VolunteerActionPlan EndorsedbyMCPEM EM25Sept2009

VOLUNTEER ACTION PLAN REFERENCE
GROUP
NATIONAL ACTION PLAN FOR

THE ATTRACTION, SUPPORT
AND RETENTION OF
EMERGENCY MANAGEMENT
VOLUNTEERS
Endorsed by the Ministerial Council for Police and Emergency Management –

Emergency Management on 25 September 2009
VOLUNTEER ACTION PLAN REFERENCE GROUP
National Action Plan for the Attraction, Support and Retention of

Emergency Management Volunteers
BACKGROUND...............................................................................................................................................................1
AIM....................................................................................................................................................................................1
DEVELOPMENT AND IMPLEMENTATION............................................................................................................1
SUMMARY OF ACTIONS.............................................................................................................................................3
INDIVIDUAL ACTIONS................................................................................................................................................6
TOP PRIORITY....................................................................................................................................................................6
Action 1: Enhance subsidisation of volunteer training, activities and equipment..................................................6
Action 2: Enhance leadership training to support emergency management volunteers.........................................8
Action 3: Develop alternative learning approaches for emergency management volunteers...............................10
Action 4: Enhance national recognition of employer support for emergency management volunteering............12
MEDIUM PRIORITY...........................................................................................................................................................14
Action 5: Increase community awareness of the role and value of emergency management volunteers..............14
Action 6: Enhance youth participation in emergency management volunteering.................................................16
Action 7: Review grants programs to strengthen focus on volunteer attraction, support and retention..............18
Action 8: Address legal issues that may inhibit the attraction and retention of emergency management
volunteers................................................................................................................................................................19
LOWER PRIORITY.............................................................................................................................................................21
Action 9: Harness the willingness and resources of spontaneous volunteers.......................................................21
Action 10: Promote corporate volunteering in the emergency management sector.............................................23
Action 11: Improve collection, analysis and dissemination of research and information on emergency
management volunteer issues.................................................................................................................................25
NATIONAL ACTION PLAN FOR THE ATTRACTION, SUPPORT AND RETENTION OF EMERGENCY MANAGEMENT VOLUNTEERS
BACKGROUND
In Australia today, there are over 500,000 volunteers who play a crucial role in the delivery of
emergency management services across the country. Australia’s ability to respond to and recover
from emergencies and disasters relies heavily on their contributions. However, socio-economic-
demographic shifts are presenting particular challenges, and opportunities, in the attraction,
support and retention of volunteers into the emergency management sector.
States and Territories have responsibility for emergency management, with the Commonwealth
providing assistance to improve disaster management capability and recovery. Recognising that a
volunteer workforce provides the backbone of emergency management services, their declining
numbers is an issue that cuts across all levels of government and is of national importance.
In March 2008 the Ministerial Council for Police and Emergency Management-Emergency
Management (MCPEM-EM) identified that action needs to be taken to ensure the future viability
of volunteers working in the areas of emergency service response and recovery.
Making the Difference was commissioned by the Attorney-General's Department (the Department)
to investigate the attraction, support and retention of emergency management volunteers and
provide a report. Dr Judy Esmond was the individual overseeing the project for the consultancy
firm.
At its meeting in December 2008, the Australian Emergency Management Committee (AEMC),
which reports to MCPEM-EM, considered Dr Esmond’s report. AEMC agreed that an action plan
be developed using Dr Esmond’s report and other relevant material.
In consultation with key stakeholders, Dr Esmond identified five key challenges confronting the
emergency management volunteer sector - time, training, cost, recognition and people. Dr Esmond
proposed a number of options to tackle each of these challenges, some being at the national level,
and others at local and jurisdictional levels.
AIM
The aim of the Volunteer Action Plan is to outline options to enhance the attraction, support and
retention of emergency management volunteers. The Plan aims to only address issues that can be
managed at a national level, leaving the jurisdictions and emergency management organisations
the task of making local or jurisdiction-specific arrangements at their discretion, in the priority
order that is most important to them.
DEVELOPMENT AND IMPLEMENTATION

