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  1. List the factors for and against utilization of spontaneous volunteers who arrive at a disaster scene from the perspective of the Incident Commander. What are the responsibilities of the Incident Commander to the volunteers accepted into the response?
  2. Describe the role of the Public Information Officer in media relations and reporting during an incident. Why is this role so crucial? How can the PIO beneficially utilize the media for Risk Communication activities during the event? What pre-event activities lead to success in these relationships?
  3. Provide a synopsis of the Volunteer Protection Act. What protection does this act provide? Any major omissions in coverage from the volunteer’s perspective? Does participation in a NVOAD agency provide any benefit to the volunteer? Any benefit to the Incident Command organization?

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Managing Spontaneous Volunteers in Times of Disaster: The Synergy of Structure and Good Intentions Created and printed with the generous support of The UPS Foundation. This publication is offered as a basis for developing a national strategy on working with unaffiliated volunteers and is based on an analysis of effective practices and models. It is an outgrowth of an earlier publication, Preventing a Disaster Within the Disaster: The Effective Use and Management of Unaffiliated Volunteers, which outlined the challenges involved in working with unaffiliated volunteers and offered recommendations on how to develop a national strategy. >> Quick Reference Guide The Synergy of Structure and Good Intentions 2 Managing Unaffiliated Volunteers – National Principles 4 Managing Unaffiliated Volunteers – Concepts Of Operation 6 Mitigation Emergency Management Contact Information 7 Preparedness State Plan Examples Volunteer Reception Center “Go Kit” Preparedness Checklist Communication Tools 8 8 9 10 11 Response Volunteer Contact Information 12 13 Recovery 14 National VOAD Volunteer Management Committee Members 16 Glossary of Terms 17 MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 1 Managing Spontaneous Volunteers in Times of Disaster: >> The Synergy of Structure and Good Intentions When disaster – natural or man-made – strikes a community, specific emergency management and nonprofit organizations automatically respond according to a pre-established plan. Each of these designated organizations has a specific role to play in ensuring an effective response to and recovery from the disaster’s devastation. Yet one element within the present system continues to pose a challenge: spontaneous, unaffiliated volunteers. Spontaneous, unaffiliated volunteers – our neighbors and ordinary citizens – often arrive on-site at a disaster ready to help. Yet because they are not associated with any part of the existing emergency management response system, their offers of help are often underutilized and even problematic to professional responders. The paradox is clear: people’s willingness to volunteer versus the system’s capacity to utilize them effectively. The events of September 11 dramatically illustrated the need for better planning in this arena, and the issue of unaffiliated volunteers began receiving increased attention. In April 2002, UPS, the Points of Light Foundation & Volunteer Center National Network, and FEMA (Federal Emergency Management Agency) convened a National Leadership Forum on Disaster Volunteerism. The Forum brought together leadership and operations experts from the volunteer and emergency management communities, Volunteer Centers, firefighters, local government emergency management staff, and those with years of hands-on experience. Participants representing over 45 organizations identified challenges and opportunities associated with disaster volunteering; developed preliminary recommendations and action steps for addressing the challenges of spontaneous volunteers; and secured commitment from participating organizations to work toward the recommendations proposed. The Forum’s initial work and findings were important first steps. Quite evident, however, was the need for additional tools, training and resources to implement recommendations at the local level. In the spring of 2003, the National Voluntary Organizations Active in Disaster (NVOAD) coalition established a Volunteer Management Committee to continue this work. The committee consists of representatives with hands-on experience in emergency management and volunteer management. Members were chosen for their broad expertise as well as their ability to secure a commitment of resources by their organizations towards implementing the recommendations. The committee is staffed by the Points of Light Foundation and funded by a grant from The UPS Foundation. 2 MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS The committee began the arduous task of compiling effective practices and models for emergency management planning and implementation in the area of unaffiliated volunteers. Modeled after the successful National Donations Management Strategy, the committee has developed draft unifying Principles on the Management of Unaffiliated Volunteers and a companion Concepts of Operation. These documents are intended to serve as a basis for a national strategy that fundamentally recognizes the extraordinary resource volunteers can be in an emergency management system structured to integrate and fully utilize their contributions. Given the limited resources available at the federal, state, and local levels, the successful integration of citizen involvement in an emergency management setting is imperative to prepare for, respond to, recover from, and mitigate the effects of disasters in our communities. Success, however, will require new levels of cooperation and commitment to partnership among the voluntary sector, professional first-responders, and all levels of government. While this may be a challenging goal, the priority and long-term value of this work cannot be denied. