the wearer.

Even small things can communicate concern and care for the health of members, such 

as negotiating a first responder discount with a local gym or access to a community rec 

center, starting a friendly fitness competition, or providing healthy snacks at the station.

Behavioral health

Behavioral health is as important as physical health. The continued number of tragic 

deaths to suicide in the fire and emergency services is difficult to comprehend. In 

addition, many firefighters and EMS providers leave the service due to mental health 

impacts they experience that go untreated. Department leaders must work to identify 

the impact of behavioral health challenges on the well-being of members. Know 

how to recognize signs, symptoms, risks and protective factors for behavioral health 

challenges, including depression, anxiety, post-traumatic stress disorder (PTSD) and 

addiction. According to the National Center for PTSD, roughly 50% of the U.S. population 

is exposed to traumatic stress, but only 7-8% develop PTSD. In the emergency services, 

these rates are higher. It is reasonable to assume that 100% of emergency responders 

are exposed to traumatic stress. In a 2015 study of 1,027 firefighters conducted by 

Stanley et al., rates of suicidal ideation were 46.8%, suicide planning were 19.2% and 

suicide attempts were 15.5%.
Part IV: Retention Strategies 69

Limiting the number of responders exposed to traumatic scenes and keeping junior 

members away from difficult calls can help reduce the impact. Providing resources, 

maintaining open communications through stress debriefings, and establishing 

peer support and chaplain programs will benefit all members. If necessary, bring in 

professional help or clergy to provide a safe haven for discussion after a traumatic 

incident. It is the duty of department leadership to support their members by making 

sure they have the means available to get the help they need.

The NVFC, in partnership with the American Psychological Association and the Firefighter 

Behavioral Health Alliance released the “Psychologically Healthy Fire Departments:

Implementation Toolkit” to help fire department leaders promote and support wellbeing among their members. They also compiled the “Directory of Behavioral Health 

Professionals,” which is a listing of local providers who either have firsthand knowledge 

of the fire and emergency services or have been trained to help emergency responders 

and their families. EAPs are another source of support to first responders. Such programs 

may be available through the department’s insurance carrier or by collaborating with 

local government to expand an existing EAP to volunteers.

In action: Recognizing that mental health is directly tied to retention 

and wanting to better support their members, Moscow (Idaho) Volunteer 

Fire and Ambulance increased their emphasis on peer support and 

mental health resources. The city of Moscow provides an EAP to the 

volunteers; volunteers can receive a certain number of counseling 

visits through the program to address any issues, such as trauma, 

relationship difficulties, financial challenges, etc. Additional mental 

health services are provided through the University of Idaho Counseling 

and Testing Center.

The department also offers free mental health training to their 

volunteers on topics, including PTSD; resiliency; critical incident stress 

management; Question, Persuade, Refer; and Mental Health First Aid. 

“All trainings on mental health and resiliency (and pretty much any other 

trainings on other topics) are free to volunteers. These trainings have 

been funded through our department, through Latah County, through 

our local hospital Gritman Medical Center, the City of Moscow and/or 

City of Pullman, and University of Idaho. We tap into any resources 

available and share this with our volunteers and volunteer leadership.”

Insurance

Insurance is another important consideration when it comes to the health and safety 

of first responders. First responders operate in dangerous environments, and many 

volunteers do so without the protections afforded to their full-time, career counterparts 

who have robust workers’ compensation, retirement and disability plans. Most states 

provide some underlying workers’ compensation for volunteer responders, but it 

typically is not sufficient in the case of a long-term disability due to an injury or illness.

For example, wage calculation for workers’ compensation for a firefighter may be based 

on a state average for the equivalent salary for their level of firefighting certification, 

yet the firefighter could be earning significantly more than this in their career. Some 
70 Retention and Recruitment for the Volunteer Emergency Services

states make workers’ compensation for volunteer firefighters a voluntary (not mandated) 

purchase, and some states do not provide any workers’ compensation coverage to 

volunteers. Some states may only provide coverage for medical expenses but do not 

account for lost wages for that firefighter who cannot work due to illness or injury. In 

many states, a heart attack or cardiovascular event may not be included in workers’ 

compensation coverage.

As a result, volunteer firefighters and EMS providers have unique insurance needs that 

should be considered by their respective emergency services organizations. Coverage 

options can include the following:

ĵ Accident and health (A&H)/accident and sickness (A&S) coverage: Typically 

provides coverage in excess of workers’ compensation and includes covered injury/

illness lump sum death benefits, short- and long-term disability benefits, and 

other medical expense benefits that help bridge the gap between what workers’ 

compensation pays and actual lost wages and incurred expenses; in the instances of 

a workers’ compensation denial, the A&H/A&S coverage may be all that a volunteer 

responder has.

ĵ 24-hour accidental death and dismemberment coverage: Provides injury, 

death and dismemberment coverage both “on-duty” and 24 hours a day when 

not performing an activity for the department; may include an increased death 

benefit for line-of-duty deaths. This is an affordable way to provide coverage for 

volunteer responders that gives them coverage beyond department activities.

ĵ Group life coverage: Guaranteed-issue group life insurance for all department 

members with no individual medical underwriting; provides life insurance coverage 

for department activities as well as anything outside of the department.

ĵ Critical illness coverage: Provides coverage for certain covered illnesses and 

cancers regardless of how they manifested.

ĵ Cancer insurance coverage: Provides cancer coverage for certain covered cancers 

and may be state-specific based on cancer presumption or cancer insurance laws 

for volunteer firefighters.

ĵ First Responder Assistance Program (or an EAP): Provides a variety of support 

services for volunteer firefighters, EMS providers and their families for issues such 

as mental health, substance abuse, relationship problems and gambling problems; 

may be purchased as a stand-alone product or through an A&H policy.

Consider working with local government to determine if there are existing policies 

that can be expanded to cover department volunteers. While insurance policies come 

with a cost, it is important to note that volunteers save their communities thousands 

of dollars every year. The cost of insurance is still significantly less than hiring and 

insuring a paid fire and emergency services department staff.
Part IV: Retention Strategies 71

In action: Mulvane (Kansas) Fire Rescue works with the state 

government to provide insurance and retirement benefits to support 

volunteer retention. “Kansas has a statewide Firefighter Relief Benefit 

Fund sponsored through the Kansas Insurance Department. We receive 

monies each year from the state to purchase insurance benefits for 

our firefighters, and we issue a $10,000 retirement annuity to each 

member at 10 years of service. They receive the annuity with interest 

after they retire with a minimum of 20 years of service.”

Section 4: Building camaraderie

Camaraderie is mutual trust and friendship among people 

who spend a lot of time together. It is no surprise that 

volunteers frequently cite camaraderie and friendships 

as primary reasons why they join or continue to volunteer 

with a department. Camaraderie can get first responders 

through difficult calls, challenging personal times, and the 

many highs and lows that go hand-in- hand with emergency 

response.

Building camaraderie and cohesiveness fosters a 

connection between volunteers that keeps morale high 

and volunteers motivated to respond, train and engage. 

There are several ways to do this.

ĵ Create a welcoming environment. Have a defined onboarding process where new 

members are welcomed from day 1. Introduce the new member to their peers and 

explain the roles and responsibilities of each position and member. Ensure they 

understand the goals of the organization and the team and maintain accessibility 

to leadership.

ĵ Value individual differences. People from different backgrounds and generations 

bring different skill sets to the department. Learn what their skills and interests 

are and how they can best fit the team. Perhaps a more senior member loves to 

share knowledge and would make a great mentor for younger members. Maybe 

a petite member devised a way to accomplish a challenging fireground task safely 

and can share that technique with new recruits. Or maybe a multilingual member 

can help translate department materials for the community.

ĵ Discourage toxic behaviors. Avoid any appearance of favoritism, discourage 

cliques and address any conflicts as soon as they arise. Avoid gossip and rumors 

with clear communication and policies that prevent bullying and harassment.

ĵ Encourage social events. In addition to training and responding to calls together, 

find ways team members can have fun on and off duty. Schedule a time to work 

out together, ask members to make and share a favorite family dish during station 

meals, or schedule outside events such as picnics or sporting events where members 

can bond. Celebrate milestones together such as birthdays, work anniversaries 

and more.
72 Retention and Recruitment for the Volunteer Emergency Services

The challenge is to maintain that unity and dedication to the mission. Fire and emergency 

services leaders should work to create and maintain a supportive and inclusive 

atmosphere. Members that feel they are heard and can be part of the solution will 

bring unity within the department. Creating that second family — that fire service 

family — will strengthen the bond between members, improve morale, and set an 

outward-facing image of teamwork and unity that will only serve to make recruitment 

and retention easier.

Section 5. Training requirements

The time commitment of being a volunteer is a consistent 

concern voiced by both current and prospective first 

responders. Training alone requires countless hours 

across multiple evenings and weekends, placing a strain 

on volunteers who often juggle a full-time job along with 

family and other commitments. According to the NVFC’s 

2020 study on volunteer retention, “while the volunteers 

recognized the importance of training, many spoke to the 

inflexibility of training and times offered.” Some volunteers 

believe that the requirements are too much, and others 

believe that the intensive training standards have increased 

the professionalism and pride of the volunteer fire and 

emergency services. It seems clear that there is a need to 

make training more accessible and flexible for members, 

while still meeting department needs. Otherwise, the time required to meet training 

requirements will continue to be a major negative factor in the recruitment and 

retention of volunteer members.

Closer look: Training doesn’t have to be a barrier to retention. Many 

departments leverage training as an asset for members and a tool to 

advance retention. The Gilt Edge (Tennessee) Volunteer Fire Department 

makes training a part of its culture. “We have a high standard of training, 

which instills pride in the organization. Members are required to obtain 

Hazardous Materials Awareness/Hazardous Materials Operations, 

Firefighter I, Firefighter II, and Emergency Medical Responder within 24 

months of joining. We were told by some that this was too much and 

that we would drive people away or discourage new members. Four 

years later, we are stronger than we have ever been in the department’s 

33-year history. We train hard on weekly drills, and we regularly send 

members to outside training opportunities.”

Some departments use training as a retention tool by offering state 

certifications to help their members advance. For instance, at the 

Daggett (California) Fire Department: “We support the retention of 

our volunteers by offering continuing training by our state-certified 

fire instructors. These courses allow the volunteers to gain valuable 

knowledge while obtaining various state certifications. We also partner 

with a local nonprofit, Silver Valley Fire Alliance, who provides monetary 

reimbursement for fees paid to attend fire training courses not offered 

by the department.”
Part IV: Retention Strategies 73

Foothills Fire and Rescue (Golden, Colorado) also found certifications 

to be an incentive for its members. “We provide in-house training 

programs for new recruits to receive state certification at no charge. We 

also provide weekly training classes throughout the year for continuing 

education and recertification hours, partnering with neighboring 

departments including Highlands Rescue, Alpine Rescue, and Evergreen 

Fire Department for well-rounded training.”

At the Royersford (Pennsylvania) Fire Department, members appreciate 

the opportunity to expand their training in a convenient location. 

“We have an EMS Division which operates multiple ALS units in two 

counties. Many of our members have been cross-trained in EMS, opening 

opportunities to gain experience in the medical arena as well. We’ve 

also created a partnership with Harrisburg Area Community College 

to host Emergency Medical Responder (EMR) & Emergency Medical 

Technician (EMT) courses in-house. Bringing the training to our members 

has certainly helped to keep them interested and more versatile.”

Some ways to accomplish more flexible and accessible training opportunities include 

the following:

ĵ Training delivery models for volunteers should be structured in a manner that 

contains elements of creativity and flexibility.

ĵ Training schedules and required training should be published at the beginning of 

the department’s year (either calendar or fiscal) so volunteers can have the longest 

possible lead time to arrange their schedules in order to attend training.

ĵ Department training officers should combine mandatory training into the training 

schedule to accomplish departmental objectives and maximize training opportunities.

ĵ A training progression plan should be established so all volunteers have a clear 

understanding of the class sequence necessary to accomplish their training goals.

ĵ Adopt a training regimen that maximizes the use of the online, modular delivery 

systems and hybrid programs so volunteers can acquire knowledge in a way that 

fits their work schedules and busy lifestyles, while ensuring that training objectives 

are met.

In action: The Florida Bureau of Fire Standards and Training launched 

a new approach to train the state’s volunteer firefighters. The “Grow 

as You Go” program provides a modular online training program that 

allows volunteer firefighters to serve their department at 5 different 

levels as they complete the modules needed to receive their Volunteer 

Firefighter Certificate of Completion.

ĵ Develop training schedules that offer repeated presentations throughout the year 

at different times and days of the week. For each training, make sure both weekday 

evening and weekend offerings are available to accommodate different schedules.

ĵ Ensure instructors are competent, certified where required, engaging and adhere 

to the time schedule laid out for the training session.
74 Retention and Recruitment for the Volunteer Emergency Services

ĵ Sponsor out-of-town travel to conferences and other training events so members 

can acquire training on the latest operational techniques, health and safety, and 

other current issues that is not available locally.

ĵ While some training can only be hands on, there is a lot that can be accomplished 

online. To make it easier for members to complete required training, utilize online 

resources as appropriate, supplemented with in-person drills.

ĵ Online courses can be taught through a variety of platforms such as Zoom, WebEx 

or Microsoft Teams, and many state and national emergency services organizations 

offer online training, such as the NVFC, IAFC, NFA, Underwriters Laboratories 

(UL), NFPA, colleges and universities with fire science programs, and some state 

training academies.

Case study: Innovation and flexibility helped improve basic training 

rates in the State of Oklahoma. Thanks to a SAFER grant, the Oklahoma 

State Firefighters Association (OSFA) was able to conduct a study to 

identify the biggest needs of their local fire departments. The top 

answer by far was training. Without any state training mandates or any 

permanent source of funding for the state training agency, Oklahoma 

fire departments were having trouble getting their members to complete 

Firefighter I.

Armed with this information and with an understanding of the lifestyles 

and work/family commitments of their members, OSFA used the SAFER 

funding to develop a hybrid training model throughout the state. Instead 

of firefighters having to travel to the state fire academy, OSFA began 

implementing Firefighter I classes online, supplemented with regional 

skills days for the hands-on requirements. Firefighters can complete the 

classroom portion of their coursework online and at their own leisure, 

with OSFA assigning deadlines for them to get their work done before 

they can attend the hands-on skills days.

To help students that aren’t as confident in their reading and testing 

abilities, or that lack the time to sit down and read the course material, 

OSFA partnered with Fire Protection Publications to develop an 

audiobook that students can listen to while they read along or while 

they are driving their combines through their farm ground.

The hands-on regional skills days take place every other weekend for 

about 12 weeks. OSFA has found that the camaraderie and confidence 

gained by students who participate in this hybrid model match that of 

students who attend a traditional fire academy format.

To further support the initiative, OSFA also offers new recruits a full 

NFPA firefighter physical, and once they pass the required International 

Fire Service Accreditation Congress test at the end of their class, they 

give them a full set of PPE.