The Volunteer Action Plan was developed by a Reference Group comprising senior jurisdictional
representatives nominated by AEMC members. In developing the Plan, the Reference Group
considered a range of factors including Dr Esmond’s findings, existing volunteer assistance
strategies and other relevant material.
1
The Attorney-General’s Department also liaised with the Department of Families, Housing,
Community Services and Indigenous Affairs regarding other national activities being undertaken
in the broader volunteering sphere.
The Plan proposes 11 national actions to enhance volunteer attraction, support and retention.
The proposed actions have been prioritised into three categories (top priority, medium priority and
lower priority) according to feedback received during a consultation process with the jurisdictions
and volunteer peak bodies. These actions have been considered by the Reference Group to have
cross-jurisdictional applicability and a national focus. They do not represent endorsement from
individual jurisdictions.
This Volunteer Action Plan represents just one element of the collective effort required to promote
emergency management volunteering throughout Australia. It does not preclude the jurisdictions
from further utilising Dr Esmond’s recommendations to develop their own local, regional and
state-wide strategies for the attraction, support and retention of emergency management volunteers
(noting that some of Dr Esmond’s recommendations are specifically targeted at this level). The
Reference Group agreed too that some actions, such as the implementation of different volunteer
roles and levels of volunteer involvement, would be more effectively pursued at jurisdictional,
organisational or local levels.
The Volunteer Action Plan will be presented to AEMC in September 2009 for further discussion,
consideration and recommendation to MCPEM-EM. Implementation of the proposed actions
contained in the Plan is subject to MCPEM-EM endorsement in November 2009. More detailed
analysis and development of implementation plans will be undertaken for those actions that receive
MCPEM-EM support. A number of the proposed actions also have financial and other resource
implications attached to them. AEMC will need to identify appropriate sources of funding (such as
the Australian Government’s new Disaster Resilience Program) to enable these actions to proceed.
2
SUMMARY OF ACTIONS
TOP PRIORITY
Action 1: Enhance subsidisation of volunteer training, activities and equipment
Task: Develop a national position regarding subsidisation of training, activities and equipment for
volunteers.
Timing: Short term (up to 6 months).
Resources: In-kind contribution from AEMC working group members to develop position
paper. Subsequent financial implications will depend on final position adopted.
Status: AEMC to determine implementation.
Action 2: Enhance leadership training to support emergency management volunteers
Task: Develop and trial a pilot program to enhance national leadership training for the emergency
management volunteer sector. Report on the effectiveness and benefits of the pilot
program.
Resources: At AEMC discretion. Subsequent financial implications of ongoing leadership
training opportunities will depend on success of pilot program.
Status: AEMC has agreed to progress this action as a national priority project in 2009-10.
Action 3: Develop alternative learning approaches for emergency management

volunteers
Task: Develop and trial a pilot training program using flexible learning approaches and tools,
including eLearning, that will help to ease time pressures and training commitments
on emergency management volunteers. Report on the effectiveness and benefits of
the pilot program and the viability of extending such alternative approaches to the
wider emergency management sector.
Timing: Short to medium term (6-12 months).
Resources: At AEMC discretion. Subsequent financial implications of extending program will
depend on success of initial pilot.
Action 4: Enhance national recognition of employer support for emergency

management volunteering
Task: Develop a national volunteer employer recognition scheme to formally recognise and
reward the support of employers of emergency management volunteers (including
self-employed volunteers).
Resources: At AEMC discretion. Subsequent financial implications associated with the
ongoing operation of the scheme will depend on final agreed model.
3
MEDIUM PRIORITY
Action 5: Increase community awareness of the role and value of emergency

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

to raise community awareness about the role and value of emergency management
volunteers;
b) Seek a review of the qualifying criteria for the National Medal to increase equity
and recognition amongst all emergency management volunteers.
Resources: In-kind contribution from AEMC working group members to develop
communications strategy. Subsequent financial implications will depend on
initiatives included in final agreed strategy.
Action 6: Enhance youth participation in emergency management volunteering
Task: Develop a national strategy to enhance youth engagement and participation in the
emergency management volunteer sector.
Resources: At AEMC discretion. Subsequent financial implications of any ongoing youth
development programs will depend on initiatives included in final agreed strategy.
Action 7: Review grants programs to strengthen focus on volunteer attraction,

support and retention
Task: Develop a strategy to increase the focus on volunteer attraction, support and retention
within relevant grants programs.
Resources: In-kind contribution from AEMC working group members to undertake this task.
Action 8: Address legal issues that may inhibit the attraction and retention of
emergency management volunteers
Tasks: Undertake a comparative review of insurance and legal protections for emergency
management volunteers in the different jurisdictions with a view to identifying any
legal issues that may inhibit their attraction and retention. Work through AEMC to
improve national consistency in the level of coverage and protection afforded and
alleviate any volunteer concerns in relation to this.
Resources: At AEMC discretion.
4
LOWER PRIORITY
Action 9: Harness the willingness and resources of spontaneous volunteers
Task: Develop national guidelines to harness the assistance offered by spontaneous volunteers
into a more regular volunteering commitment.
Resources: At AEMC discretion.
Action 10: Promote corporate volunteering in the emergency management sector
Task: Develop and deliver a national seminar series to promote the opportunities and benefits
offered by corporate volunteering to the emergency management sector. The
seminar series to showcase successful models and partnerships with private industry
that may be applied in emergency management.
Timing: Short to medium term (6-12 months)
Resources: In-kind contribution from AEMC working group members to develop and deliver
the seminar series.
Action 11: Improve collection, analysis and dissemination of research and

information on emergency management volunteer issues
Task: Develop a national information portal, clearinghouse or other means of collecting,

analysing and disseminating research and information on emergency management
volunteer issues.
Timing: Short term (up to 6 months)
Resources: At AEMC discretion. Subsequent financial implications associated with ongoing
maintenance will depend on final agreed model.
5
INDIVIDUAL ACTIONS
TOP PRIORITY
Action 1: Enhance subsidisation of volunteer training, activities and equipment
Background and rationale