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 3 Managing Unaffiliated Volunteers >> National Principles The management of unaffiliated, often spontaneous, volunteers in times of emergency is guided by the following principles and values: 1. Volunteering and Community Life Volunteering is a valuable part of every healthy community. Volunteers come from all segments of society and often provide essential services. Everyone has the potential to contribute strength and resources in times of emergency. 2. The Value of Affiliation Ideally, all volunteers should be affiliated with an established organization and trained for specific disaster response activities. However, the spontaneous nature of individual volunteering is inevitable; therefore it must be anticipated, planned for, and managed. 3. Volunteer Involvement in the Four Phases There are valuable and appropriate roles for unaffiliated spontaneous volunteers in mitigation, preparedness, response, and recovery – as well as in other areas of community need. The response phase provides an opportunity to direct volunteers toward longer-term affiliation and community involvement. 4. Management Systems Volunteers are a valuable resource when they are trained, assigned, and supervised within established emergency management systems. Similar to donations management, an essential element of every emergency management plan is the clear designation of responsibility for the on-site coordination of unaffiliated volunteers. The Volunteer Coordination Team (VCT) is the mechanism for ensuring the effective utilization of this human resource. 5. Shared Responsibility The mobilization, management, and support of volunteers is primarily a responsibility of local government and nonprofit sector agencies, with support from the state level. Specialized planning, information sharing, and a management structure are necessary to coordinate efforts and maximize the benefits of volunteer involvement. 6. Volunteer Expectations Volunteers are successful participants in emergency management systems when they are flexible, self-sufficient, aware of risks, and willing to be coordinated by local emergency management experts. Volunteers must accept the obligation to “do no harm.” 7. The Impact on Volunteers The priority of volunteer activity is assistance to others. When this spontaneous activity is well managed, it also positively affects the volunteers themselves and thus contributes to the healing process of both individuals and the larger community. 4 MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 8. Build on Existing Capacity All communities include individuals and organizations that know how to mobilize and involve volunteers effectively. Emergency management experts and VOAD partners are encouraged to identify and utilize all existing capacity for integrating unaffiliated volunteers. 9. Information Management Clear, consistent, and timely communication is essential to successful management of unaffiliated volunteers. A variety of opportunities and messages should be utilized in order to educate the public, minimize confusion, and clarify expectations. 10. Consistent Terminology When referring to volunteer involvement in emergency management, it is helpful to use consistent terminology. The following terms and definitions are recommended: Affiliated volunteers are attached to a recognized voluntary or nonprofit organization and are trained for specific disaster response activities. Their relationship with the organization precedes the immediate disaster, and they are invited by that organization to become involved in a particular aspect of emergency management. Unaffiliated volunteers are not part of a recognized voluntary agency and often have no formal training in emergency response. They are not officially invited to become involved but are motivated by a sudden desire to help others in times of trouble. They come with a variety of skills. They may come from within the affected area or from outside the area. (Also known as: “convergent,” “emergent,” “walk-in,” or “spontaneous.”) NOTE: These principles are valid and applicable for volunteers deployed both within the United States and internationally. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 5 Managing Unaffiliated Volunteers >> Concepts of Operation The Volunteer Management Committee of the National Voluntary Organizations Active in Disaster (NVOAD) developed these concepts of operation to serve as guidance in planning for and managing unaffiliated volunteers during all phases of emergency management. The intent is to provide recommendations on structure and process based on best practices in the field, while at the same time allowing flexibility for adaptation to specific local communities and various types of disasters. These recommendations are offered as a framework upon which to build local emergency management strategies related to unaffiliated volunteers. This booklet is meant to be user-friendly. Helpful checklists are included for the use of readers. >> Voluntary Organization Information Use the following