The program has had great success in Oklahoma, enabling firefighters 

in even the most rural parts of the state to complete their Firefighter I 

training. Before the program was implemented, about 45 firefighters 

each year completed their Firefighter I training. Since the program 

launched, that annual average has increased to 125.
Part IV: Retention Strategies 75

When determining the training requirements necessary for 

an individual department, the volunteer fire and emergency 

services must not lose sight that the most essential training 

is on those incidents and situations which frequently occur 

within the primary response area. In addition, it’s likely that 

not every volunteer needs to be trained in every possible 

skill. Often, the volunteer emergency services attempt to 

be a “jack-of-all-trades,” but this can lead to burnout as it 

increases the time demand on already busy volunteers. 

Many times, there are technical response teams that offer 

specialty classes. Consider if this technical training could be 

considered optional and not essential, or made available 

for some, but not required by all.

Ensure that volunteers understand why training is so important and be respectful of 

time during training sessions. Let participants know their time is valued by starting and 

ending at the scheduled times, avoid war stories, and stick to the core requirements 

of the course or training session. Finding ways to accomplish training objectives and 

goals while minimizing the extraordinary time burden placed on volunteers will benefit 

the department and staff alike.

Consider this: The amount of training it takes for a volunteer to be able 

to respond to all needs is an immovable barrier to some prospective 

volunteers and may result in current volunteers leaving the department. 

One solution involves an adjustment to the traditional way of thinking 

that requires every volunteer to do everything. Instead, departments 

can consider allowing volunteers to just focus on specific areas of 

response, keeping in mind minimum state training requirements and 

also the minimum training requirements the department needs to 

ensure adequate response.

The Lewisville (North Carolina) Fire Department found that allowing 

volunteers to focus on just the roles they want to play in the department 

has positively impacted their membership.

“Citizens working full-time jobs don’t have the time available to commit 

to hundreds of hours of training to become certified responders. EMT 

is 190 hours minimum, Firefighter training is 340-hour minimum, and 

Technical Rescuer is 120 hours minimum. These three base certifications 

total 650 hours, just to learn the basics! We have lowered mandatory 

requirements for new members. Every volunteer no longer has to meet 

certified firefighter training requirements.

They can serve as firefighters only, EMS only, technical rescuers only, 

or support team members only.

“For many years, the volunteer fire service has responded to the 

increasing demand for training by mandating more and more time 

from its volunteers. In Lewisville, we have shifted our focus from making 

volunteers be present to making them ‘want’ to be present. We have 

shortened pre-training business meetings to significant event awareness 

only. This way we dive head-first into active training. Train like you want 

to perform... get in, get the work done, go home.”
76 Retention and Recruitment for the Volunteer Emergency Services

Section 6: Volunteer benefits and incentives

Incentives, benefits and awards are used in the volunteer 

emergency services as a retention tool. Successful incentive 

programs are diverse and appeal to members of all ages, 

experiences and ranks. There is not a one-size- fits-all 

incentive program that works in every fire department; 

however, it should be equitable within the fire department. 

It is recommended that a menu list of options, based on 

budget and resource restrictions, be provided to the 

membership on an annual or regular basis to get feedback 

on what members want to receive.

Although benefits are not typically the reason why 

individuals volunteer, it is important to have a strategy 

informed by member input on how to structure incentives to maximize their memberretention value. For some departments, an annual awards dinner with family members 

may be sufficient. For other departments, T-shirts may be the key. It cannot be stressed 

enough that the ideas in this section are not intended to be a comprehensive list of 

incentives, benefits and awards. Rather, it is a starting place to begin to think creatively 

about what can be offered in a fire department depending on the membership needs 

and wants.

Departments must also consider local, state, tribal or territorial laws and regulations 

when implementing a retention program to ensure all applicable laws are being 

followed. For instance, there may be tax implications, charitable or labor regulations, 

or other factors to consider.

Consider this: The Carlisle (Massachusetts) Fire Department warns that 

volunteer benefits should be tied to actual service. “Be VERY CAREFUL 

about blanket benefits that are not tied to engagement. We know the 

number of hours a week/month that a member is available for calls and 

can tie benefits to that. Benefits that are blanket can cause friction for 

someone who comes to every call versus those who seldom respond, etc.”

Department-inclusion incentives

Broadly speaking, incentives can serve 2 purposes: compensation for a volunteer’s 

time, effort and personal expense related to volunteering, and recognition of the value 

of the service being provided by a volunteer, which helps them to feel included in the 

department. Uniform and department paraphernalia (T-shirts, caps, pins, etc., with 

the department logo) are relatively low-cost ways of signaling to volunteers that they 

are valued members of the department.

Direct monetary incentives

The key reason why someone volunteers or continues to volunteer shouldn’t be a 

monetary incentive. However, it can often be an incentive to continue to volunteer 

even when feeling overextended with other responsibilities. Monetary incentives may 

include direct payment for calls, retirement plans, tax credits, access to insurance 

(health, dental and life), and tuition and housing assistance.
Part IV: Retention Strategies 77

Direct payments for calls

Some departments are able to offer a monetary incentive for responding to calls and/

or training hours. Volunteer stipends vary considerably among departments, states 

and regions. Sometimes pay is linked to the number of calls or the number of hours 

spent on calls and training or a comprehensive points system. Other departments 

budget a specific dollar amount that is then distributed at the end of the year.

In action: According to an article in the Observer-Reporter on Sept. 2, 

2020, the North Franklin Township (Pennsylvania) supervisors voted to 

support volunteer firefighter retention by providing funding to the fire 

department for a pay-per-call option. The township will provide a lump 

sum to the department on a quarterly basis, and the department can 

then distribute a $20 per call stipend to volunteer firefighters who meet 

the eligibility requirements. The funding comes from the township’s 

general fund. The department hopes it will provide an incentive for 

existing members to come to calls, as well as attract new members. In 

addition, the local government had also recently implemented a 20% 

tax reduction for volunteer firefighters.

It is recommended that the department seek legal counsel with someone who specializes 

in employment law to assist with formulating a compensation plan. A qualified expert 

can provide the language needed to create a policy that conforms to labor laws and 

help the department avoid potential issues with withholding taxes and other payrollrelated concerns.

Retirement plans

Retirement plans, pension plans and LOSAPs can be used as powerful retention 

motivators. They are complex to manage because of state and federal tax codes, so 

it is important to do research and seek clarity on what is available in your state. For 

example, most pension plans exclude LOSAP from being a Deferred Compensation 

Plan as long as 2 criteria are met: The individual must be a bona fide volunteer, and 

the annual contribution for any person in the plan cannot exceed $6,000 (as of 2020), 

though this cap is expected to increase over time with inflation. LOSAPs may provide 

a lifetime monthly income payment once a volunteer reaches a certain entitlement 

age or a specified amount of service. Other LOSAPs may provide a lump sum award 

based on the number of years of service and the individual’s age.

It is important to note that retirement plans appeal mostly to long-term volunteers. 

According to the NFPA, 41% of volunteer firefighters have served for more than 10 

years, so this is an important group. 10% have served for less than 1 year, and 27% 

have served for 1-5 years. Based on anecdotal evidence, there tends to be significant 

turnover among this under-5-years cohort, and a LOSAP probably will not appeal to 

them as much as a regular stipend would. As such, it is important to know what your 

members want when it comes to incentives and benefits.

Many communities have a difficult time offering these types of incentives because of 

a lack of money to contribute to these plans. It may be useful to actively and regularly 

engage local government entities to determine what is available for volunteers and if 

there is room for increasing the availability of a retirement plan. In addition, the SAFER 

grant offered through FEMA can be used to fund these incentives.
78 Retention and Recruitment for the Volunteer Emergency Services

Tax credits

Personal property tax exemptions and credits for volunteers contributing a set number 

of qualifications can be a motivator for some members to maintain their membership. 

Tax credits can be a powerful incentive to younger or shorter-term volunteers who are 

not thinking about retirement benefits as a motivating factor. Partnering with local 

government to discuss this possibility can often have positive outcomes. It is another 

example of an opportunity to work with local government agencies to afford them the 

opportunity to view volunteers as a cost-saving entity in their community who should 

be rewarded for their service.

Property tax credits are particularly useful in high-cost-of-living areas. Property tax 

credits make it less expensive for volunteers to live in the community, thus making it 

less likely that they will move and leave the department.

In action: Local government can be a great ally to enable the fire 

department to offer an array of incentives to their volunteers. The 

Holiday Park Volunteer Fire Department (Plum Borough, Pennsylvania) 

partners with several local government agencies to help provide 

retention incentives. The borough of Plum provides tax exemptions and 

insurance while Allegheny County offers free community college as well 

as free ski lift, wave pool and park pavilion rentals in the county parks.

According to a June 1, 2021, article in The Reading Eagle, Exeter Township 

in Pennsylvania adopted a tax forgiveness ordinance for residents 

who are active volunteers, in complement to a 2016 state legislature 

decision to offer property and earned-income tax breaks to volunteer 

firefighters who meet certain criteria, as long as the municipality adopts 

an enabling ordinance. The article reported that the Exeter supervisors 

updated the enabling ordinance to increase the municipal property 

tax credit from 15% to 50%. Firefighters that reside in the township 

can also receive an earned income tax rebate of up to $500 per year.

Insurance

Health, dental or life insurance can be a strong motivator for retaining membership, 

especially if they do not have insurance through their employers. It may be cost-effective 

for a municipality to include volunteers in their group health insurance. The local 

municipality can purchase health insurance from a health care provider and add the 

volunteers on to their policy. The department may need to establish a limit to which it 

will contribute to the policy, and members may be required to pay any additional costs.

Tuition and housing assistance

A very popular recruitment tool has been providing tuition and housing assistance 

for volunteers who have been active for a set number of years. Some states provide 

tuition-free scholarships for volunteers in state schools. Some fire and EMS departments 

provide education stipends or scholarships for volunteers who have met certain 

milestones, sometimes even extending these opportunities to the volunteers’ children. 

Housing assistance can be provided in many different aspects, such as residency 

programs. Some departments in rural communities have purchased a home near the 
Part IV: Retention Strategies 79

fire station where volunteers can live in exchange for being available on specific days 

or for a certain number of hours per month. Some states offer low-interest housing 

loans to volunteer emergency responders.

In action: An article from Oct. 22, 2020, in The Morning Call reported the 

Fogelsville Volunteer Fire Co. (Upper Macungie Township, Pennsylvania) 

allows firefighters to live rent free at the firehouse in exchange for 40 

hours of volunteer fire service. Those in the live-in program are able 

to get to calls significantly faster than volunteers responding from 

home. The live-in program is utilized by younger members who are 

now responding to overnight calls as well, whereas before the average 

age of those responding to calls after midnight was about 60.

Indirect monetary incentives

Indirect monetary incentives are useful for communities that do not have the financial 

resources to offer monetary incentives. Some examples of indirect monetary incentives 

include discounts to local family-friendly attractions, gym memberships, medical 

examinations, training or education benefits at local schools, and take-home vehicles 

that can be used for personal business as needed. A good place to start is to ask local 

businesses and local government if they would be interested in offering discounts to 

active members. Even something as cost-efficient as a movie theater offering a free 

movie night once a month, or local government providing access to a community 

center, can go a long way in having a member feel appreciated. This can also help 

promote local businesses.

Consider this: The federal Volunteer Responder Incentive Protection 

Act of 2019 exempts property tax benefits and up to $600 per year 

of other non-LOSAP incentives that volunteer emergency responders 

receive as retention benefits from being subject to federal income tax, 

withholding and reporting requirements. This exemption was made 

permanent in December 2020.

Section 7. Recognizing volunteers

Volunteers want to feel appreciated within their department 

and within their community. Even volunteers who receive 

their satisfaction from serving their community and the 

camaraderie within the department want to know that their 

contributions matter. According to NVFC’s “Psychologically 

Healthy Fire Departments: Implementation Toolkit,” 

recognition of efforts can increase member satisfaction, 

morale and self-esteem. This may also lead to better 

engagement, performance, lower turnover and the ability 

to attract and retain high-quality members.

Appreciation can come in many forms. Something as 

simple as a handwritten thank you note from a community 

member, fire chief or a government official can be very 

meaningful. If the department has a PIO or someone 
80 Retention and Recruitment for the Volunteer Emergency Services

who acts in that role, a press release to local media can be used to spotlight the 

accomplishments of volunteers who have completed a training course or achieved a 

professional or personal accomplishment. Department and community newsletters 

and social media can also be a good tool to highlight milestones and achievements. 

Consider asking the mayor or other local government official to issue a proclamation 

during National Volunteer Week to recognize the contributions of department volunteers.

Awards banquets allow members a chance to enjoy some downtime together while 

celebrating accomplishments. Consider establishing awards for lengths of service, rookie 

of the year, firefighter of the year or for other topics of importance to the organization 

such as a health and safety award or recruiter of the year for the individual who 

recruits the most volunteers for the department. Invite the mayor, city/town manager 

or county superintendent to help present these awards and meet the extraordinary 

volunteers who earned them.

There are many ways to let volunteers know they are appreciated, and not all of them 

require a substantial budget or big fanfare. Sometimes a simple acknowledgment at a 

department meeting or even in day-to-day activities can go a long way in communicating 

appreciation.

Consider this: Recognition is a low-cost but effective way to let 

volunteers know they are valued and appreciated. In the NVFC’s 

retention study conducted in 2020, 44% of former volunteers and 

58% of current volunteers cited giving out awards or honors annually 

and when members reach service milestones as something they think 

would have a positive impact on volunteer retention. As the Richmond 

(Maine) Fire Department notes: “Staff recognition is important. [Our 

volunteers] are constantly being recognized on social media, monthly 

newsletters, and town reports.” At Foothills Fire & Rescue (Golden, 

Colorado), “We host annual events to recognize our volunteers and 

show our appreciation, including family bowling nights, annual awards 

banquet, firefighter Olympics, BBQs, and other fun gatherings.”

The Rapid Valley Volunteer Fire Department (Rapid City, South Dakota) 

recognizes volunteers with awards as well as utilizes community 

involvement to help volunteers feel connected, appreciated and part 

of something bigger. “The department has recognition packages for 

every five years of commitment. We have [also] added several public 

education and public involvement opportunities. These opportunities 

allow the members to participate in a light-hearted time, interacting 

with the public without there being an emergency incident involved. 

These events include open houses (recruitment), pancake suppers 

(fundraisers), participating in the community holiday parade of lights 

(social), and our newest — truck-or-treat (community event). This has 

given the longer serving members some new interest and it shows the 

new members the essence of family and community involvement that 

the volunteer fire service is all about.”
Part IV: Retention Strategies 81

Section 8: Nonoperational volunteers

Fire and EMS departments are faced with a variety of tasks to keep the doors open and 

the department functioning, and not all of these include fighting fires and responding 

to emergency calls. Consider seeking nonoperational volunteers to assist with these 

tasks, removing this burden from your operational volunteers and providing the 

community with other, meaningful ways to engage with your department.

Volunteers with specific skill sets

Departments often need specific skills to help them 

function efficiently and effectively. From providing physicals 

to members to assisting with training, accounting functions 

or even providing legal advice, there are members of 

the community that may be eager to help in these less 

conventional roles:

ĵ Accountants: From managing day-to-day finances 

to conducting audits and setting up sound financial 

policies, departments can benefit from accounting 

expertise to guide or help with their work.

ĵ Boat operators/scuba divers: In response areas with 

bodies of water, boat operators and scuba divers can 

spearhead water rescue teams.

ĵ Construction workers: Individuals in the construction industry are familiar with 

building codes and building construction and can assist with training.