Presently, across the emergency services sector, there is an ad-hoc approach to matters relating to
the subsidisation of volunteer training, activities and equipment.
In the past, research in regard to this issue has been undertaken at both National and State levels
and there appears to be an inconsistent approach across (emergency service) agencies in relation to
subsidisation of training and equipment.
This review presents an opportunity to set minimum standards for the provision of training and
equipment to volunteers and introduce initiatives relating to subsidies that might encourage more
people to volunteer.
Objective
Recruitment and retention of volunteers is improved by enhancing subsidisation of volunteer
training, activities and equipment.
Measurement of success
Partial or complete subsidisation of mandatory training, activities and equipment incurred by
volunteers during the course of their voluntary activities.
Indicator
Position paper developed relating to subsidisation for volunteers
Partnership Opportunities
• Department of Families and Housing, Community Services and Indigenous Affairs
• Australian Taxation Office
• Australasian Fire and Emergency Service Authorities Council (AFAC)
• Australasian Association of Volunteer Fire Brigades Assembly (AAVFBA)
• Senator Ursula Stephens, Parliamentary Secretary for Social Inclusion and the Voluntary
Sector, has established a National Compact Joint Taskforce to commence drafting a new
compact between the Australian Government and the voluntary (third sector). It is likely
that this issue will be discussed due to its relevance across the entire voluntary sector.
Supporting Strategies
• A payroll tax exemption for employers of volunteers was introduced from 1 July 2007.
Employers in NSW, Victoria and Queensland who have volunteer fire fighters on staff
were given a tax relief under the ‘Harmonised Legislation’. The component of the
legislation that applies to employees in voluntary work or emergency relief states ‘Wages
paid or payable to an employee in respect of any period when he or she was taking part in
bush fire fighting activities as a volunteer…are exempt from payroll tax’.
6
• Some time ago, the NSW Rural Fire Service Association (RFSA) looked at the issue of tax
exemptions for volunteers. The research highlighted the difficulties associated with
providing tax exemptions to individuals as volunteers and subsequently explored the
possibility of employer tax breaks. Given that any outcomes in regard to tax exemptions
would be at the discretion of the Commonwealth, the information was forwarded to the
Australasian Association of Volunteer Fire Brigades Assembly (AAVFBA) as a national
body, for their action.
• Commonwealth Volunteer Grants Program (FaHCSIA) provides funding for eligible non
profit organisations to support volunteers and encourage volunteering. Eligible parties can
apply for grants for purchasing small equipment and for contributions towards fuel costs
for volunteers incurred as a result of their volunteering work.
Way Forward
Develop a national position paper regarding subsidisation of training, activities and equipment for
volunteers. This paper to be developed in conjunction with, but not limited to, the organisations
listed in ‘Partnership Opportunities’.
Timing
Short term (up to 6 months)
Resource Implications
In-kind contribution from AEMC working group members to develop position paper. Subsequent
financial implications will depend on final position adopted.
Expertise required:
• Financial management/Accounting/Funding
• Training
• OHS
• Tax law
Status
AEMC to determine implementation.
7
TOP PRIORITY
Action 2: Enhance leadership training to support emergency management volunteers
As emergency services volunteers strive to save lives, protect property and improve community
safety and resilience, strong, effective and responsive leadership is required to enable communities
to prosper.
The last few decades has seen a continual growth in public expectations of the efficiency, scale and
speed of post-disaster efforts. Safe and resilient communities need leadership capabilities that
demonstrate initiative, integrity, sound decision-making, confidence and courage. Emergency
services volunteers need to be supported in becoming confidant in taking on leadership roles, and
in extending their leadership capabilities.
Guiding actions
Traditionally, we may think of an individual leader with ‘followers’. This kind of leader
establishes direction and vision; encourages and supports others; is inspiring and motivating; has
passion, enthusiasm and commitment, and can bring people together to make things happen on the
ground.
These personal leadership characteristics are certainly needed in emergency contexts; however
different approaches may include ‘distributed’ leadership that makes use of the different kinds of
expertise offered by a range of community members.
Leadership training and development approaches would need to consider what best suits particular
communities. Such place-based approaches are locally driven and often produce enduring
outcomes. Approaches range from asset-based community leadership development to individual
enabling programs which may include competency based training.
Desirable characteristics of appropriate programs may include the following, based in an