Web sites to find local voluntary organization information 6 ■ Citizen Corps Councils — www.citizencorps.gov/councils/ ■ Local VOAD listing — ■ Volunteer Centers — www.pointsoflight.org/centers/find_center.cfm www.nvoad.org/membersdb.php?members=State MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS >> Mitigation ■ Identify existing local volunteer coordination processes and protocols. ■ Determine priority needs and roles prior to an event through outreach to organizations that can utilize unaffiliated volunteers. Identify potential volunteer opportunities to expedite community involvement following a disaster. ■ Review local and state hazard analysis and collect community demographic information for implications regarding the management of unaffiliated volunteers. ■ Develop relationships with local, state, and national Voluntary Organizations Active in Disaster (VOAD) member agencies and/or with groups with regional or national capabilities to manage unaffiliated volunteers during disaster operations. ■ Emphasize the importance of collaboration in pre-disaster planning. Encourage involvement with existing community coalitions such as Community Organizations Active in Disaster (COADs) and Citizen Corps Councils. ■ Research existing volunteer liability issues and laws that affect unaffiliated volunteer utilization. Encourage agencies and organizations that will receive unaffiliated volunteers to clarify their limits of liability protection. ■ Develop media and public education campaigns that encourage people to undertake pre-involvement and affiliation with existing voluntary organizations. Develop standardized public education and media messages to use before, during, and after disaster events. Stress the need to avoid a “disaster within the disaster” with regard to the involvement of unaffiliated volunteers. Establish relationships with ethnically diverse media outlets and community leaders to ensure messages are designed to reach all segments of the community. ■ Utilize Citizen Corps efforts, where appropriate, to create optimum conditions for volunteer involvement. ■ Utilize resources that support volunteering such as State Service Commissions, state Associations of Volunteer Centers, networks of volunteer administrators, and Voluntary Organizations Active in Disaster (VOAD) member agencies to create awareness and recognition of the role of volunteers in homeland security and emergency management. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 7 >> Preparedness ■ Write a plan for the function of Unaffiliated Volunteer Management and include it in the local or state emergency operations plan as an Appendix. ■ Form a Volunteer Coordination Team (VCT) to include representatives from the lead organization for the function of Unaffiliated Volunteer Management. (The VCT can be integrated into an EOC organizational structure, and, if possible, include the VCT component in local ICS planning and preparedness). Representatives from other partner and stakeholder organizations — such as emergency management, Community Emergency Response Teams (CERT), Retired Senior Volunteer (RSVP), AmeriCorps/VISTA programs, local churches, and civic organizations — should also be included. ■ Ensure the VCT is a component of the COAD, Citizen Corps Council, local VOAD, or other disaster collaborations. ■ Identify and train a state-level lead for unaffiliated volunteer management utilizing existing sources of expertise such as the State Office of Volunteerism, the Corporation for National & Community Service (CNCS), and the state Association of Volunteer Centers. These state-level resources should support community coordination efforts and be prepared to support a local unaffiliated volunteer management function in a time of disaster. ■ Encourage formation of disaster coalitions such as Citizen Corps Councils, COADs, or local VOADs to promote interagency coordination, communication, collaboration, and cooperation. ■ Develop relationships and exchange information among first responders, emergency management personnel, and voluntary organization staff. ■ Identify all potential partners and build cooperative relationships with organizations such as: Universities Civic Associations Voluntary Agencies Youth Groups Foundations Senior Programs Schools Faith-based Organizations National Service Programs Ethnic Associations Corporations/Businesses Hospitals Neighborhood Groups Special Needs Groups Professionals in Volunteer Coordination >> State Plan Examples To view examples of state plans that include Unaffiliated Volunteer Management, visit www.nemaweb.org/donations_management/index.html. 8 MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS ■ Build a Volunteer Reception Center “Go Kit.” >> Volunteer Reception Center “Go Kit” “Go Kits” include office supplies, forms, lists, maps, special equipment, etc. Every “Go Kit” should include processes, tools, and forms that support the following functions: ■ Registration / Orientation ■ Interviews ■ Data Entry and Coordination ■ ■ ■ ■ Job Training (this may be done at the VRC, or by the end-user organization) ■ Phone Bank Volunteer Identification (issued on behalf of receiving agency, if appropriate) ■ Facilities Management (supply area, break areas, waiting room) ■ Logistics/Supplies Safety Training ■ Public Information ■ Runners Prepare to establish a Volunteer Reception Center (VRC) where large numbers of volunteers can be efficiently processed and referred to organizations who are in need of services. Designate an entity (for example, a local Volunteer