ĵ Fire protection engineers, sprinkler and fire alarm system contractors and 

inspectors: People in supporting roles of fire prevention and community risk 

reduction often already have much knowledge about fire science and can offer 

training to fire department members and the community at large.

ĵ Grant writers: Grant writing can be time-intensive and requires a specific skill set. 

A local grant writer can help the department secure funds for their recruitment 

and retention efforts, new gear and equipment, and more.

ĵ Human resources professionals: From recruiting new volunteers and designing or 

managing the onboarding process, to tracking ongoing training and certifications, 

human resources professionals have many skills that would benefit a volunteer 

emergency services department. Whether they volunteer on a regular basis or 

simply serve as an advisor to the department, their skill set is unique and beneficial.

ĵ Lawyers: Some volunteer departments recruit lawyers to volunteer or to offer pro 

bono services. Since most volunteer fire and EMS departments are corporations, 

these individuals can provide necessary and free guidance to the board of directors 

or trustees. Lawyers are often willing to consult with their fellow department 

members about issues of liability and possibly even more personal matters for 

members — for example, wills, trusts and other legal issues.

ĵ Marketing professionals: Individuals with experience in communications and 

fundraising can serve as PIOs or help inform the community that volunteers are 

needed. A social media expert or website developer can help departments build 

a solid online presence.
82 Retention and Recruitment for the Volunteer Emergency Services

ĵ Physicians and nurses: They are easily trained to the paramedic level. Some states 

allow doctors and nurses to directly challenge EMT tests without taking the full 

class. Doctors, physician assistants and nurse practitioners can also be recruited 

to give physicals to members.

ĵ Restaurateurs: Chefs are often knowledgeable and helpful for department 

fundraisers, such as breakfasts and barbecues.

ĵ Teachers: Teachers provide a myriad of skills and may have extended periods of 

time off from the classroom. They can also provide guidance on public education 

efforts.

ĵ Trade professionals: Electricians; plumbers; and heating, ventilating and air 

conditioning specialists can offer experience that is valuable to emergency services 

departments.

ĵ Truck drivers: Truck drivers are familiar with driving large apparatus and may be 

able to assist with training drivers and offering highway safety training.

In action: The Lewisville (North Carolina) Fire Department found 

that delving into new areas and creating opportunities for all has 

expanded its services and helped its membership thrive. “Lewisville 

Fire Department has tried to be forward-thinking regarding emerging 

technologies. We recently added a new UAV (drone) program to our 

arsenal of abilities. We have experienced more interest in this program 

than any service delivery addition in over two decades. Through new 

programming such as UAV, an increased social media presence across 

multiple platforms, and the new ‘there is something for everyone at 

Lewisville Fire Department’ mentality, we have experienced a surge in 

membership from new and returning former members alike.”

Consider this: In addition to finding individual volunteers with special 

skill sets, departments can consider approaching other organizations 

or companies for assistance with specialized areas. For instance, the 

local hospital may be able to provide human resources assistance 

to the department, tap into their network as a source for volunteer 

recruitment and/or provide annual medical evaluations to department 

personnel. A local business may have resources to assist with things 

like marketing, accounting or even legal advice.

Fire Corps and auxiliary programs

Departments have used auxiliary programs for decades as a way to incorporate 

nonoperational volunteers into daily operations. Auxiliaries have served many roles, 

from operating a department canteen to conducting fundraisers or assisting with the 

department open house.

Historically, departments frequently called these programs Ladies’ Auxiliaries; however, 

with the growing diversity of the fire and emergency services, this is outdated, and the 

name alone could deter perfectly capable and enthusiastic volunteers.
Part IV: Retention Strategies 83

Since 2004, the NVFC has operated the national Fire Corps program to help departments 

create and maintain teams of skilled volunteers to assist with any number of nonoperational 

duties, from rehab services, to public education, to community risk reduction activities 

and so much more. Whatever the name, nonoperational volunteers provide an excellent 

way of engaging community members in meaningful ways while reducing the burden 

placed on firefighters and EMS providers to keep the department operating smoothly. As 

an added bonus, these programs have proven to be an effective recruitment tool, with 

many members making the leap from a nonoperational to operational role once they 

get a chance to see and experience the emergency services lifestyle.

In action: Nonoperational volunteers can be a big asset to an emergency 

services department. Mulvane (Kansas) Fire Rescue has a resource 

team that assists the department in various ways. “The resource team 

are citizens with an interest in helping us, but do not want to run into 

burning buildings. One of our resource members is a photographer; he 

goes with us to capture some incredible images of us at work to share 

in our station and on social media. Another member of this team is a 

county dispatcher/EMT who comes in and helps staff our EOC when 

needed. We have also had a mechanic and a secretary/treasurer on 

our resource team. Many times, these people are friends or relatives 

of department members.”

Section 9: Mentor programs

According to the NVFC’s 2020 retention research, former volunteers cited the following 

as the top reasons for leaving their department:

ĵ Cliques and groups that exclude others.

ĵ Department leadership that doesn’t understand or support the needs of members.

ĵ A department atmosphere where members of different generations don’t get along.

ĵ A lack of camaraderie or sense of community among everyone.

In this same study, current volunteers listed mentor programs as most likely to have 

a positive impact on retention. A successful mentoring program which pairs new 

volunteers with more experienced members may assist in helping recruits feel less 

isolated, help address any generational tension by forming bonds between younger 

and senior members, provide a link between senior/leadership and newer recruits, 

and help to establish a better sense of community and camaraderie.

In addition, mentor programs can positively 

affect the culture of the organization, allow for 

leadership development and facilitate camaraderie 

between the mentors and mentees. The purpose 

of a mentoring program is to share knowledge, 

help synthesize and articulate experiences and 

actions, facilitate problem-solving, and provide 

an encouraging environment. Mentoring is also 

highly effective in passing along soft skills such 

as leadership, team building, communications, 

and department history and culture.
84 Retention and Recruitment for the Volunteer Emergency Services

There are several resources that can assist departments in developing mentor programs. 

One such resource is the IAFC/Volunteer Workforce Solutions’ online, self-paced 

courses on mentoring: “Mentoring I: Re-energizing Your Department Culture Through 

Positive Influence” and “Mentoring II: Developing and Retaining Firefighters Through 

Relationships.” These courses describe how to set program goals and objectives, 

establish performance measures, demonstrate communications skills, build trust, and 

identify strategies for developing the mentee’s behavior and performance.

Section 10: Family support

Volunteering as a first responder affects more than just 

the individual volunteer. The training schedule, duty 

shifts and/or answering calls from home, along with the 

risks associated with the job, affect the entire family. 

The schedule may mean long hours away from home, 

unexpected absences, missed family events and sometimes 

even emotional impacts that can carry over from the station 

to the home. Having an emergency services volunteer in the 

family can also be exciting, rewarding and a great source 

of pride for family members. Helping families understand 

and adapt to the unique attributes of the volunteer lifestyle 

can make all the difference in volunteer retention.

In the NVFC’s 2015 survey on volunteer recruitment, current and prospective volunteers 

cited strong family support as a driving factor in becoming and remaining a volunteer. 

Taking steps to facilitate that strong family support will benefit the department as well 

as the individual volunteer. Being open and transparent with family members, helping 

them to understand the change in family dynamics that volunteering can bring, and 

making them feel like part of the extended emergency services family can go a long way. 

Consider the following ways departments can foster these strong family relationships:

ĵ Provide information to families of new members on what they can expect as a 

family and the importance of the work the volunteer will being doing, such as the 

NVFC’s “What to Expect: A Guide for Family Members of Volunteer Firefighters.”

ĵ Host a family information session to help family members understand and prepare 

for this new lifestyle. Possible topics can include training and response schedules, 

community response statistics demonstrating the need for volunteers, health 

and safety measures in place to keep their loved ones safe, and any benefits and 

incentives available for volunteers and their families.

ĵ Including family in department events such as award ceremonies, off-duty 

get-togethers or inviting them to help out at various community events are other 

great ways to bring them into the fold and make them feel like part of the team.

In addition to playing a critical role in the ability of the volunteer to stay on with the 

department, family members have also proven to be an excellent recruitment source, 

with most volunteer firefighters indicating they joined the department because they 

were invited by a family member or friend.
Part IV: Retention Strategies 85

In action: The South Windsor (Connecticut) Fire Department makes sure 

to include families in department activities to keep them involved. “Our 

social side of the department provides numerous events throughout the 

year with a clambake, family picnic, holiday party, spouse appreciation, 

and numerous company level events — most at no or very little cost 

to the member/family.”

Section 11: When it’s time to say goodbye

At some point, every volunteer term will come to an end. Whether it is because the 

volunteer is moving, needs to step back for personal reasons or they have reached 

retirement age, the time to say goodbye will come. In some cases, a volunteer may just 

not be a good fit, and rather than choosing to leave, the department must make the 

difficult choice to let them go. How the department handles these situations says a 

lot about the organization and may communicate volumes to current volunteers who 

are faced daily with the decision to stay or leave.

Moving

Whether volunteers are switching jobs, looking to be closer to family or just want to 

change up their surroundings, occasionally they move out of the area. While this means 

your department is losing a valuable teammate, it could mean their new community 

stands to gain one. Leadership may consider reaching out to the department in the 

member’s new community to introduce them to a prospective volunteer or provide a 

reference. Or perhaps the member would be willing to invite a local friend or relative to 

join the department or write a positive review of their experience with the department 

that could be used in recruitment materials. 

Taking a career firefighter position

A growing trend, particularly in the Northeast and West Coast, is for volunteer fire 

departments to become feeder organizations or farm teams for nearby career fire 

departments. Volunteers get their certifications, training and field experience and then 

have highly sought-after skills that land them at the top of the hiring list for career 

departments. This creates a high turnover rate at the volunteer fire department. 

Managing this turnover can be expensive for the volunteer fire department, from both 

a financial and time investment standpoint. In many cases, career firefighters cannot 

or will not continue volunteering because of the rules or peer pressure at their new 

department.

However, some departments have been able to embrace this role as a “feeder” for career 

departments and make it work for them. They recognize they have a high turnover rate 

but get several years of service from these firefighters before they move on to their 

career positions. This pattern has been compared to running a college basketball team: 

You train them as freshmen/first years, you get great play from them as sophomores 

and juniors, and then they are off to the big leagues as seniors. Anything beyond 

their senior year is a bonus. Succeeding under these conditions requires a well-oiled 

recruitment, on-boarding and training system to maintain the flow of firefighters you 

need to meet the mission.
86 Retention and Recruitment for the Volunteer Emergency Services

Retirement

As volunteers get older and look toward retirement, this may include the fire or EMS 

department as well. However, sending a volunteer off into retirement doesn’t have to 

be a permanent goodbye. Often retirees are looking for ways to stay active in their 

community, and many of them found much of their identity within the department. 

Perhaps the department has nonoperational roles that retirees can help with, such as 

staffing rehab units, serving on the board, mentoring newer members or delivering 

mail or gear between stations. At a minimum, the department can take steps to ensure 

retirees are not forgotten and include them in activities such as an annual awards 

banquet or perhaps a regular retiree luncheon where they can catch up and maintain 

that sense of family. The department may also consider providing additional services 

such as counseling or transition planning to those facing retirement.

Other reasons for leaving

The are many other reasons members may have for leaving the department. Perhaps 

a member took on a more demanding job or family issues have occurred, such as 

having new child, a recent marriage or needing to step up to care for a family member 

who has fallen ill. Maybe they are not feeling valued or appreciated by department 

leadership. Unless the department knows why its members are leaving, there is little 

that can be done to try to retain them.

The NVFC’s 2020 retention research indicates former volunteers believe a simple exit 

survey would have a positive impact on retention. Second in line to an exit interview is a 

stay interview of current volunteers who have lapsed attendance and may be considering 

leaving the department. These types of surveys help a department understand why 

a volunteer left or is considering leaving, providing the opportunity to make changes 

that may help keep the volunteer or assist with retention moving forward. The lack of 

such interviews may reinforce the perception that leadership is not concerned with 

member needs. See Appendices D and E for example exit and stay surveys.

By understanding why members are leaving (or considering leaving), the department 

can put measures in place to try to retain valued volunteers. Whether it is offering 

a leave of absence to get through a difficult time, putting together a more flexible 

schedule to allow for a better work-life-volunteer balance, or finding ways to make 

sure volunteers feel appreciated, knowledge is power (even when that knowledge may 

involve something that is difficult to hear) and may be the deciding factor between 

retention and attrition.

Terminating volunteers

While your department may be desperately in need of volunteers, not every volunteer 

is a great fit, and sometimes the wrong fit can do more harm than good. A negative 

personality can drag others down and degrade the morale of the department. Someone 

who taunts, harasses or bullies others may drive good volunteers away and can open 

the department to lawsuits and other liabilities. While it is never an easy task, the act 

of letting that volunteer go can preserve a positive department culture and sets the 

tone for what will or will not be tolerated at the station and on the fireground.

As there could potentially be legal ramifications for terminating a volunteer, it is 

best to consult with legal counsel first to make sure everything is done properly and 

mitigate any unforeseen consequences. This should be done in conjunction with the 
Part IV: Retention Strategies 87

local government’s human resources and legal offices if the department falls under 

their umbrella. Departments that are separate from the local government may still be 

able to tap into the municipality’s human resources and legal departments for their 

expertise. Departments that do not have legal counsel may be able to find a lawyer 

who can assist with the department’s legal needs, including terminations, on a pro 

bono basis.

In action: The Kiowa (Colorado) Fire Protection District understands that 

those who create a toxic environment can do more harm than good for 

the department. “After having the responsibility of recruiting for two 

different fire departments, I have found that culture and good morale 

are imperative. Culture can be changed quicker than you think. Morale 

is easy, but there cannot be any cancerous people on the department. 

Those people should be heard and helped or go away if needed... 

Just over a year ago we had around eight people TOTAL on our fire 

department, and now we have 25 volunteers in addition to the three 

full-time staff. It took trimming the toxic people, having fun, and sharing 

what we do. Value your people and it will all fall into place.”
Photo courtesy of iStock.
Part V: Marketing for the Fire Service 89

Part V: Marketing for the Fire Service

Most fire and EMS departments work hard to disseminate fire prevention and life safety 

messages, raise funds and promote volunteerism. However, like most nonprofits, many 

emergency services departments lack the knowledge to leverage content marketing 

to maximize recruitment efforts. This is because most do not fully understand the 

fundamentals of marketing; they fail to take a strategic approach and develop a plan, 

and when they do post really great content, they fail to provide a call to action.

Closer look: Awareness is a significant obstacle to gaining volunteers. 

A national omnibus survey by the NVFC in 2014 found that 41% of 

respondents did not know if their local department was career, volunteer 

or combination, while 80% did not know if their local department was 

looking for volunteers. This is an issue that resonates with the South 

Windsor (Connecticut) Fire Department. “Many of the residents do not 

know that we are a volunteer fire department. We pride ourselves on 

being an extremely well-trained, professional department, [and] many 

assume we are career.”

Marketing in the volunteer emergency services is the strategic use of tactics to amplify 

the organization’s cause, recruit volunteers, solicit donations and attract supporters. 