emergency volunteer context : understanding and managing change, leadership and personality
styles; communication; time and stress management; maximising working in groups; team role
preferences; giving feedback that works; strategy and management thinking; negotiating skills; and
giving effective interviews.
Ongoing mentoring and support are essential elements for applying skills in the workplace.
Electronic ‘communities of practice’ across the regions would further support leadership
development.
Objective
Leaders of emergency volunteer groups are enabled through effective leadership training and
development; and are supported by emergency management organisations.
Improved effectiveness of emergency volunteer groups through stronger leadership.
Indicator
Pilot program on enhanced national leadership training is developed, trialled and assessed.
8
• Technical and Further Education Institutions
• Emergency Management Australia Institute
• NSW Centre for Volunteering
• Local Government Associations
• AFAC Volunteer Leaders Program
Way Forward
Develop and trial a pilot program to enhance national leadership training for the emergency
management volunteer sector. Report on the effectiveness and benefits of the pilot program. This
paper to be developed in conjunction with, but not limited to, the organisations listed in
‘Partnership Opportunities’.
Timing
As public expectations for improved response and recovery efforts continue to rise, actions to
support strong emergency services leadership training and development are becoming of prime
urgency.
At AEMC discretion. Subsequent financial implications of ongoing leadership training
opportunities will depend on success of pilot program.
Unless central or regional funding and management was available to support leadership training
and development programs, resource implications would directly impact at the local level through
the volunteer organisation itself or possibly with joined-up local government organisations. Staged
approaches or initial pilot programs with ‘seed funding’ may initiate further leadership training and
development.
Status
AEMC has agreed to progress this action as a national priority project in 2009-10.
9
TOP PRIORITY
Action 3: Develop alternative learning approaches for emergency management
volunteers

The issue of time, and more specifically a lack of it, is emerging as a major challenge for
volunteering organisations. At a time when the literature is reporting a lack of time as a potential
detractor to current and potential volunteers it is also reporting an increase in training demands,
especially for emergency management volunteers.
This is of particular concern for those organisations relying on traditionalist based education
models for example exclusively face to face training models: put simply the greater the training
demand the greater the required time commitment.
Of similar concern is the capacity of volunteer organisations to attract and retain younger
volunteers. With an ageing population, organisations need to ensure that its strategies, including
training strategies are attractive to a younger demographic.
Organising and exploiting flexible approaches to learning, including the use of eLearning and
other workplace pedagogies to supplement traditional models would serve to address both of the
issues above by providing volunteers and the parent volunteer organisation with engaging,
relevant, quality, time-effective, authentic and situated learning experiences.
Objective
Emergency management organisations implement learning and development models that take
advantage of flexible approaches to learning, including eLearning.
Improved utilisation of flexible approaches to learning, including eLearning.
Indicator
Pilot program developed to trial and report on the efficacy of alternative learning approaches in the
emergency management sector.
The partnership opportunities include both technology and content based elements:
• Technology based partnerships could be formed between Information Communication

Technology (ICT) based organisations or corporations who have experience in the
technology solutions and applications, including hardware, software and hosting required
to develop and deliver eLearning, as well as government departments that are furthering
training options.
• Partnerships with broadcast media organisations familiar with audio visual products or
other emergency management or volunteer based organisations well advanced in an
eLearning endeavour may also provide partnership benefits.
10
• In addition to technology elements, partnerships with other like organisations, state

emergency management agencies, public and private training providers and member
organisations that deliver similar learning outcomes and learning content would be
beneficial from an information and product sharing perspective.
Way Forward
Develop and trial a pilot training program using flexible learning approaches and tools, including
eLearning, that will help to ease time pressures and training commitments on emergency
management volunteers. Report on the effectiveness and benefits of the pilot program and the
viability of extending such alternative approaches to the wider emergency management sector.
This work to be undertaken in conjunction with, but not limited to, the organisations listed in
Timing
Short to medium term (6-12 months)
Whilst dependant upon the resources provided and the contribution of partnerships established to
support the PRIORITY ACTION area, a majority of the outlined actions could be carried out in the
short to medium term.
A long term, or greater than 12 months’ time period, would be required for the review and
refinement of chosen systems and more broadly the flexible learning framework as a whole.
At AEMC discretion. Subsequent financial implications of extending program will depend on
success of initial pilot.
Human
• Flexible learning project group with expertise or consulting access to
expertise in:
• Vocational Education and Training
• eLearning Support
• Project Support
• Volunteerism
• Technical eLearning development
• ICT systems
Physical
• eLearning suite or eLearning test environment or access to one with required
technology systems and products.
• Project equipment and project group infrastructure.
Financial
Sufficient financial resources to support the project group, technical infrastructure
requirements, and any outsourced development as determined via the business model.
Status
11
TOP PRIORITY
Action 4: Enhance national recognition of employer support for emergency
management volunteering

A critical factor in regard to the retention of volunteers is to recognise and acknowledge the
support provided by their employers (including self employed volunteers) who allow the release of
personnel to attend incidents and or training during normal work time. This includes those
employers who support emergency services volunteering by making available resources to be
utilised during incidents (eg loan of machinery).
Research revealed that there is no formal national volunteer employer recognition scheme to
address this issue. Many employers are currently contributing significant amounts of direct and
indirect time and resources to emergency services volunteering. By formally rewarding these
employers (including self employed volunteers) it is considered that volunteer recruitment and
retention will be enhanced.
The development of an accredited national volunteer employer recognition program, which could
be utilised throughout Australia by all emergency management agencies, would address this issue
and boost volunteering throughout Australia. Recognising employer contributions also has links to
payroll tax exemption (Action 1).
Objective
Formally recognise the contribution made by employers of emergency service volunteers
(including those self employed volunteers) to their respective communities in times of crisis
By formally recognising and rewarding employers (and self employed volunteers) it is considered
that a stronger community and industry support will result in an increase in retention of volunteer
numbers.
Indicator
Development of a national volunteer employer recognition scheme.
• Relevant Commonwealth and State Government agencies
• Volunteer peak bodies
Way Forward
Develop a national volunteer employer recognition scheme to formally recognise and reward the
support of employers of emergency management volunteers (including self-employed volunteers).
This scheme to be developed in conjunction with, but not limited to, the organisations listed in
Timing
12
At AEMC discretion. Subsequent financial implications associated with the ongoing operation of
the scheme will depend on final agreed model.
Funding will be required as part of the licensing requirements of the accreditation of a national
volunteer employer recognition program. Other corporate costs including human and information
resources will need to be assessed.
Status
13
MEDIUM PRIORITY
Action 5: Increase community awareness of the role and value of emergency
management volunteers

Community awareness of emergency management volunteering needs continual reinforcement to
ensure all Australian communities have a clear understanding of the role emergency management
volunteers provide.
Research has shown that many Australian residents hold the view that emergency management
personnel are paid employees. Those who understand that the emergency services are being
undertaken on a voluntary basis often do not realise that joining opportunities exist and that the
necessary training is provided to allow inexperienced volunteers to undertake a wide range of
volunteer roles.
A National Marketing Campaign specifically for emergency management volunteering would be a

valuable initiative in regard to raising community awareness and receiving benefits of increased
volunteer membership. The declaration of a National Emergency Management Volunteer Week,
along similar lines as National Volunteer Week, focussing on emergency management to celebrate,
acknowledge and recognise volunteers within our communities would be a valuable strategy.
A review of the National Medal Regulations to allow more volunteers to qualify for this award
(currently those who are involved solely in radio communication, administration, catering and
other critical support roles do not qualify for National Medals as they do not perform the primary
function). This is administered differently between Australian States and even within States. An
`to create an “Australian Award or Medal” with criterion achievable by all roles of emergency
management volunteers, subject to length of service etc.
Objective
To increase awareness by the Australian community of the role and responsibilities of emergency
management volunteering.
Better informed Australian community and increased participation in emergency management
volunteering.
Indicator
A national communications strategy is developed to raise community awareness about the role and
value of emergency management volunteers.
• Australian Emergency Management Volunteer Forum
• Australasian Fire and Emergency Services Authorities Council
14
Way Forward
a) Develop a national communications strategy, including a national marketing campaign, to raise
community awareness about the role and value of emergency management volunteers;
b) Seek a review of the qualifying criteria for the National Medal to increase equity and
recognition amongst all emergency management volunteers.
These actions to be undertaken in conjunction with, but not limited to, the organisations listed in
Timing
In-kind contribution from AEMC working group members to develop communications strategy.
Subsequent financial implications will depend upon initiatives included in final agreed strategy.
Status
15
MEDIUM PRIORITY
Action 6: Enhance youth participation in emergency management volunteering

Youth1 are engaging in volunteering at much higher rates than before. Young people are
volunteering in ways that are different to the ‘traditional’ volunteer, and have different
expectations of what they will take out of volunteering.
According to the ABS statistics (2000), the biggest growth population in volunteering was young
people. There was an increase in participating 18-24 year olds from 16.6% to 26.8% between
1995 and 20002.
Organisations involved in emergency management can tend to be inflexible in their structures,

processes and support for volunteers. This can pose barriers to the engagement and involvement
of young people in emergency management.
Research published in early 2000 indicates that young people are looking for flexible volunteering
opportunities.3 The findings were presented as ‘FLEXIVOL’, which serves as an acronym for the
most important elements:
Flexibility
Legitimacy
Ease of Access
Xperience
Incentive
Variety
Organisation
Laughs
Emergency management organisations would benefit from a greater understanding of what needs
to be done to offer young people better opportunities for engagement.
Objective
Emergency management organisations have an improved practical understanding of how to
engage and retain young volunteers which can be applied across all jurisdictions.
Enhanced youth participation in emergency management volunteering.
Indicator
National youth engagement strategy developed. .
1
http://www.un.org/esa/socdev/unyin/qanda.htm#1 The UN definition of youth is 15 – 24.
2
Source: Involving Young People in Volunteering Information Sheet. Volunteering Australia, 2003. (Note: ABS do
not collect information about people under 18 years of age.)
3
http://www.ivr.org.uk/researchbulletins/bulletins/what-young-people-want-from-volunteering-.htm (accessed 11
June 2009)
16
• Universities
• Bushfire Cooperative Research Centre
• Youth advisory bodies (to ensure input from young people)
• Relevant Commonwealth and State Government Departments
Way Forward
Develop a national strategy to enhance youth engagement and participation in the emergency
management volunteer sector. This work to be undertaken in conjunction with, but not limited to,
the organisations listed in ‘Partnership Opportunities’.
Timing
Short to medium term (6-12 months).
At AEMC discretion. Subsequent financial implications of any ongoing youth development
programs will depend on initiatives included in final agreed strategy.
Status
17
MEDIUM PRIORITY
Action 7: Review grants programs to strengthen focus on volunteer attraction,
support and retention