Marketing is a persuasion tool used to change behavior. Marketing strategies can include 

a wide variety of elements and tactics, such as traditional print advertising, events, 

social media campaigns, words, images, experiences, compelling stories, relationships, 

humor, etc. Effective marketing strategies can spark action and alter how individuals 

will respond to a call to action.
90 Retention and Recruitment for the Volunteer Emergency Services

For the volunteer fire and emergency services, one of the main goals for marketing is 

to move someone from being a potential volunteer to a committed volunteer. To this 

end, the role of marketing has 3 goals: identify, satisfy and retain.

1. Identify. To create an opportunity of value to a potential volunteer, a fire or EMS 

department must first identify a want or need the organization can address for 

the potential volunteer.

2. Satisfy. To satisfy potential volunteers, a department must work to deliver an 

opportunity that addresses the needs of the volunteers. The key to volunteer 

satisfaction is to make sure both the volunteer and the organization benefit from 

the exchange. This leaves the volunteer happy with the value they receive for their 

time and the organization satisfied with what the volunteer is giving in return.

3. Retain. Effective marketing in the department does not stop at identify and satisfy. 

Successful marketing involves retaining volunteers by creating new opportunities 

to foster loyalty and continued service. This prevents the costly cycle of volunteer 

turnover.

Consider this: The message a department conveys to potential and 

current volunteers is important. The Gilt Edge (Tennessee) Volunteer Fire 

Department advises keeping the messages inspirational and focused 

on the positive. “Stop the ‘sinking ship’ recruitment messages such as 

‘Volunteers desperately needed’ or ‘What if no one answers the call.’ 

Nobody wants to join a sinking ship! Your recruitment message should 

inspire people to want to serve or accept a challenge.”

When taking stock in what needs or wants the fire/EMS department can address for 

a potential volunteer, brainstorming the following questions can be useful:

ĵ What roles do we as an organization need filled?

ĵ How can our roles help others meet their personal goals?

ĵ What success stories can we use as content to show how we can meet an identified 

need of a potential volunteer?

Using these answers, make a list of each role that needs to be filled (firefighter, EMS, 

webmaster, fundraiser, educator, etc.). Next, brainstorm all the benefits gained from 

serving in each specific role. Then, identify stories of how volunteering with the 

department has helped current or past members with personal success in meeting 

such goals.
Part V: Marketing for the Fire Service 91

Brainstorming example:

Fire department 

volunteer needs

What we can offer 

that provides value 

to a potential member

filling our need

Marketing 

content ideas

EMTs to staff the 

ambulance

Learn lifesaving skills that you 

can use outside of the fire/

EMS department.

A job skill: hospitals hire EMTs 

as medical technicians.

A job skill for a career in EMS.

A job skill: an introduction 

to the medical field for 

those considering going into 

the health care profession 

(nursing, medicine).

Tuition reimbursement for 

hours volunteered.

Highlight a current member 

story of how they used their 

EMS skills to help someone 

while “off duty,” such as 

performing CPR, dressing an 

injury, tending to someone 

who was choking.

Highlight a member who used 

their department-provided 

training to get a job at a 

hospital.

Highlight a member who used 

their department training to 

obtain a career in EMS.

Highlight a member who 

used their department tuition 

benefit to obtain a degree.

Case study: The town of Canton (Connecticut) Volunteer Fire and EMS 

Department looked for target markets that had been trending versus 

diminishing. They used their findings to tap into a new audience with 

targeted messaging on how the department could fulfill a need:

“National trending and surveying (2018 Bureau of Labor Statistics) 

indicates that a key to business success is offering employees the 

flexibility to work from home, in an effort to enhance work/life balance. 

Apparently, over 40 percent of employees with advanced degrees were 

working remotely, at least part-time. Couple this trend with our state’s 

highly educated workforce, and we have a formula for rethinking the role 

of volunteerism as an enhancement to balancing lifestyle and career.

“There are very few other volunteer opportunities that offer the diverse 

skills training, unique leadership experiences, flexible hours, and 

networking opportunities that are both transferable and valuable in 

any work environment than the fire and emergency medical service. 

And there’s the opportunity.

“We’ve found that many of our members, after a tough day on their 

jobs — as educators, executives, construction workers, medical 

professionals, business owners, parents — actually look forward 

to volunteering on the ambulance, participating in a skills drill, or 

responding with their crew. They get so focused on the important 

work to be done, they can’t think about anything else.
92 Retention and Recruitment for the Volunteer Emergency Services

“Inspired by this information, our department’s executive officer penned 

a letter to the editor titled ‘Build Your Career Tomorrow by Volunteering 

Today: Rethinking the Role of Volunteering in the Age of Flexible Hours, 

Home-based Businesses, & the Gig Economy.’

“Our pitch: Think of it. So, you’re working from home when a 911 call 

is dispatched. Whether you perform CPR, climb a ladder to vent a 

roof, or participate in a river rescue, these experiences will act as a 

mental escape from your workplace stress. This type of separation is 

critical to getting clarity, to innovate, and be more creative at work. You 

learn to avoid tunnel vision and instead to focus on the range of other 

possibilities for successful outcomes. And that’s good for business 

and for life.

“The letter was posted in our area-wide paper, and we intend to 

leverage the message with additional initiatives to attract this untapped 

demographic that may just be waiting to be asked.”

Identifying and understanding potential volunteers: 

Segmentation and targeting

Once the roles needed and benefits provided have been identified, explore who these 

roles and benefits are intended for. To be successful with marketing efforts, it is key for 

departments to take the necessary steps to know as much as possible about potential 

volunteers and design efforts around that information. Emergency services leaders 

can use targeting and segmentation to reach a greater number of potential volunteers 

that have a need the department can meet.

Segmentation is the starting point for understanding who the department is trying to 

reach as potential volunteers. Through segmentation, potential volunteers are divided 

into groups to better understand them. This will help drive marketing efforts to those 

potential volunteer segments that are most promising. There are different methods 

that can be used to segment the audience into groups that have similar wants or needs.

Using the EMT need example, a large pool of potential volunteers can be segmented 

into smaller sections. Specific segments for the EMT need might include the following:

ĵ Young parents who want to learn lifesaving skills to benefit their family.

ĵ Recent graduates who are looking for a new skill set to find employment.

ĵ People who are interested in health care as a career or who want to gain experience 

prior to applying for a competitive health care education program.

ĵ Current college students who want experience in health care to prepare them for 

future careers.

ĵ Students who are trying to find ways to pay for college.

Next, create profiles of the potential volunteer segments to better visualize each group 

and determine which groups to invest in. To do this, describe these potential volunteers 

in full detail by asking the following questions:

ĵ Who will actually volunteer?

ĵ What do you know about this group?
Part V: Marketing for the Fire Service 93

ĵ Where are they located geographically?

ĵ Where do they shop?

ĵ Where do they go for entertainment?

ĵ What type of community groups are they engaged in?

ĵ What languages do they speak?

ĵ What types of websites and social media platforms do they use?

ĵ What are their demographics?

Targeting can then be used to help customize resources to specific groups that will see 

the greatest value from the opportunity and are most likely to be recruited. Targeting 

is a method to determine which segments have the highest probability of becoming 

volunteers and then directing the marketing efforts to satisfy the need. For example, 

take the segment from the EMS need:

Segment: Current students who want experience in health 

care to prepare them for future careers

Profile/Research 

Question #3: Where 

are these students 

located geographically 

compared to our need?

ABC Community College is in our jurisdiction and offers 

health care programs. The college advisor indicated 

that 65% of the students in the health care program are 

from our county.

ABC University is in our jurisdiction and offers health 

care programs. The advisor indicated that the majority 

of the students are from out of state and attend online.

Anytown High School offers a medical assistant 

vocational program. 100% of the students in the 

program are from our jurisdiction.

The answers from the profile questions will help determine if the potential volunteer 

base should be considered for additional research and market opportunity. In the 

example, looking at the answers to the profile question on geographic location, ABC 

University would be excluded as a target segment due to the students not residing in 

the jurisdiction. With students not living in the jurisdiction, marketing efforts to the 

target segment would most likely result in little value for the department. The focus of 

targeting efforts would then shift to ABC Community College and Anytown High School.

Closer look: In a March 9, 2020, article for FireRescue1, Jason Caughey 

wrote that in order to successfully recruit in the present, departments 

need to abandon the old ways of thinking that no longer work while 

retaining the values and traits that define the fire service. He highlighted 

the following keys to approaching recruitment, which were derived 

from the 1999 book by Marcus Buckingham, “First, Break All the Rules: 

What the World’s Greatest Managers Do Differently.”
94 Retention and Recruitment for the Volunteer Emergency Services

ĵ Select for talent: Instead of casting a too-broad net in search 

of volunteers, specifically seek out talent. Look at where the 

department’s best members were found, ask new members why 

they joined, and enlist these new members in identifying the 

organizations, locations and events to recruit new members. Utilize 

junior firefighter programs to reach the next generation.

ĵ Define the right outcomes: Take a broad, 30,000-foot look at your 

organization and the community’s needs and use that to define 

the right outcomes for the department that will help guide the 

recruitment process.

ĵ Focus on strengths: Departments must learn to identify and 

promote their strengths. Highlight members’ stories, and connect 

with the community through fundraiser, charity and other public 

events.

ĵ Find the right fit: Each community and department are different. 

There is no one-size-fits-all approach. Departments must work 

constructively to identify what the best course of action is for their 

department and community, understanding that plans may need 

to adjust or evolve over time.

Developing a marketing plan and tactics

Once a department has identified target segments to pursue, the next step is to 

develop a marketing plan using the information to craft messaging that appeals to 

what a potential volunteer wants/needs, informs the potential volunteer of what it will 

cost them to be a volunteer, and offers a convenient way for the potential volunteer 

to transition into a volunteer opportunity.

Outreach activities and methods for promotion will look different based on the target 

group. To be effective with marketing efforts, it is key that the messaging type and 

delivery is customized for each segment. To reduce time and resources, it is important for 

departments to identify marketing tactics (print, email, social media, flyers, community 

events, videos, stories, etc.) that will be attractive to the target segment they are trying 

to reach.

To ease the burden on volunteer fire and EMS departments, the NVFC created the 

Make Me A Firefighter recruitment resource portal. Resources found in the portal 

include tools to create and customize outreach materials based on different target 

segments and messaging delivery methods. This tool allows department recruiters to 

quickly create custom marketing materials using some of the most common methods 

of message delivery. These include emails, flyers, postcards, event invitations, public 

service announcements and social media posts. Every activity should include a call to 

action to take potential volunteers to the next step.
Part V: Marketing for the Fire Service 95

Consider this: Local government and media can help amplify the 

department’s recruitment message in the community. The Royersford 

(Pennsylvania) Fire Department notes that “The local government 

is involved with our social media page and daily will share stories 

and incidents, increasing our readership.” The Secaucus (New Jersey) 

Volunteer Fire Department recommends to “Get your department 

in the news and in the spotlight as much as possible. Furthermore, 

when in said opportunities, make sure you mention how to join the 

department, the benefits of doing so, and perhaps even why it is vital 

to recruit new volunteers.”

Moving past the call to action

Marketing efforts do not end with the dissemination of campaign messaging. Offering 

a clear path to connect with volunteers and tracking the response to the call to action 

is key. Tracking results should include both responses and nonresponses. A lack of 

response from a target segment might be an indication that the marketing tactic selected 

was ineffective and should be avoided in the future. For example, if a department 

disseminates recruitment flyers to a local high school health care program and yields 

zero results, they may want to consider how the target segment receives information. 

Instead of flyers, a social media campaign or a live demo in the classroom might be 

more effective for catching the attention of potential volunteers in that segment.

Once a connection is made, fostering the relationship with the potential volunteer 

is important. Having a follow-up conversation with a potential volunteer can be the 

persuading factor in moving an interested individual to an actual 

recruit status. Potential volunteer connections can be tracked through 

a spreadsheet, or the Make Me A Firefighter portal offers a free tool 

to track where a potential volunteer is in the recruitment process.

The NVFC describes the volunteer courting relationship as a 5-step 

process, known as the Marketing Funnel.

Step 1: Interest

Use marketing tactics to draw interest by educating the public and 

raising awareness of the opportunities available at the department.

Step 2: Invite

Make a personal invitation to a potential volunteer to get involved 

or learn more information.

Step 3: Sample

Provide the potential volunteer the opportunity to sample what the 

department has to offer. Sampling activities include ride-alongs, 

junior firefighter/Explorer programs, open houses and other 

recruitment events.
96 Retention and Recruitment for the Volunteer Emergency Services

Step 4: Commit

Commit to the potential volunteer and ask them to commit to the department. At this 

stage in the marketing funnel, a potential volunteer will decide if they are ready for 

the commitment. Follow-up with the individual is key at this stage. Don’t let interested 

individuals fall through the cracks due to a lack of follow-through.

Step 5: Train

Training new recruits is time intensive and can be overwhelming. Offer flexibility 

whenever possible. It is also a good idea to assign mentors to help new recruits acclimate 

and learn. Recruits that feel a personal connection to the department through a mentor 

program and/or bonding with other recruits through shared training experiences are 

more likely to want to remain.
Part VI: Using Data To Drive Recruitment and Retention Efforts 97

Part VI: Using Data To Drive 

Recruitment and Retention Efforts

In a desperate need for bodies, the volunteer fire service has a long history of recruiting 

quantity over quality. This leads to a poor investment in time, PPE and training for 

individuals who fail to provide a beneficial return. Data collected and used properly by 

emergency services departments can be a gold mine of useful information to ensure 

recruitment and retention investments are profitable. Having a solid set of metrics allows 

an organization to visualize the impact of their efforts and determine interventions for 

a better approach. Having concrete data to back up your requests is also beneficial 

when trying to get support from local government, businesses or grant sources.

Using data to determine department staffing needs

Data is a critical piece in calculating volunteer needs. Determining the needed level 

of staffing, even in the volunteer world, is a key part of human resource planning. 

Determining the level of volunteers goes beyond counting individuals. Human resource 

planning focuses on having available the right number of volunteers with the required 

skill level to effectively carry out the mission of the department. It is key for fire and 

emergency services leadership to staff their department with enough skilled volunteers 

to meet the current need and future goals. This is known as workforce planning.

Workforce planning involves using a needs analysis to determine the number of open 

volunteer positions that need to be filled due to turnover and operational growth. In 

addition to predicting future volunteer needs, workforce planning is also critical for 

planning staff training needs and succession planning. Workforce planning should take 

place before a recruitment and retention plan is implemented. Data collected from a 

needs analysis should be a driving factor in strategic planning.

Conducting a trend analysis

One step in the needs analysis process is to identify key trends, such as the level of 

volunteer staffing needed to manage the workload, organizational structure and 

volunteer satisfaction. A trend analysis will also provide data on the retention rate and 

the average number of years a volunteer gives to a fire or EMS department.

In order to conduct a trend analysis, the department needs a method of data 

documentation. Departments will need statistical data on the number of volunteers, 

their length of service (to include dates of resignation) and volunteer turnover rates. 

Demographic information on each volunteer should also be collected as it becomes 

available. This includes age group, education level, prior work and/or volunteer 

experience, current work situation (geographical location, type of job and shift 

requirements), and family situation. Volunteer home addresses can be geocoded and 

presented on a map to obtain a picture of where volunteers are coming from in the 

community. This in turn could inform recruiting efforts from underrepresented areas 

as well as operational planning. Collecting and using this same type of data for the 

current time frame and for the previous 2 years will allow an organization to compare 

current volunteer staffing with former to establish trends. Using the collected data will 

allow the department to conduct comparisons by highlighting common trends across 

groups. The data will then allow an organization to understand the commonalities of 

those volunteers who continued to serve and those who left.
98 Retention and Recruitment for the Volunteer Emergency Services

Looking at common themes among volunteers who leave or simply stop showing up 

allows for intervention among future volunteers with commonalties. For example, if 

the data showed that a common theme among 30% of the volunteers who stopped 

serving was working at a job past 6 p.m., then the data could be revealing that a 

weekly training requirement of Monday at 6:30 p.m. is conflicting with the volunteers’ 

work-life-volunteer balance. An intervention could be to offer daytime trainings on 

the weekend to allow the volunteers working past 6 p.m. to meet department training 

requirements. Data tells an organization what it can do differently to meet the needs 

of stakeholders.

Using predictive analysis for recruitment and retention

The turnover of high performing and loyal volunteers can have a significant financial 

and psychological impact on a fire or EMS department. Predictive analytics provide 

a way to make predictions about future or unknown events based on historical data. 

Predictive analytics can be used to help find the hidden connections between key 

contributing factors and volunteer turnover. To reduce turnover, it is important for 

organizations to look at historical data to predict how new recruits will adjust to or 

change the department culture. Predictive data informs fire and emergency services 

leaders about the steps they need to take to get new recruits to their fullest potential, 

how onboarding should be conducted and how training should be delivered. In addition 

to predicting what will happen, data will also indicate the steps leaders should take in 

the future to influence behaviors.

Collecting engagement data will help determine how volunteers will respond and 

their level of commitment. Lining up demographic and engagement data will lead 

to a visual of motivation trends to predict recruitment efforts and which nonwage 

benefits should be implemented. Identifying patterns in volunteer data allows leaders 

to design retention strategies with the best outcome and eliminate assumption-based 

strategy making. For example, many fire and emergency services organizations make 

the assumption that adding a financial incentive will increase volunteer retention of 

younger generations. According to a 2016 study by Dr. Candice McDonald, “Retention of 

Internal Stakeholders in the Volunteer Fire Service,” just the opposite is true — money 

and financial gain is not the main motivator for millennial engagement.

Removing assumptions is key to developing strategies to meet volunteer needs. 

Poor decisions are made when perceptions are compromised by assumption-based 

information. Using data analytics removes human emotions and allows strategies to 

be designed based on accurate, factual information. Volunteer turnover should not be 

predicted based on the volunteer’s emotions, but instead on satisfaction with consistent 

factors across your organization such as nonwage benefits, volunteer development, 

attendance records and engagement opportunities.

Data sets should tell a story and should be factual. This is true of the earlier example of 

the data set that showed a common theme among 30% of the volunteers who stopped 

serving: they were all working at a job past 6 p.m. General feelings or complaints that 

volunteers are dissatisfied with training nights do not tell the story. Identifying that a 

volunteer’s work schedule conflicts with the time of the training night is a factual data 

set and not an opinion. This information allows leaders to see the full story of why a 

volunteer has disengaged and provides them an opportunity to intervene.
Part VI: Using Data To Drive Recruitment and Retention Efforts 99

Collecting fact-based data on volunteer insight is key for predicting retention. Leveraging 

annual volunteer surveys as a way to collect data is one method for determining if the 

fire department is meeting volunteer needs to prevent turnover. Fire departments 

that predict high-risk volunteer demographics can design strategies to address the 

problem to lessen turnover rates.

Leveraging resources for data collection and analysis

While we know that effective data collection and management are key for fire and 

emergency services organizations, the idea can seem overwhelming. The phrases 

“data collection” and “data management” can be intimidating for some emergency 

service leaders. Many do not know where to start.

The first step is determining what type of data the department wants to collect and 

outlining a clear process of how that desired data will be collected. Next, determine how 

data entry will be conducted and what platform will be used to store data. Departments 

can use a spreadsheet to store data or purchase volunteer management software. 

Identify who will be responsible for data entry and ensure that they are trained to 

correctly look at and input data.

Fire departments that participate in the NFIRS can access all their data stored on the 

national database immediately using the e-NFIRS portal. In addition, through the FEMA/

USFA Enterprise Data Warehouse (EDW), within 24 hours of uploading their data to the 

national database, departments can access standard reports as well as incident data, 

not only for their own fire department but from all participating fire departments. For 

access to the NFIRS EDW, contact your NFIRS state program manager.

Once data has been collected, an analysis will need to take place. Data is useless 

without being able to provide meaningful outcomes. Data analysis is the process of 

moving data into actionable insights that leaders can use for decision-making. The 

visualization of data helps tell a story without being overwhelmed by the raw data. 

Data visualization highlights useful information tied to trends and outliers that can 

be easily understood.

There are many tools for moving data into visualizations. This includes simple, free 

tools and more complex software that must be purchased. Common types of data 

visualization include leveraging tools such as Excel to create a chart, graph or pivot 

table, and more creative methods such as infographics and dashboards.

Partnering with local universities and community colleges is one way to leverage 

external resources. Most statistics and mathematics-based programs require students 

to conduct a data analysis project or a formal internship. Many data analytics students 

are actively seeking a research project for their final year thesis. Most programs require 

students to conduct a focused project that requires them to demonstrate their grasp 

on fundamental data analysis. Seeking assistance from local government agencies 

that have experience in data gathering and analytics is another option.
Photo courtesy of iStock.
Part VII: Funding Recruitment and Retention Efforts 101

Part VII: Funding Recruitment and 

Retention Efforts

While many recruitment and retention efforts can be low- and even no-cost — such as 

word-of-mouth advertising, personal invitations and ensuring the department culture 

is one that volunteers want to be a part of — there are aspects of recruitment and 

retention that cost money. These include but are not limited to advertising the need 

for volunteers, equipping and training new recruits, and LOSAP and other benefits 

programs. In these cases, things such as local support, in-kind donations and grant 

programs can help fill the gap between what the department needs and what it has.

Utilizing existing resources

Volunteer emergency services departments often operate on tight budgets with limited 

funds for marketing activities. However, there are existing resources departments can 

tap into to eliminate or reduce the costs. The NVFC’s Make Me A Firefighter campaign’s 

department portal includes a free materials generator that removes the cost of hiring 

a graphic artist to design campaign materials. The portal also allows departments to 

create a webpage with details of their volunteer opportunities and a direct contact 

form, along with other tools and resources for recruitment and retention. Departments 

can also consider partnering with other departments or associations in the region to 

collaborate on a campaign, reducing the cost burden for each department. In addition, 

departments can check with regional and state fire associations to see if they have 

recruitment materials and resources that the department can utilize in their campaign.

Closer look: Many state fire associations or organizations have 

recruitment and retention initiatives to help departments in their state 

recruit new volunteers, including ready-to-use outreach and marketing 

materials. For instance, the Oregon Fire Recruitment Network is a statewide group of recruiters who joined together to provide resources and 

tools to help fire departments in Oregon and beyond recruit and retain 

firefighters. RecruitNY is an initiative of the Firemen’s Association of 

the State of New York that provides materials departments throughout 

the state can use year-round or in conjunction with an open house or 

community event. The Firemen’s Association of the State of Pennsylvania 

offers a recruitment and retention website with resources and tips for 

local fire departments. The IAFC used a SAFER grant to partner with 

state associations in Connecticut, Indiana, North Carolina, Tennessee

and Virginia for the Volunteer Workforce Solutions state recruitment 

campaigns to offer departments turnkey solutions for their recruitment 

and retention efforts.

Fire and EMS departments not wishing to pay to print materials can also partner 

with local businesses or other sources to ask if they would include the department’s 

advertisement on existing materials they send out via print or email. Partnering with 

external sources also expands the department’s reach. Examples of groups that might 

be willing to include the campaign in their existing newsletter or mailings could include 

a university, local government agencies, hospital, local high school, church, community 

service club or recreation center. 
102 Retention and Recruitment for the Volunteer Emergency Services

Content marketing

Content marketing via social media is also highly effective and can be free. Social media 

is a way for departments to connect with their stakeholders and engage with them 

daily. The use of high-quality visuals is key for successful online marketing. The fire 

and emergency services are fortunate to have a library of images the general public 

is attracted to. Visuals, such as videos and photographs, can tell a story of the many 

aspects of the department. Images speak to various demographics of potential recruits 

(gender, age, race), highlight the work being done by the department and show who 

benefits from the organization’s mission.

Social media platforms allow existing stakeholders to help spread messaging through 

the sharing of posted imagery and messaging. According to Nonprofit Source, 84% of 

Facebook users share messaging of causes they support. 55% of people who engage with 

nonprofits on Twitter end up answering a call to action. 75% of Instagram users report 

taking action by either visiting a website or making a purchase from an advertisement.

A department-sponsored newsletter sent via email, posted on the department website, 

and available at local libraries, community centers and other places prospective 

volunteers may be is another way to connect with supporters while marketing 

department needs. Monthly department newsletters should include upcoming events, 

blog posts, eye-catching images, news about current volunteers, a sense of urgency 

for donations and needs, and a call to action for potential volunteer engagement.

Local support

There are many types of local support a department may seek, from government 

funding to donations from businesses to direct community fundraising. A more in-depth 

look at local government funding is provided in Part II.

Volunteer fire and emergency services departments are no strangers to holding 

pancake breakfasts, spaghetti dinners, raffles and boot drives to raise money. These 

are all valid fundraising efforts with the added benefit of engaging the community and 

potentially attracting new recruits along the way. Local businesses or local government 

might offer community grant programs that can fund small projects or department 

needs, or departments can ask a business to sponsor an event or a certain item such 

as a piece of equipment, recruitment signage or T-shirts for department members. 

While these efforts can keep a department afloat, they typically don’t bring in enough 

money to fund large-ticket items such as gear, training equipment or apparatus. In 

addition, these efforts require the time and attention of already very busy and possibly 

overworked volunteers. When seeking local support, departments may be well-served 

by identifying a nonoperational volunteer who is experienced in grant writing and 

fundraising for assistance.

In action: Departments can be creative to formulate fundraisers that 

work in their communities. An article in The Gazette-Virginian from Sept. 

16, 2020, highlighted the Cluster Springs Volunteer Fire Department’s 

(Alton, Virginia) annual trail ride fundraiser. While the department does 

get an operational budget from the county, it is not enough to cover 

all of the department’s expenses. The trail ride typically raises over 

$10,000 for the department each year. Participants can enjoy the trail 

ride, entertainment and a fundraiser dinner for $25 ($15 for children) 

or just attend the dinner with entertainment for $15.
Part VII: Funding Recruitment and Retention Efforts 103

In-kind donations

Often the department needs items a business in the community can provide. 

This could includedepartment T-shirts for their members, a table or canopy 

for recruitment events, signage for anevent or to promote recruitment, food 

or beverages for department open houses or rehab units, or printing of 

recruitment materials. At the same time, many local businesses are seeking

ways to support their community. Many local businesses will donate, or at 

least discount, the items needed. Put a request on social media, contact a 

well-connected local leader or reach out to local businesses directly to see if 

they will help support the department with in-kind donations.

Staffing for Adequate Fire and Emergency Response Grants

The SAFER Grants Program, available through FEMA, was created to provide funding 

directly to fire departments and volunteer firefighter interest organizations to help 

them increase or maintain the number of trained, frontline firefighters available in their 

communities. Departments of all sizes can apply for grants to help with recruitment 

and retention needs. Grant funds can be used to hire a recruitment and retention 

coordinator, fund incentives for volunteers such as tuition reimbursement programs 

or LOSAPs, develop recruitment outreach materials, conduct advertising to attract 

members to the department, and more. Departments wishing to apply for SAFER 

funding are encouraged to review the grant guidance documents on FEMA’s website 

beforehand, participate in SAFER workshops offered by FEMA, and collect data about 

the community and the recruitment/retention need in their local area as they prepare 

to make the case for their funding needs.

In the SAFER Grant application, applicants are typically asked to describe their current 

marketing plan or the marketing plan that will be implemented upon funding. Fire 

departments can leverage their own knowledge, propose to hire a marketing firm or 

recruitment specialist, or use the free Make Me A Firefighter recruitment campaign 

resources and tools as a method to market and track efforts.

In action: The Ringing Hill Fire Company (Pottstown, Pennsylvania) 

received a 4-year SAFER Grant in 2019, and just over a year later they 

had already brought on 27 new volunteers. The campaign launched with 

a new website at JoinRingingHill.org which focuses on why residents 

should join the department and all the volunteer opportunities that 

are available. In addition, the campaign utilized a variety of awareness 

methods including media coverage, videos, social media, a recruitment 

brochure, lawn signs and an event booth display. On the retention 

side, the grant enabled the department to implement a volunteer shift 

program, which resulted in better response times for emergency calls.
Photo courtesy of iStock.
Appendix A: Resources 105

Appendix A: Resources

An updated list of these and additional downloadable resources are available at www.

nvfc.org.

Grants and funding

Assistance to Firefighters Grants

FEMA

Assistance to Firefighters Grants helps fire and EMS departments obtain critically needed 

equipment, protective gear, emergency vehicles, training and other resources necessary 

for protecting the public and emergency personnel from fire and related hazards.

Grants and Funding

NVFC

The compendium of resources includes tips and best practices for applying for grants 

as well as sources for grant opportunities. Also included are guides for securing 

sponsorships for junior firefighter programs and health and wellness programs, which 

can serve as inspiration for securing sponsorships for other initiatives as well.

Grant Writing Guide

NVFC

This guide is designed to help departments navigate the complexities of applying for 

federal grants. It includes a brief list of expectations and requirements associated with 

grant applications as well as a quick overview of select grants.

Staffing for Adequate Fire and Emergency Response grants

FEMA

This grant program provides funding directly to fire departments and volunteer firefighter 

interest organizations for recruitment and retention efforts to help them increase or 

maintain the number of trained, front-line firefighters available in their communities.

Guides and tools

The Beginners Guide to Working with Elected Officials

ICMA

This blog post covers key tips for developing effective working relationships with 

elected officials.

Climate Survey Toolkit

IAFC’s Volunteer Workforce Solutions

This toolkit helps departments take the internal temperature of their members and 

identify areas for strengthening diversity, inclusion, teamwork and leadership to create 

a more inclusive organization.

Cost Savings Calculators

NVFC

The NVFC Foundation and VFIS developed the Fire and EMS Cost Savings Calculators for 

both volunteer fire and EMS departments. These tools allow departments to calculate 

out how much money they save the community and provide resources for presenting 

data to the municipalities that fund the department in order to increase community 

and governmental support.
106 Retention and Recruitment for the Volunteer Emergency Services

Directory of Behavioral Health Professionals

NVFC

Updated with new providers monthly, this directory lists local behavioral health 

professionals who are ready and equipped to help firefighters, EMS providers, rescue 

workers, dispatchers and their families.

Fire Law Blog

Curt Varone

This blog looks at legal issues fire departments need to consider and offers tools and 

templates to help departments establish policies to better protect them from negative 

impacts and reduce liability.