Some grants programs that aim to benefit emergency management volunteers have included in
their criteria that funding must attract, support and retain emergency management volunteers.
Grants programs that support emergency management volunteers are available from a variety of
sources, including Commonwealth and State Governments. Each grants program sets its own
criteria and has its own focus areas based on the brief of the source of funding.
The rationale of this action is to strengthen the eligibility criteria and the focus areas of grants
programs to concentrate on attracting, supporting and retaining emergency management
volunteers.
Objective
Grants programs have an established criteria to promote the recruitment, retention and support of
emergency management volunteers.
All relevant grants programs are identified and guidelines reviewed to strengthen the focus on
volunteer attraction, support and retention.
Indicator
Number of grants programs that include criteria to promote volunteers is increased.
• Relevant Commonwealth and State Government Departments.
• Funding bodies.
Way Forward
Develop a strategy to increase the focus on volunteer attraction, support and retention within
relevant grants programs. This work to be undertaken in conjunction with, but not limited to, the
organisations listed in ‘Partnership Opportunities’.
Timing
In-kind contribution from AEMC working group members to undertake this task.
Status
18
MEDIUM PRIORITY
Action 8: Address legal issues that may inhibit the attraction and retention of
emergency management volunteers

The Bushfire CRC in their report ‘Volunteer Recruitment and Retention’ (2004), state that
anecdotal evidence suggests that volunteers are becoming increasingly concerned about the
prospect of some type of legal action being taken against them, as individuals, as a result of their
volunteer activities. A number of other academics as well as peak volunteer organisations support
this position and experience tells us that this issue will become more and more relevant in a society
that is becoming increasingly litigious. It is reasonable to conclude that this will inhibit the
attraction and retention of volunteers into the future.
At present, many emergency service organisations have their own legislation that offers some sort
of protection from liability to its volunteers. Each State also has its own legislation that protects
volunteers from personal civil liability in respect to an act or omission done or made by a volunteer
in good faith when doing community work (see below):
• NSW Civil Liability Act 2002

• ACT Civil Wrongs Act 2002
• NT Personal Injuries (Liabilities and Damages) Act
• SA Volunteer Protection Act 2001
• TAS Civil Liability Act 2002
• VIC Wrongs and Other Acts (Public Liability Insurance Reform) Act 2002
• WA Volunteers (Protection from Liability) Act 2002
• QLD Civil Liability Act 2003
Notwithstanding, insurance and liability issues are complex and confusing. There is a need to, at
the very least, establish some consistency amongst the emergency services sector in regard to the
insurance and liability provisions that are extended to volunteers as well as simplify the
information available to stakeholders.
Furthermore, at present the onus is on the volunteer to prove that they acted in ‘good faith’ if legal
action is taken against them (as opposed to the litigant proving a lack of good faith).
Objective
A more consistent and simplified approach to insurance and liability provisions extended to
emergency service volunteers; with a view to lessening the uncertainty for volunteers on issues
relating to coverage and protection.
A greater consistency amongst the emergency management sector in relation to volunteer
insurance and liability provisions.
Indicator
Comparative review of insurance and liability protection provisions relating to volunteers
undertaken.
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• Australasian Fire and Emergency Service Authorities Council (AFAC) are currently
undertaking research in relation to insurance and liability issues, including ‘acting in good
faith’ and ‘onus of proof’.
• NSW are undertaking a review of the State Emergency and Rescue Management Act – they
are also looking at this issue.
• Insurance and liability issues / complexities are not exclusive to the emergency services
sector. NGO’s, state and national peak volunteer organisations may have already
established some principles in this regard or conducted some research.
• Senator Ursula Stephens, Parliamentary Secretary for Social Inclusion and the Voluntary
Sector, has established a National Compact Joint Taskforce to commence drafting a new
compact between the Australian Government and the voluntary (third sector). The
taskforce comprises of 18 members from non-profit organisations, Commonwealth
Government agencies, local government and the Australian Council of Trade Unions. The
role of the taskforce is to develop a framework for the compact containing key priorities
and principles for the relationship between Government and non profit organisations. It is
probable that this Taskforce will look at issues relating to volunteer insurance and liability
provisions.
Way Forward
Undertake a comparative review of insurance and legal protections for emergency management
volunteers in the different jurisdictions with a view to identifying any legal issues that may inhibit
their attraction and retention. Work through AEMC to improve national consistency in the level of
coverage and protection afforded and alleviate any volunteer concerns in relation to this.
This work to be undertaken in conjunction with, but not limited to, the organisations listed in
Timing
At AEMC discretion.
Due to the complexities related to insurances and liabilities, there will be a requirement for legal
expertise/resources in order to deliver on this action.
Status
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LOWER PRIORITY
Action 9: Harness the willingness and resources of spontaneous volunteers