Guide for Creating a Diverse and Inclusive Department

IAFC-VCOS

This guide offers ways that departments can increase the levels of diversity, inclusiveness 

and equity in 8 specific areas.

Guide to Communicating with Elected Officials

NVFC

Designed to help members of the fire and emergency service with grassroots advocacy, 

the guide includes tools on drafting letters and emails, using social media to interact 

with elected officials, how to set and conduct meetings with elected officials and their 

staff, and how to develop a public relations strategy.

Lavender Ribbon Report

IAFC-VCOS/NVFC

This guide details the 11 actions firefighters and departments should take to reduce 

exposure risks and protect personnel from occupationally caused cancer.

Managing Volunteer Firefighters for FLSA Compliance: A Guide for Fire Chiefs 

and Community Leaders

IAFC

The IAFC published this document in 2006 as a guide for fire chiefs and community 

leaders to better manage volunteer firefighters for FLSA compliance.

National Safety Culture Change Initiative

IAFC/USFA

This study identifies both positive and negative elements of fire service culture and 

recommends changes to enhance safety and health in the fire and emergency service.

NFPA 1582: Standard on Comprehensive Occupational Medical Program for Fire 

Departments

NFPA

This standard outlines an occupational medical program that will reduce risks and 

provide for the health, safety and effectiveness of firefighters.

Preserving the Tradition of Neighbors Helping Neighbors: Steps Toward Success

IAFC’s Volunteer Workforce Solutions

This white paper highlights ideas, resources and tools intended to provide emergency 

service organizations with proven retention and recruitment methods to promote a 

more diverse and inclusive workforce.
Appendix A: Resources 107

Psychologically Healthy Fire Departments: Implementation Toolkit

NVFC

Having a healthy and engaged workforce creates successful, high-performing 

departments. This toolkit covers 6 key categories to promote and foster wellbeing 

among department members along with specific actions that can be taken, special 

issues to consider, case studies from successful departments and additional resources.

Social Media Toolkit

IAFC

This handbook provides guidance to departments on how to use and navigate social media.

Volunteer Fire Service Culture: Essential Strategies for Success

NVFC

This textbook is designed to train department personnel and leaders about key issues 

relating to fire service health and safety and how to embrace safe and healthy practices 

in all areas of fire department operations and culture.

What to Expect: A Guide for Family Members of Volunteer Firefighters

NVFC

This guide helps family members of volunteer firefighters navigate the realities of the 

volunteer fire service life and provides guidance for keeping family relationships strong.

Organizations and programs

Fire Corps

NVFC

Fire Corps is a national grassroots effort to help fire/EMS departments engage with 

community members to assist with nonemergency tasks.

Firefighter Life Safety Initiatives

National Fallen Firefighters Foundation

The 16 Firefighter Life Safety Initiatives serve as the foundation for fire and EMS 

departments who have a desire to ensure that their firefighters and EMS providers 

return home safely after every shift.

Make Me a Firefighter Program

NVFC

Make Me a Firefighter is the first and only national volunteer firefighter and EMS 

recruitment campaign to help departments reach new members. The campaign 

features a department portal with resources and tools for implementing a local 

recruitment campaign as well as a public website to enable potential volunteers to 

find local opportunities.

National Junior Firefighter Program

NVFC

The National Junior Firefighter Program supports fire and emergency service 

departments by fostering relationships and engaging youth in learning about and 

ultimately becoming members of the emergency services. 

Serve Strong

NVFC

This program provides firefighters and EMS providers with proven health and safety 

tools and resources to help reduce exposure risks, reduce heart attack risk, cope with 

behavioral health issues and engage in safe practices on and off the fireground.
108 Retention and Recruitment for the Volunteer Emergency Services

Share the Load Program

NVFC

This program provides responders with tools, resources and training to proactively 

address behavioral health issues as well as establish or expand a department behavioral 

health program.

Volunteer Workforce Solutions

IAFC

This program offers volunteer and combination fire departments turnkey materials 

to help with recruitment and retention efforts.

Policies and procedures 

Firefighter Code of Ethics

National Society of Executive Fire Officers

To preserve the public’s trust, this Code of Ethics was developed by a group of fire service 

leaders and calls on individual firefighters to pledge their support for maintaining the 

highest level of professionalism and behavior.

Joint Anti-Harassment, Bullying, and Discrimination Statement

Signed by 7 national organizations representing the fire and emergency services, this 

statement issues a call to action that all fire and emergency service organizations 

implement an anti-harassment, bullying and discrimination policy that is actively 

communicated to personnel and actively and consistently enforced. Departments 

should also adopt a code of conduct or code of ethics that clearly defines expected 

behaviors among personnel.

Managing and Leveraging Workplace Use of Social Media

Society for Human Resources Management

This article outlines common considerations for the use of social media by employers 

and their employees.

NVFC Position on Firefighter Medical Assessments

NVFC

This position supports annual medical assessments for all firefighters and identifies 

options that volunteer departments can consider in developing a firefighter medical 

assessment program. 

Reputation Management White Paper

Cumberland Valley Volunteer Firemen’s Association

This white paper looks at key issues that have a negative effect on the public image of 

the fire service and individual departments and recommends that every department 

establish a code of conduct or code of ethics that clearly defines expected behaviors 

of its members.

Research

2020 Department Survey on Local Government Support

NVFC

This report explores the ways in which local government currently supports volunteer 

fire departments, as well as the types of support volunteer fire departments are 

seeking from local government.
Appendix A: Resources 109

Volunteer Firefighter Recruitment and Retention Formative Research Report

NVFC

This 2015 report details the results from research conducted as part of the formation 

of the NVFC’s Make Me A Firefighter recruitment campaign.

Retention of Internal Stakeholders in the U.S. Volunteer Fire Service

Dr. Candice McDonald

This 2016 doctoral study/dissertation explores the strategies fire service leaders have 

used to retain firefighters in the United States.

Volunteer Retention Research Report

NVFC

This 2020 report details the results from research conducted by the NVFC to gain a 

better understanding of the institutional drivers of why volunteers leave the fire service 

and what factors may improve retention in a fire department.

Training

International Association of Fire Chiefs — Volunteer & Combination Officers Section

IAFC-VCOS offers a variety of online and in-person training on topics including 

recruitment, mentoring, leadership and transitioning to a combination department. 

National Fire Academy

The NFA provides free training on a vast array of fire and EMS topics delivered at their 

campus in Emmitsburg (Maryland), online and throughout the nation.

National Volunteer Fire Council

The NVFC Virtual Classroom is home to a wide range of online, on-demand training 

including volunteer recruitment, retention, leadership, grants/funding, health and 

safety issues, and other topics that affect recruitment and retention efforts.

New York University — School of Fire Engineering

Find on-demand training on a variety of fire service operational topics.

North American Fire Training Directors

Use the North American Fire Training Directors website to find your state training 

organization.

UL Fire Safety Research Institute Fire Safety Academy

The UL Fire Safety Research Institute Fire Safety Academy offers free science-based 

courses for fire service personnel. Topics include fire dynamics, firefighting tactics 

and firefighter health.
Photo courtesy of iStock.
Appendix B: Considerations for Department/Government Support 111

Appendix B: Considerations for 

Department/Government Support

Information in this appendix courtesy of the Center for Public Safety Management of 

the ICMA.

Formation

One of the major challenges faced by many volunteer and combination departments 

is their underlying authority.

ĵ Is the department LEGALLY recognized by the city, town, county, or other government?

ĵ Is the department created by an ordinance? ________________ (ordinance number)

ĵ Is the department created or recognized in the city’s charter? __________ (section)

ĵ Does the department comply with the ordinance or charter requirements and 

specifications?

ĵ How is command selected? How is it replaced or ended (i.e., chief selection)? Can 

the local government help in establishing job descriptions and advertising for 

candidates?

ĵ How does the volunteer agency interact with the municipal government(s) it protects? 

(Examples: provide staffing to the governmentally recognized agency; contract for 

full services to the government agency; a department of the government agency)

ĵ Are buildings and equipment appropriately titled and who holds those titles?

ĵ Are buildings and equipment properly insured? Can the department be included 

in the municipality’s coverage?

ĵ To whom do employees belong? Is it documented? If a wrong occurs, who is liable?

Reporting

Most municipal departments are required to provide annual reports; be subject to 

audit processes; create mission, vision, values and strategic plans; and present those 

plans along with achievements.

ĵ Does the department provide regular reports to the municipal government?

ĵ Is your volunteer department audited yearly and is that report public? Shared with 

the municipality? Accepted at a council or board meeting?

ĵ Are minutes kept for all volunteer meetings and business?

ĵ Does the department report monthly activity, outcomes, and other information 

to the governing jurisdiction?

ĵ Does the department have a strategic plan? Could it be included in the municipality’s 

strategic plan? Or master plan?
112 Retention and Recruitment for the Volunteer Emergency Services

ĵ Can the local government assist the department in creating a master plan? Strategic 

plan? Reporting template?

ĵ Can the municipal government include the department’s documents with their 

reports for consistency, clarity and opportunity to engage with the public?

Staffing/human resources

One challenge for most volunteer and combination departments is in the area of 

human resources. Failure to withhold necessary payments or dollars for employees 

can be catastrophic for departments that violate state and federal laws.

ĵ Does the municipality have a human resources department?

ĵ Can the local government assist the volunteer or combination department with 

human resources?

Ý Background checks.

Ý Withholdings for taxes and other purposes.

Ý Physicals (before hired and annual).

Ý Drug and alcohol screening.

Ý Employee assistance programs.

Ý Workers’ compensation issues.

Ý Keeping the employee records (which are required to be kept forever).

Ý Health and life insurance.

Ý Pensions, 401K, etc.

Ý HSAs for medical purposes.

Ý Filing the necessary W-2 statements, withholding and payments to the IRS and

state.

Ý Assisting when volunteers or POC must be terminated to ensure legal 

requirements are met.

Ý Exit interviews.

Ý Annual reviews.

Ý Ensuring training requirements are being met and recording all training taken.

Legal

When things go right, there usually are not questions. When things go wrong, that’s 

when it is critical to have clarified, documented, and followed standards that are 

established for good operations.

ĵ If staff are paid by the volunteer organization and used to fill necessary openings 

in the department, who carries the workers’ compensation? Can the department 

receive coverage through the municipality?

ĵ Is there a clear contractual recognition of employees paid on call or paid members?

ĵ Is there workers’ compensation, death and disability, and other insurance for 

members? Can the municipality assist with getting quotations, bids or coverage?

ĵ If a municipal employee works for the volunteer fire company, who provides 

coverage in the event that person is injured? Killed? Disabled? Is that recorded and 

could the municipality help with ensuring those areas are covered?
Appendix B: Considerations for Department/Government Support 113

ĵ Who owns the equipment and station?

ĵ What happens if the volunteer fire company disbands or becomes insolvent? Is 

there a documented process for handling disposal of assets?

ĵ Is there titular interest in fixed locations and rolling stock by the municipality? What 

happens if there is an accident; who is liable?

Operations

Policies, procedures, operating guidelines, rules, and regulations are designed to 

protect the organization from violations that cause harm as well as set a standard for 

expectations by the department and its customers — often the local government.

ĵ Are the department’s rules and regulations current? Could the municipality be 

involved with review or assist with legal review?

ĵ Does the agency use a provider for policies and procedures such as Lexipol or other 

national firm? Does it create its own policies and procedures? Are those reviewed 

by legal? Are those shared with the local government? Is there an opportunity for 

comment or correction?

ĵ Does the department regularly review these documents for changes required or 

conditions that have changed? Is the local government or its attorney involved in 

the process?

ĵ If violations occur, who enforces? Is there a step process for discipline (e.g., verbal 

warning, written notice, time off, termination)? Could the municipality or its human 

resources department assist to ensure compliance steps are followed?

ĵ Are violations tracked and reported?

ĵ Is there a process if command does not enforce these documents and subjects 

the organization or municipality to legal consequences?

Maintenance

Stations, rolling stock and PPE are expensive to purchase and require regular inspection 

and maintenance to ensure they work when required.

ĵ Could the local government assist with inspections of fixed assets (buildings)? 

Could it ensure proper insurance coverage exists?

ĵ Could local government assist with regular maintenance such as lawn mowing, 

painting, lighting, etc.?

ĵ Could the local government assist with oil changes and maintenance tracking on 

rolling stock? Hand tools (chainsaws, etc.)?

ĵ Are regular inspections made of all assets? Are these recorded? Does the local 

government have a tracking mechanism or software?

ĵ Are regular and recommended inspections made of hose? Nozzles? Pump tests? 

Ladders? Could the local government perform these or train staff to assist?
114 Retention and Recruitment for the Volunteer Emergency Services

Planning

One of the challenges for smaller agencies is planning for the future. Large rolling stock 

can cost anywhere from $650,000 for an engine to $1.5 million for a ladder.

ĵ Can the local government assist with developing 1-5-10-20-year strategic equipment 

replacement plans?

ĵ Could these items be included in the municipal capital improvement plan that is 

approved by the council or board with the funding identified?

ĵ Can the municipality assist with writing grants for the department? Tracking grant 

expenses and purchases? Assist with filing necessary reports? Keeping the grant 

records for the required time period (normally 7 years but some programs have 

longer retention)?

ĵ Is the department incorporated into the municipality’s emergency plans? Are roles 

identified? Exercised?

ĵ Is mutual aid automatic or requested? Is it memorialized in a document? Should 

the local government also be a signatory? Should the board or council approve 

of the action?

ĵ Is the municipality part of Emergency Management Assistance Compact? Is the 

department included? Who ensures compliance, reimbursement and requests?

Social media

Newspapers, radio and, for some, television, are becoming less significant media to 

communicate with on a regular basis.

ĵ Does the department have a social media policy? Is it enforced?

ĵ Could the local government assist by creating Facebook, Twitter, and other social 

media pages for the department and regularly ensuring updates?

ĵ If violations occur (posting victim pictures or releasing prohibited health information), 

who is responsible? Could the local government assist in prescreening posts?

ĵ If questions or comments appear, who is responsible for a response? For deletion?

Training

Volunteer and combination departments often struggle to meet training requirements 

of ISO and other standard-setting bodies.

ĵ Can the local government provide a training area?

ĵ Can the local government’s public works, police, electrical, water, and sewer 

departments coordinate training with the fire department? Can they provide 

props such as manholes, pipes, trenches, tanks, etc.?

ĵ Does the local government work with the department to plan, create, and exercise?

ĵ Are resources shared when needed (e.g., backhoes or front-end loaders that a 

department of public works might have)?

ĵ Can the local government help with signage, barricades and other resources when 

the fire department is engaged on scenes? Do they train together and know what 

each has to contribute?
Appendix B: Considerations for Department/Government Support 115

Communications

Many volunteer and combination departments lack sufficient resources for modern 

communication equipment.

ĵ Can the local government provide a computer(s) for use by the department?

ĵ Can the local government provide IT support?

ĵ Can the local government apply for grants for radios (portable and mobile)?

ĵ Does the local government have the ability to tax for radio equipment and upgrades? 

Can they be interoperable with police and other municipal agencies?

ĵ Does the local government have server capacity to store records for the department?

ĵ Can the local government provide fiber-optic capacity for rapid transfer of 

information?

ĵ Can the local government provide classes and training for the department on 

software, hardware, and new technology as well as skill building (Excel, Word, etc.)?
Photo courtesy of iStock.
Appendix C: Sample Department Application 117

Appendix C: Sample Department 

Application

Information in this appendix courtesy of Chelan County (Washington) Fire District #1.

Volunteer Application Packet
118 Retention and Recruitment for the Volunteer Emergency Services

Fire Department Code of Conduct

Thank you for expressing interest in our fire department. Before completing the 

attached application, carefully review the Code of Conduct. The district operates and 

manages the department as a customer service business. As a volunteer, resident, 

or paid staff, you will be expected to conduct yourself in a manner that recognizes 

that we provide members of this community with excellent emergency service. It is 

paramount that as a member of this organization, you will deliver this service in a 

professional, honest, courteous, and timely manner. Failure to meet these standards 

will result in being asked to resign.

ĵ Honesty and integrity. It is understood that honesty and integrity begin with full 

disclosure of personal information on the application. This includes full disclosure of 

work-related experience, past supervisors, and qualifying training. If a background 

check proves that false information has been provided, you will be informed not 

to apply or pursue membership with the Fire Department now or in the future.

ĵ Respecting community members. Volunteering with the department by its very 

nature means providing a service to our citizens within the district. In most cases, 

services are provided on private property, and as a result, it must be ensured 

that our personnel are honest, respectful, and professional and interact well with 

community members.

ĵ Working in teams. Most of the services provided are performed in teams. It is 

critical that team members work harmoniously under the direction of an officer. 

It is believed that team results are greater than individual achievement.

ĵ Ability to follow command. Emergency incidents can be stressful and traumatic. 

The public expects its emergency service workers to remain calm, deliver a 

professional service, and provide comfort to those who require it. You may not 

agree with directions being given or you might do the task differently, but you will 

be expected to follow orders in a timely and safe manner without delay, unless it 

threatens your life directly.

ĵ Chain of command (as practical). Within the organization, there is a chain of 

command process followed. The chain of command process starts by reporting to 

the station Captain as the first step to resolving problems or conflicts. If the station 

Captain is unable to resolve the issue in a timely manner, then the next step in 

resolving problems or conflicts is reporting to the Battalion Chief, who will expect 

you to provide specific details including that the initial report was discussed with 

the station Captain. If the Battalion Chief cannot resolve the problem or conflict, 

the issue will be reported to the Deputy Chief. If the issue is reported to the Deputy 

Chief, the Deputy Chief or Fire Chief shall require all involved parties to provide 

written statements of fact, including statements by witnesses. The Fire Chief will 

be the final authority. 

ĵ Rumors, hearsay. These two critical issues can damage an organization’s image 

and/or morale. A member who starts, carries, or promotes rumors or hearsay 

will be asked to resign if facts prove the member is responsible for initiating the 

rumors or hearsay.
Appendix C: Sample Department Application 119

ĵ Morale, esprit de corps. You have obviously chosen our fire department for a 

reason. We hope it is because you have witnessed our pride and commitment 

towards our organization. We do not try to duplicate what other departments do, 

yet we strive to adopt industry standards while maintaining our uniqueness. If 

you can’t support our organization and its mission, we ask that you do not apply.

ĵ Discrimination policy. Compliance is required with Discrimination Policies that 

are on file.

ĵ Probationary period. Once your application and background check have been 

verified and cleared, you will start a one-year probationary period. During this 

period, you will be evaluated on your conduct, participation in all aspects of our 

organization, and how well you successfully work in a team setting. If these standards 

are not met, you will be asked to resign.

I ___________________________ (signature) have read, fully understand, and support the 

Code of Conduct. I further acknowledge that I may be asked to resign if I do not meet 

the Organization’s Policies, Procedures, Mission, or Code of Conduct.

Witness _____________________________________ Date ______________

YOU WILL ALSO NEED TO PROVIDE: Three-year Driver’s Abstract from the Washington 

State Department of Licensing (there is a $13.00 fee). No appointment is necessary. 

The office is located at 325 N. Chelan Avenue, Wenatchee (phone: 509-662-5451). 

Or, you can also go online for the abstract at: http://www.dol.wa.gov/driverslicense/

requestyourrecord.html

Contact Deputy Chief Rick McBride with any questions or to submit an application.

Deputy Chief Rick McBride, Volunteer and Resident Coordinator

731 N. Wenatchee Avenue, P.O. Box 2106, Wenatchee, WA 98801

Phone: 509-662-4734

Email: rmcbride@chelancountyfire.com
120 Retention and Recruitment for the Volunteer Emergency Services

Fire Department Volunteer Application

Application Date _______________

What Volunteer opportunity is of interest to you?

Combat Firefighter Resident Firefighter Support EMS 

Name

Address

Phone Number

Date of Birth

Email

1. How long have you resided at the above address? Years/Months _______________.

2. How long have you lived in Washington State? Years/Months ___________________.

3. Is there any additional information about a change in your name, or use of an 

assumed name or nickname necessary to enable a check on your eligibility for 

membership?

Yes If yes, please provide details on the additional information page. 

No 

4. Do you have a physical condition which might limit the fire service tasks you perform? 

Yes If yes, please explain _____________________________________________________ .

No 

5. Have you ever been convicted of or found guilty of a felony, misdemeanor, insurance 

fraud, arson, alcohol-related vehicle or traffic offense, or pleaded guilty to a 

reduction of one of these offenses?

Yes If yes, please provide details on the additional information page. 

No 

6. Do you have a valid Washington State Driver’s License?

Yes Driver’s License Number __________________ Expiration Date_____________. 

No 

7. Have you ever been a member of the US Armed Forces?

Yes 

No 

If yes, did you receive an honorable discharge? Yes No 

If No, please give a brief description.

___________________________________________________________________________________

___________________________________________________________________________________
Appendix C: Sample Department Application 121

8. Do you have previous emergency services experience?

Yes If yes, please list below. Note: Please indicate Fire, Rescue, EMS, or HazMat 

experience and your reason for leaving. Use additional information page if needed. 

No 

Dates Department

9. Do you have a valid first aid card, first responder or EMT certification?

Yes If yes, please list below.

No 

Type Expiration Date

10. Washington State regulations require that you pass a physical examination to be a 

member of this department. The department’s designated physician will provide 

you with a free medical examination. Will you be willing to undergo a free medical 

examination?

Yes 

No 

Employment: List your employment for the last five years. We will conduct a background 

check on your past employment history. Please list, starting with your current employer, 

immediate supervisor, and contact number.

Years Business / 

Department Job Title Supervisor Contact Phone

References: List the names of three persons other than former employers and relatives 

who have knowledge of your character, experience, or ability.

Name Address Relationship Phone and Email
122 Retention and Recruitment for the Volunteer Emergency Services

Emergency Contact Information

Name

Relationship

Address

Phone Number
Appendix D: Sample Exit Survey 123

Appendix D: Sample Exit Survey

Information in this appendix courtesy of NVFC.

Departments may use or modify any of the suggested questions below to capture 

information on why volunteers are leaving. There are numerous no-cost or low-cost 

survey platforms available such as Survey Monkey, Type Form, Google forms, Wufoo, 

and others.

Introduction:

The [DEPARTMENT NAME] is committed to our many volunteers. This Exit Survey 

provides us with valuable information to identify ways in which the volunteer experience 

and environment can be improved.

This survey is confidential, and the results will be presented in a manner which protects 

anonymity and confidentiality. We appreciate your service, and we are thankful for 

your willingness to complete this survey to enhance our department’s operations.

1. Age

ĵ 16-19

ĵ 20-29

ĵ 30-39

ĵ 40-49

ĵ 50-59

ĵ 60 and over

2. Gender

ĵ Male

ĵ Female

ĵ Prefer not to say

ĵ Other (please specify)

3. Race/Ethnicity

ĵ Caucasian

ĵ Asian/Pacific Islander

ĵ Hispanic or Latino

ĵ Black or African American

ĵ Native American or American Indian

ĵ Other

ĵ Prefer not to say

4. In what capacity were you a volunteer?

ĵ Fire suppression only

ĵ Emergency medical only

ĵ Support/administrative only

ĵ Fire and emergency medical

ĵ Other (please specify)
124 Retention and Recruitment for the Volunteer Emergency Services

5. How long did you volunteer?

ĵ Less than 1 year

ĵ 1-3 years

ĵ 4-6 years

ĵ 7-10 years

ĵ 11-15 years

ĵ 16-20 years

ĵ 21-29 years

ĵ 30-39 years

ĵ 40-49 years

ĵ 50+ years

6. How long did you consider leaving the department?

ĵ Less than 2 months

ĵ 2-6 months

ĵ 7-12 months

ĵ More than 1 year

7. Why did you initially decide to volunteer? Please check all that apply.

ĵ Help my community

ĵ Friend/family connection

ĵ Learn new skills

ĵ Career development

ĵ Meet new people

ĵ Incentives associated with volunteering (tax relief, affordable housing programs, 

tuition reimbursement, etc.)

ĵ Other (please describe)

8. What factors influenced your decision to leave? Please check all that apply.

ĵ Relocation/moved out of area

ĵ Poor leadership

ĵ Career or job demands

ĵ Commute

ĵ Training requirements too stringent

ĵ Attitude of existing personnel to newcomers

ĵ Lack of support from existing members/leadership

ĵ Issues with other members

ĵ Too many cliques

ĵ Uncomfortable atmosphere/environment

ĵ Concerns about health/safety risks

ĵ Lack of call volume/excitement

ĵ Family circumstances

ĵ Accepted career fire/EMS position

ĵ Retirement

ĵ It was not my decision to leave (i.e., termination or forced resignation)

ĵ Other (please specify)
Appendix D: Sample Exit Survey 125

9. The training opportunities offered by my department/organization:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Were well organized

ĵ Were relevant to my job/volunteer functions

ĵ Met my expectations

ĵ Were appropriate for volunteer time constraints

ĵ Followed an acceptable standard

ĵ Were complemented by station training/drills

ĵ Comments:

10. On incident scenes, emergency operations:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Were safe

ĵ Were competently managed

ĵ Followed our training

ĵ Followed standards (IMS, ICS, etc.)

ĵ Followed operating guidelines and policies

ĵ Had sufficient personnel to function safely and effectively

ĵ Were reviewed post-incident to identify areas of improvement

ĵ Comments:

11. Leadership:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Made safety a top priority

ĵ Communicated policies, guidelines, and practices effectively

ĵ Followed operating guidelines and policies

ĵ Made me feel part of the organization

ĵ Respected my personal obligations and time

ĵ Provided recognition for a job well done

ĵ Resolved complaints and problems promptly and efficiently

ĵ Valued feedback and input from the team

ĵ Comments:

12. Overall, leadership was:

ĵ Poor

ĵ Fair

ĵ Good

ĵ Excellent

13. What did you enjoy most about your volunteer experience? (open-ended)

14. What did you enjoy least about your volunteer experience? (open-ended)
126 Retention and Recruitment for the Volunteer Emergency Services

15. What factors would have encouraged you to stay? Please check all that apply.

ĵ A personal invitation/request to stay by leadership

ĵ Improved leadership

ĵ Tuition reimbursement

ĵ Retirement benefit

ĵ Flexible training options (option for online training, flexible training schedule, etc.)

ĵ Flexible duty shifts

ĵ Tax relief

ĵ Affordable housing program

ĵ More support from family

ĵ A more positive and inclusive department culture

ĵ Other (please specify)

16. Do you plan to volunteer with a fire, rescue or EMS organization again in the future?

ĵ Yes

ĵ No

ĵ Undecided
Appendix E: Sample Stay Survey 127

Appendix E: Sample Stay Survey

Information in this appendix courtesy of the NVFC.

Departments may use or modify any of the suggested questions below to capture 

information on what is working well in the department, as well as areas of frustration. It 

is recommended that this survey be conducted annually. There are numerous no-cost 

or low-cost survey platforms available such as Survey Monkey, Type Form, Google 

forms, Wufoo, and others.

Introduction:

The [DEPARTMENT NAME] is committed to our many volunteers. This Stay Survey 

provides us with valuable information to identify ways in which we can better support 

our staff and crews.

This survey is confidential and results will be presented in a manner which protects 

confidentiality. We appreciate your service, and we are thankful for your willingness 

to complete this survey to enhance our department’s operations.

1. Why did you initially decide to volunteer? Please check all that apply.

ĵ Help my community

ĵ Friend/family connection

ĵ Learn new skills

ĵ Career development

ĵ Meet new people

ĵ Incentives associated with volunteering (tax relief, affordable housing programs, 

tuition reimbursement, etc.)

ĵ Other (please describe)

2. Why do you volunteer today? Please check all that apply.

ĵ Help my community

ĵ Friend/family connection

ĵ Learn new skills

ĵ Career development

ĵ Meet new people

ĵ Incentives associated with volunteering (tax relief, affordable housing programs, 

tuition reimbursement, etc.)

ĵ Other (please describe)

3. The training opportunities offered by my department/organization:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Are well organized

ĵ Are relevant to my job/volunteer functions

ĵ Meet my expectations

ĵ Are appropriate for volunteer time constraints

ĵ Follow an acceptable standard

ĵ Comments:
128 Retention and Recruitment for the Volunteer Emergency Services

4. Describe your thoughts regarding the tangible benefits offered by the department/

organization (PSOB, awards, tax relief, childcare, etc.):

ĵ I volunteer primarily because of the benefits I receive.

ĵ I appreciate them, but they are not the primary reason I volunteer.

ĵ They are unnecessary.

ĵ I’m not familiar with the benefits I receive as a volunteer.

5. Are there additional benefits you would like to see department/organization offer? 

Please describe:

6. On incident scenes, emergency operations:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Are safe

ĵ Are competently managed

ĵ Follow our training

ĵ Follow standards (IMS, ICS, etc.)

ĵ Follow operating guidelines and policies

ĵ Have sufficient personnel to function safely and effectively

ĵ Are reviewed post-incident to identify areas of improvement

ĵ Comments:

7. Leadership:

Choice Selection: Never, seldom, sometimes, most of the time, always, N/A

ĵ Makes safety a top priority

ĵ Communicates policies, guidelines, and practices effectively

ĵ Follows operating guidelines and policies

ĵ Makes me feel part of the organization

ĵ Respects my personal obligations and time

ĵ Provides recognition for a job well done

ĵ Resolves complaints and problems promptly and efficiently

ĵ Values feedback and input from the team

ĵ Comments:

8. Think of the best officer you ever worked with. What is an attribute of that person 

that motivated others? (open-ended)

9. What makes you proud about being a member of this department? (open-ended)

10. What do you like least about volunteering with this department? (open-ended)

11. What might tempt you to leave? Please check all that apply.

ĵ Possible relocation/moving out of area

ĵ Poor leadership

ĵ Career or job demands

ĵ Commute

ĵ Training requirements too stringent

ĵ Attitude of existing personnel to newcomers

ĵ Lack of support from existing members/leadership

ĵ Issues with other members
Appendix E: Sample Stay Survey 129

ĵ Too many cliques

ĵ Uncomfortable atmosphere/environment

ĵ Concerns about health/safety risks

ĵ Lack of call volume/excitement

ĵ Family circumstances

ĵ Lack of support from family

ĵ Transition to career fire/EMS position

ĵ Retirement

ĵ Other (please specify)

12. What would improve your experience with the department? (open-ended)

13. If you’d like us to follow up with you specifically regarding this survey, please include 

your contact information here. (optional)

ĵ Name

ĵ Phone

ĵ Email
Photo courtesy of Defense Visual Information Distribution Service. Photo by Patrick Buffett
Appendix F: Sample Social Media Policies 131

Appendix F: Sample Social Media 

Policies

Sample 1

Information in this sample is courtesy of the West Barnstable (Massachusetts) Fire 

District (WBFD), based on a template provided by the Fire Law Group. Find the full 

template at https://www.firelawblog.com/links/.