Potential volunteers are now less likely to have the time and inclination to make a regular, ongoing
commitment to a volunteering organisation. For this reason, when disaster strikes, organisations
may find themselves short of trained, accredited personnel. However, it is a well-established
phenomenon that people converge towards disaster scenes, often wanting to assist with response
and recovery. These people have been termed spontaneous or emergent volunteers, and they can
fill skills and personnel gaps within the responding organisations.
If not properly managed, spontaneous volunteers can expose themselves and others to significant
risk. The public will almost always be first responders to a disaster site, and may be resistant to
being displaced by emergency services organisations. Furthermore, there is a tendency by
professional responders to view these volunteers as a crowd control issue rather than a resource.
Non-management of spontaneous volunteers is especially problematic in events such as natural
disasters where it is impossible to enforce a perimeter around the affected area. If turned away,
these people may develop their own ways of helping, which may endanger themselves and others,
and interfere with the coordinated rescue/recovery efforts. It is therefore important that
spontaneous volunteers are assimilated into a responding organisation for the purposes of
coordination, workplace health and safety, and legal liability.
However, assimilating spontaneous volunteers also poses considerable logistical difficulty. Such
people need to be screened, processed, briefed, credentialed and deployed to appropriate volunteer
roles. Most emergency services organisations do not have a plan in place to guide this process,
and considerable energy can be wasted at the disaster site establishing ad hoc arrangements. It is
especially difficult where personnel are needed to perform roles such as first aid or operation of
heavy machinery to ensure that qualifications are checked and unqualified people are not tasked
with these roles. Provision of appropriate supervision of volunteers can also be challenging.
Consideration should therefore be given to developing national guidelines to harness the
willingness and resources of spontaneous volunteers.
Objective
Emergency management organisations develop collaborative, whole-of-sector arrangements for
spontaneous emergency services volunteers to effectively utilise this valuable resource.
Improved utilisation and management of spontaneous volunteers in the event of a disaster
Indicator
Numbers of volunteers increased to effectively manage disaster responses
• The Australian Red Cross and other not-for-profit organisations involved in
volunteering and/or rescue and recovery.
• The Department of Families, Housing, Community Services and Indigenous
Affairs, which has convened a Managing Spontaneous Volunteers Working Group.
21
• State Government agencies involved in disaster response and recovery.

• Volunteering Australia and state peak volunteering bodies.
• The New Zealand Ministry of Civil Defence & Emergency Management has
developed a best practice guide (BPG3/06) which could assist in the development
of guidelines for Australian emergency management organisations.
Way Forward
Develop national guidelines to harness the resources of spontaneous volunteers. Building on work
currently being undertaken by the Department of Families, Housing, Community Services and
Indigenous Affairs in relation to the management of spontaneous volunteers, this project would
explore the next step of seeking to harness the assistance offered by such volunteers into a more
regular volunteering commitment. This work to be undertaken in conjunction with, but not limited
to, the organisations listed in ‘Partnership Opportunities’.
Timing
Long term and ongoing: continuous assessment and improvement of the effectiveness of the
spontaneous volunteer guidelines
At AEMC discretion.
Status
22
LOWER PRIORITY
Action 10: Promote corporate volunteering in the emergency management sector