The following policy and procedures shall apply to the use of social media by WBFD 

members:

1. Purpose: The purpose of this policy is to provide guidance to members of the 

WBFD to clarify the boundaries between appropriate and inappropriate use of 

social media by fire department personnel. Nothing in these rules is intended to 

restrict a member’s right to discuss, as a private citizen, matters of public concern, 

nor to restrict their right to engage in concerted activity with coworkers.

2. Social media is: Social media means the use of the spoken or written word, or the 

use of images, on Facebook, Twitter, LinkedIn, YouTube, Myspace, blogs, websites, 

and other similar electronic social gathering/networking places or news sites. For 

purposes of this policy, traditional print media, television, and radio (newspapers, 

for example, because of the close link between electronic and print media) are 

social media. Engaging in social media and social networking is a form of speech.

3. Avoid being a spokesperson: WBFD members have an affirmative obligation to 

avoid being perceived as a spokesperson for the department. Members shall at 

all times exercise diligence to avoid holding themselves out as spokespeople for 

the department except when duly authorized. The use of titles, department logos 

and department images that would give a reasonable person the impression that 

the member is a spokesperson for the department is prohibited.

4. Disruption prohibited: No member, while speaking as a private citizen on a matter 

of public concern regarding the fire department, shall speak in such a way as to 

cause actual harm or disruption to the operations of the fire department.

5. Being a spokesperson: Members may speak on a matter of public concern as 

a spokesperson for the department only with permission through the chain of 

command.

6. Not of public concern: Members are prohibited from publicly discussing WBFD 

matters that are not of public concern, unless doing so is with other members of 

the department (or their representatives) and is for the purpose of engaging in 

concerted activities relative to workplace issues.

7. Lies: Members shall not engage in speech that is false, deceptive, libelous, 

slanderous, misleading, or causes harm to others, including speech that constitutes 

hate speech or harassment.

8. Confidential matters: Members shall not discuss protected or confidential matters 

including matters under investigation, patient/victim information and personnel 

matters that are protected from disclosure by law.
132 Retention and Recruitment for the Volunteer Emergency Services

9. Prohibited: Members may not use department-owned digital images, audio, or 

video without department approval. Members are prohibited from engaging in 

sexually explicit or illegal activities, unlawful activities, or conduct that may bring 

discredit upon the department or other members of the department.

10. Social media code of conduct: When engaging in social networking or social media 

activities, all personnel will maintain a level of professionalism in both on-duty 

and off-duty conduct that is consistent with the honorable mission and excellent 

reputation of our department. The publication of any statement, comment, imagery, 

or other information through any medium of communication, indicated herein, that 

is potentially adverse to the operation, morale, or efficiency of the department is 

prohibited and will be deemed a violation of this policy.

11. Social media at the FD: Members will not participate in social networking or social 

media while identifiable as a member of the WBFD (except official spokespersons). 

For instance, participating in a video chat in uniform (full or partial), with WBFD 

apparatus in the background or with the WBFD logo in the background is prohibited.

Sample 2

Information in this sample courtesy of NVFC.

As an employee or board member of the NVFC, your online actions and presence is 

important, even if you don’t manage the organization’s social media channels. Below 

are some guidelines to remember to protect the reputation of the NVFC and yourself.

Using social media in a personal capacity

You are responsible for your actions.

While the NVFC encourages employees and board members to maintain individual 

social media accounts if they choose, refrain from posting anything that could ultimately 

harm the NVFC’s reputation. Remember to exercise sound judgment and common 

sense online.

Be aware when mixing work with your personal life.

You are free to identify yourself as an NVFC employee or board member in your 

individual social media profiles and to share NVFC content to your social media pages, 

but refrain from any language that indicates you are speaking for the NVFC through 

your personal social media accounts. Only official NVFC social media accounts can 

speak for the organization.

Remember that as an employee or board member, the content you post can 

reflect on the organization.

The NVFC respects the free speech rights of all its employees and board members, but 

remember that supervisors, colleagues, and the public often have access to the online 

content you post. Keep this in mind when sharing or posting information or content 

that can be seen by more than just family or friends, and remember that information 

or content initially intended for just family and friends can be easily passed on.
Appendix F: Sample Social Media Policies 133

Let the designated employees respond to negative content.

If you come across negative or disparaging posts or comments about the NVFC or any 

of its employees or representatives, avoid the temptation to react yourself. Pass the 

post(s) or comment(s) on to the NVFC communications team so they can determine 

the best course of action.

Be a scout for content.

Keep an eye out for content the NVFC could share or promote on social media. If 

you hear or watch something on the news or read something online that could be 

useful and/or interesting to the NVFC’s members and followers, please send it to the 

communications team for possible posting on the NVFC’s social media pages.

Using social media in an official capacity.

Only designated staff members can post content coming from the NVFC’s official social 

media accounts. When posting information to the NVFC’s social media channels, you 

are acting as a representative of the organization. There are certain standards and 

policies that anyone who manages the NVFC’s social media presence should follow.

Be mindful that you represent the organization.

When interacting with the public through social media, be respectful and accepting 

of all individuals, races, religions, and cultures. How you conduct yourself in these 

situations reflects on the entire NVFC.

Make sure content remains respectful and follows all privacy laws.

Don’t post any content that is or would appear disrespectful to the subject or that 

violates any privacy or HIPAA laws. For instance, if posting an item from an emergency 

scene, focus on the work of the firefighters and do not show any identifying photo 

or video of the victim or any images that would seemingly disrespect the severity of 

the situation.

Do not tolerate spam or offensive content.

The NVFC does not tolerate content posted to our social media channels that we deem 

offensive or divisive in nature or that can be categorized as spam. We reserve the right 

to delete such posts or comments and ban users from our channels if necessary.

Be respectful and helpful when responding to criticism or complaints.

Unless the post is offensive, divisive, or spam, be respectful of the opinions expressed 

by others on the NVFC’s social media channels and try to be helpful. Your response to 

criticisms against the organization should be informative and professional. Consider 

using the following format:

ĵ Let them know you heard the complaint: “We’re sorry to hear...” or “We’re sorry 

that you feel...”

ĵ Inform: Provide them with as much relevant information as you can to respond 

to their comment or question.

ĵ Offer: “If you have any further questions or concerns, please email...” or “If you 

need further information, check out this link...”
134 Retention and Recruitment for the Volunteer Emergency Services

Sometimes it is better to address the comment in a direct message to the individual 

who made the complaint rather than in a public-facing area such as the comments 

section. If you are unsure of how to respond or the best method for response, consult 

with the Chief of Communications.

Know when to disengage.

If you have responded to someone’s complaint or criticism to the best of your abilities 

yet they continue to leave comments or send messages, do not engage further. It may 

be appropriate to hide or delete their comments or posts or ban the user from the 

NVFC’s social media channels.

Best practices for social media

Respond to all messages, comments and mentions promptly.

Make sure you are responding to every message, comment, and mention that needs a 

response in at most one business day. Although not every comment or mention warrants 

a response, it may be appropriate to like or share that content to the organization’s 

channels.

Do not post the same content across all channels.

Try to refrain from posting the same content at the same time across all the NVFC’s 

channels. Instead, mix it up by changing the wording and date that content is posted 

(e.g., post to Twitter on Monday and Facebook on Wednesday). Some content might 

not be relevant for followers on a specific channel and therefore does not need to be 

posted there. Also make sure the content is worded appropriately for the platform, 

such as using relevant hashtags for Twitter posts.

Relax the wording.

The wording of social media posts does not need to be as formal as you would find in 

a press release. Keep it professional, but feel free to use a more relaxed tone, utilize 

conjunctions, and shorten words (especially on Twitter, where this is sometimes a 

necessity).

Use images and videos as much as possible.

Research shows that posts with images or videos generate more engagement than those 

without, so use them whenever possible. Sometimes a link preview includes an image.

Research hashtags beforehand.

This ensures that the NVFC is not left out of conversations occurring on social media. 

It also prevents embarrassing or controversial misuse of hashtags.
Appendix G: Sample Media Policy 135

Appendix G: Sample Media Policy

Information in this appendix courtesy of the WBFD.

Media relations: The WBFD is routinely called to incidents that are newsworthy. 

The WBFD endeavors to have a favorable relationship with the media and will make 

reasonable efforts to develop media contacts and a favorable relationship. Staff may 

be asked by the media to answer questions or give an opinion on a topic or an incident. 

WBFD staff should follow the following procedures and guidance when responding to 

or interacting with the media:

A. Do not publicize or release any information that may be construed as confidential 

to any source.

B. Refrain from saying “No Comment.” This could end up as the lead on the evening 

news and implies a cover-up or wrongdoing.

C. Do not tell media personnel anything “off the record.”

D. WBFD staff may provide the following basic information to the media, however, 

whenever reasonably possible (don’t send it to voicemail of someone who’s not 

around) staff should refer the request to the chief, deputy chief, shift commander 

or incident commander (in the overwhelming number of situations, the highestranking person available should handle the request):

a. Incident number

b. Time of incident

c. Location of incident

d. Nature of incident. For EMS calls, the nature of the incident is “emergency 

medical call.” The precise nature of the injury or illness cannot be provided 

without additional authorization. In the event of an MCI, the fact that an MCI 

was declared and the number of patients may be provided.

e. Receiving hospital (and if transport was by ambulance or Medflight)

f. Number/type of apparatus and firefighters that responded (other participating 

fire and police agencies may be listed)

g. In the event of fires, hazmat, and other incidents not involving patients, a brief 

statement of the incident, similar to a 360 size-up, may be provided.

h. If additional information is requested, the media should be directed to the 

chief, deputy chief, shift commander, or incident commander.

i. Minimize comments regarding any incident we go to outside of the WB Fire 

District to the fact that we went to the incident, what units were sent, and the 

time they were sent (if requested).
136 Retention and Recruitment for the Volunteer Emergency Services

E. WBFD staff may not:

a. Provide any information regarding a patient, including assessment of injuries 

and treatment provided;

b. Any information prejudicial to law enforcement or investigations;

c. Information not based upon facts; or

d. Information that might be an invasion of privacy, such as a suicide, AIDS, 

HIV status, overdose, psychiatric, etc. In the case of death, only the medical 

examiner may give the cause.

F. When an incident or event occurs that the WBFD feels will generate positive media 

coverage or provide relevant information to the community, the chief or deputy 

chief will contact the media, and the information will be placed on the WBFD 

Facebook page and/or website.

G. WBFD staff should provide information about community events and meetings 

as requested.

H. Attached as Exhibit B to these policies is a media statement template.

I. All staff should review and be familiar with the policies for requesting information 

(see the forms on the wall outside of the Administrative Office and the fire district 

website): http://westbarnstablefiredistrict.com/public-records-request-forms/.
Appendix H: Sample Nondiscrimination Statements 137

Appendix H: Sample 

Nondiscrimination Statements

Sample 1

In principle and in practice, [DEPARTMENT NAME] is committed to cultivating a culture 

of diversity, equity, and inclusion.

As a premier organization representing a broad and diverse community, we must 

take positive steps to promote diversity and inclusion by eliminating any vestiges of 

discrimination or unequal treatment including, but not limited to, on a basis of race, 

color, religion, sex, gender identity, sexual orientation, national origin, age, disability 

status, citizenship, genetic information, protected veteran status, or any other legally 

protected characteristic. To allow such discrimination or unequal treatment to persist, 

whether through active or passive facilitation, weakens our abilities to respond to our 

varied customer base and to act effectively as an organization.

All members of [DEPARTMENT NAME] have a responsibility to treat others with dignity 

and respect, participate in respectful communication, cooperate with others, and allow 

for all groups and member perspectives to be represented. Members are expected 

to exhibit conduct that reflects this commitment to diversity, equity, and inclusion 

while on-duty, at department functions, at department-sponsored events, or while 

representing the department in any capacity.

Any member found to have exhibited inappropriate conduct or behavior may be subject 

to disciplinary actions. Members who believe they have been subject to conduct or 

behavior that conflicts with the department’s diversity, equity, and inclusion policy 

should seek assistance from an officer, chief, or other designated party.

Sample 2

Information in this sample courtesy of WBFD.

All members are equal: All members of the WBFD are equal and have an equal 

voice in the department. Once a person is appointed to the department, he or she is 

a full member. No member should feel he or she is prohibited in presenting ideas or 

participating in policy discussions because of their lack of seniority. All members have 

an equal opportunity to participate. New members are as equal as veterans. (Except 

where required by law) PPE, training opportunities, shift coverage, participation in 

committees or events, response to incidents, and other activities shall not be provided 

or withheld on the basis of seniority.

The WBFD will not discriminate against personnel on the basis of pregnancy or a 

condition related to pregnancy.

Nondiscrimination: In accordance with requirements of federal and state antidiscrimination statutes, no person shall discriminate on the grounds of race, color, 

religion, sex, sexual orientation, age, national origin, ancestry, or disability in any aspect 

of the provisions of ambulance or EMS first response service or in employment practices.
138 Retention and Recruitment for the Volunteer Emergency Services

No Retaliation: Retaliation by members of the department against anyone for the 

filing of a complaint, for taking actions to prevent unsafe situations, for taking actions 

to ensure compliance with the law or department policy, or any other lawful or ethical 

action is unacceptable behavior. Retaliation is a serious breach of fire district policy and 

may subject individuals to disciplinary action (including termination) and/or criminal 

prosecution.
Acronyms 139

Acronyms

A&H Accident & Health

A&S Accident & Sickness

CEU continuing education unit

DOL Department of Labor

EMS emergency medical services

EMT emergency medical technician

EAP Employee Assistance Program

EDW Enterprise Data Warehouse

FLSA Fair Labor Standards Act

FEMA Federal Emergency Management Agency

HIPAA Health Insurance Portability and Accountability Act

IAFC-VCOS International Association of Fire Chiefs — Volunteer & Combination 

Officers Section

IAFC International Association of Fire Chiefs

ICMA International City/County Management Association

IT information technology

LOSAP Length of Service Award Program

NFA National Fire Academy

NFDC National Fire Data Center

NFIRS National Fire Incident Reporting System

NFPA National Fire Protection Association

NLC National League of Cities

NVFC National Volunteer Fire Council

OSHA Occupational Safety and Health Administration

OSFA Oklahoma State Firefighters Association

PIO public information officer

PPE personal protective equipment

PTSD post-traumatic stress disorder

POV privately owned vehicle
140 Retention and Recruitment for the Volunteer Emergency Services

SAFER Staffing for Adequate Fire and Emergency Response

UL Underwriters Laboratories

USFA U.S. Fire Administration

WBFD West Barnstable (Massachusetts) Fire District

16825 South Seton Ave.

Emmitsburg, MD 21727

usfa.fema.gov

FA-361 | May 2023