Research has identified the extent to which volunteering impinges upon work commitments, with
volunteers withdrawing their services because of work demands, and potential volunteers lacking
personal time to commit to additional unpaid activities. While some employers are prepared to
release staff in work hours for voluntary activities in the emergency services, this tends to occur as
individually negotiated ad hoc arrangements.
This approach to the volunteer/work nexus differs markedly from a planned, coordinated and
strategic approach where a business alliance between the employer and the voluntary service is
developed.
Within the corporate environment today, traditional forms of philanthropy are giving way to
strategic involvement in the funding, design and implementation of community-based programs,
often through the skills and time that their staff can volunteer through formal programs. Models of
corporate volunteering have been developed that include loaning personnel to prepare business
plans, designing promotional material, implementing accounting and auditing procedures,
identifying training needs, designing and undertaking evaluations, as well as direct ‘hands on’
work.
While it is uncertain as to the level of corporate volunteer programs that currently partner with
emergency management services, the development of such programs has the potential to create
significant future growth and provide ‘win-win’ scenarios for both the corporations and the
volunteer emergency management services. Skill-based volunteering allows employees to transfer
their professional skills in broader ways than direct emergency responding, and emergency
services benefit from the application of business methods and increased business acumen.
An opportunity for emergency management services to be on the front foot with corporate
volunteering has presented itself through the National Employment Standards which take effect
from 1 January 2010. These Standards allow employees to be absent from work to engage in
prescribed community activities such as ‘jury service and emergency service duties’. By giving
emergency services as an example, their visibility for volunteering is increased. It is timely
therefore for emergency management services to develop partnerships with businesses for
sustainable and mutually beneficial corporate volunteer programs.
Objective
Increased engagement by the corporate sector in emergency management volunteering.
Partnerships are developed with businesses for sustainable and mutually beneficial corporate
volunteer programs.
Indicator
Development of a series of national seminars to promote corporate volunteering in the emergency
management sector.
23
• Relevant Commonwealth and State Government Agencies
Way Forward
Develop and deliver a national seminar series to promote the opportunities and benefits offered by
corporate volunteering to the emergency management sector. The seminar series to showcase
successful models and partnerships with private industry that may be applied in emergency
management. This work to be undertaken in conjunction with, but not limited to, the organisations
listed in ‘Partnership Opportunities’.
Timing
In-kind contribution from AEMC working group members to develop and deliver the seminar
series. Associated event management costs.
Status
24
LOWER PRIORITY
Action 11: Improve collection, analysis and dissemination of research and
information on emergency management volunteer issues

In recent years, research into the needs, interests and motivations of emergency management
volunteers has grown exponentially. Research has been commissioned and undertaken at local,
state and national levels in an ad hoc manner.
When it comes to managing volunteers and understanding issues being faced by emergency
management volunteers, emergency management organisations can often make policy and
organisational decisions based on little more than anecdotal evidence. Decision making would be
more effective if based on issues that are well researched with the research easily accessible to all
those wishing to access it.
Potential exists for gaining a national picture of key volunteer issues, such as why people join, stay
and leave, rather than ad hoc research being carried out in particular jurisdictions.
At present, the Bushfire Cooperative Research Centre (BCRC) Project D3, Volunteerism acts as a
national centre for research into factors affecting the sustainability of volunteer fire-fighters. The
CRC Volunteerism Project, based at La Trobe University, has been at “arms length” from the
political forces perceived to affect volunteer fire agencies. The relative independence and
scientific discipline of the University context has facilitated more potent research while
minimising political damage to the fire agencies.
The partnership of the agencies through the CRC has maintained the relevance of the research and
fostered national collaboration among the agencies. The CRC Volunteerism project has reported
at three levels: (1) in reports prepared for agency management; (2) in papers for the relevant
scientific communities; and (3) with accessible summary reports for general agency personnel. A
research team for all emergency management volunteers, based on the Bushfire Cooperative
Research Centre model, could assist agencies to maximise their research returns through sustained
scientific rigour and national collaboration. The team could build on the library of reports and
scientific publications already created by the BCRC Volunteerism project over the past 5 years.
The Emergency Management Australia Institute (EMAI) delivers an extensive library service and
consideration could be given to using this as a means of dissemination of information on volunteer
issues.
Objective
Emergency management organisations have access to research and other relevant information on
volunteering issues, particularly as they impact on the emergency management sector.
Improved access to relevant research and information leading to improved policy development and
best practice approaches in the emergency management sector.
25
Indicator
Development of a national means of collecting, analysing and disseminating research and
information on emergency management volunteer issues.
• Bushfire Cooperative Research Centre
• Emergency Management Australia Institute
• Universities
• Relevant Government Departments
• Not-for-Profit Organisations involved in emergency management
Way Forward
Develop a national information portal, clearinghouse or other means of collecting, analysing and
disseminating research and information on emergency management volunteer issues. This work to
be undertaken in conjunction with, but not limited to, the organisations listed in ‘Partnership
Opportunities’.
Timing
At AEMC discretion. Subsequent financial implications associated with ongoing maintenance will
depend on final agreed model.
Status
26

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VOLUNTEER ACTION PLAN REFERENCE

NATIONAL ACTION PLAN FOR

Endorsed by the Ministerial Council for Police and Emergency Management –

National Action Plan for the Attraction, Support and Retention of

DEVELOPMENT AND IMPLEMENTATION

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

Action 2: Enhance leadership training to support emergency management volunteers

Action 3: Develop alternative learning approaches for emergency management

Action 4: Enhance national recognition of employer support for emergency

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

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

Action 6: Enhance youth participation in emergency management volunteering

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

Action 10: Promote corporate volunteering in the emergency management sector

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

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

Background and rationale

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

Background and rationale

• Technology based partnerships could be formed between Information Communication

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

Background and rationale

Background and rationale

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

Background and rationale

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

Background and rationale

Background and rationale

• NSW Civil Liability Act 2002

Background and rationale

• State Government agencies involved in disaster response and recovery.

Background and rationale

Background and rationale

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