Center or team of experienced volunteer resource managers) to manage VRC activities. Identify potential sites for the VRC and develop contingency plans in the event that pre-identified sites are unavailable. Some considerations in selecting a site include: the provision of adequate space for all VRC functions, availability of parking, accessibility, and proximity to the affected area. Determine what organization is responsible for obtaining the site and paying incurred costs (such as rent, maintenance, damages, and utilities) following a disaster. Develop forms and key documents for the VRC such as: Volunteer Instructions Work Site Sign-in/Sign-out Record Disaster Volunteer Registration Form with Release of Liability VRC Volunteer Sign-in/Sign-out Safety Orientation Checklist Coordinating Agency Employee Sign-in/Sign-out Disaster Volunteer Referral Expenses Incurred by Coordinating Agency Role Descriptions MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 9 >> Preparedness (continued) Develop streamlined registration, screening, and interviewing procedures for unaffiliated volunteers that include: Database that catalogs needed skills Information about individual volunteers (for example: skills, interests, availability, geographic location) Contact information for voluntary organizations Approximate number of volunteers needed to perform tasks Compatibility of relevant computer systems Back-up plan for power failures and portability Tasks, roles, and time commitment requirements for individuals and groups of volunteers Train paid staff and key volunteers to set up the VRC. Develop procedures for documenting pertinent activities, training, expenses, volunteer hours, dollar value of donated time, skills, and success stories. Establish agreements with local or state emergency management agencies regarding expense reimbursement and required documentation. Develop methods to evaluate volunteers’ experience — both process and outcome — from organizations that utilized referred volunteers, emergency management staff, and from volunteers themselves. >> Preparedness Checklist ■ Write a Plan ■ Form Volunteer Coordination Team ■ Ensure VCT Is Component of Disaster Collaborations ■ Identify and Train State-Level Lead ■ Build a Volunteer Reception Center “Go Kit” ■ Designate Entity to Manage Groups of Unaffiliated Volunteers ■ Review Insurance Policies ■ Develop Communication Tools ■ Conduct Trainings and Exercises Build Capacity of Volunteer Organizations ■ Develop Relationships/Exchange Information ■ ■ Identify Potential Partners ■ Develop Mutual Aid Systems Prepare to Establish a Volunteer Reception Center ■ Develop “Shut Down” Plan ■ 10 Encourage Formation of Disaster Coalitions ■ MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS >> Communications Tools Consider keeping on hand templates of the following communication tools: ■ ■ Pre-scripted News Releases (that provide information regarding volunteer opportunities, needed skills, and how to volunteer) Affiliation Information (for individuals on how and where to affiliate) ■ Website, List-serves, Toll-free Hotlines ■ Media Outreach Strategy (that targets all segments of the community, including culturally and linguistically diverse populations) ■ Designate an entity to manage groups of unaffiliated volunteers in coordination with the VRC. Develop a process for registering and deploying these groups with appropriate attention paid to their leadership structure, support needs, availability, transportation, etc. ■ Review applicable liability and insurance policies and determine liability authority re g a rding the engagement of volunteers. Ensure that organizations accepting re f e rred volunteers are aware of applicable state liability laws and insurance issues. ■ Develop a variety of communication tools (see table above). ■ Conduct training and exercises for managing unaffiliated volunteers. Work with community partners and emergency management agencies to expand community exercises to include managers of unaffiliated volunteers. ■ Build the capacity of voluntary organizations to absorb and successfully integrate unaff i liated volunteers. Develop tools and strategies for creating alternative roles and management stru c t u res appropriate for emerg e n c y, and short - t e rm implementation. ■ Develop mutual aid systems (like the Emergency Management Assistance Compact) and/or regional support for a VRC and the management of unaffiliated volunteers. Communities and/or states should consider incorporating VRCs and the function of U n a ffiliated Volunteer Management re s o u rces into deployable teams in order to assist jurisdictions in need and to develop capacity and experience. ■ Develop a “shut down” or demobilization plan for how the VRC will be phased out when it is no longer needed. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 11 >> Response ■ Implement the Unaffiliated Volunteer Management Plan. ■ Activate the Volunteer Coordination Team (VCT). Use pre-identified and trained staff to fill key roles. The VCT will function within the Emergency Operations Center (EOC) as the primary coordination cell for unaffiliated volunteers. ■ Activate the Volunteer Reception Center (VRC) to serve as the coordination point for unaffiliated volunteers, develop partnerships with community and responding agencies, identify volunteer opportunities, and fill staffing needs. Operational considerations include the following steps: Implement a plan to register and place unaffiliated volunteers. Implement a process to determine volunteers’ skills, interests, and ability to do the assigned work. Identify organizations’ needs and volunteer opportunities. Develop or identify opportunities for volunteer groups as well as individuals. As needed, do targeted recruiting of volunteers to fill positions. Refer unaffiliated volunteers to appropriate response agencies after initial screening. Ensure that receiving organizations are aware of their responsibility for any additional credentialing or identification procedures. ■ Provide information on available medical and mental health services to ensure the well-being of all workers. Provide security within the VRC and other facilities where volunteer management is taking place. Provide a hazard-free work environment. Evaluate process and outcomes by all stakeholders (VCT members, emergency management agencies, recipient agencies, and unaffiliated volunteers). Recognize the efforts of individual volunteers and the community. Address communication needs: Coordinate with the Public Information Officer at the Emergency Operation Center (EOC). Utilize pre-developed public messages about how and where to volunteer. Let all segments of the community know what resources are needed during the response and recovery phases of the disaster. Use a flexible outreach strategy to maximize media and public interest generated by the disaster. Implement the pre-developed media plan. Ensure that messages to the media and public are standardized and consistent. Provide ongoing contact with each volunteer after they have completed their service if they remain unaffiliated. Provide information on other opportunities, organizations, and the benefits of affiliating before a disaster. Activate a dedicated toll-free number, or use other community resources such as 2-1-1. Ensure that all stakeholders (such as voluntary organizations, community-based groups, and government) have access to current information on volunteer recruitment and opportunities. Utilize available technologies, such as Web sites and listservs. Ensure that receiving organizations are aware of their responsibility for any additional credentialing or identification procedures. 12 MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS >> Volunteer Contact Informatiom When collecting information on volunteers, consider tracking the following types of data: ■ Name ■ Address ■ Phone/Fax/E-Mail ■ Availability ■ Skills (languages, communications, computer, counseling, heavy equipment operator, medical, etc.) ■ Previous Emergency Training/Certification ■ Task Preferences (willing to provide animal care, animal rescue, child care, clean-up, damage assessment, data entry, driving, etc.) ■ Geographic Area Preferences ■ Phase of Emergency (skills and interests are most suited to use in mitigation/preparedness/response/recovery) ■ If necessary, activate state or regional mutual aid agreements to support the Volunteer Coordination Team (VCT) or the Volunteer Reception Center (VRC). ■ Maintain a database of volunteers with special skills for use during the recovery phase. The VCT should promote close coordination with long-term recovery groups to identify new or ongoing opportunities. Ensure the continuity of service to stakeholders and volunteers as the transition from response to recovery is completed. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 13 >> Recovery ■ Strengthen and maintain the long-term activation of the Volunteer Coordination Team (VCT) in support of the recovery operation. Provide for the continuation of services offered to stakeholders and unaffiliated volunteers during the response phase. Tasks of the VCT during recovery may include: Activate a broad-based volunteer referral system that includes organizations involved in recovery and those with which volunteers can affiliate. Coordinate with agencies to update, develop, and share hard copy and web-based portfolios of prospective volunteer roles and skills needed for recovery. 14 Provide support to long-term recovery organizations by leveraging volunteers from response to the recovery phase, as appropriate. As needed, develop volunteer roles and encourage participation in mitigation and preparedness activities. Identify roles for groups of volunteers, not just individuals. ■ Review applicable liability and insurance policies, and determine liability authority, regarding the engagement of volunteers. Ensure organizations accepting referred volunteers are aware of applicable state liability laws and insurance issues. ■ Provide stakeholders with database access, screening, and other ongoing support. ■ Ensure the availability of services for volunteers, including counseling, operational debriefing, health screening, or mental health. MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS ■ Share resources and pertinent information with agencies utilizing unaffiliated volunteers. Examples of helpful information are: Psychology of volunteerism Reasons to affiliate Template for messages Motivation techniques ■ Coordinate and liaise with various groups, organizations, and government programs to secure funds, grants, and other resources. In addition to accessing traditional voluntary organizations as resources, VCT members might acquire resources through the Corporation for National and Community Service, Citizen Corps, The U.S. Department of Labor National Emergency Grants (NEG), Workforce Development, and the Hazard Mitigation Grant Program. One example of utilizing the resources of nontraditional voluntary organizations might be hiring volunteer coordination specialists for long-term recovery using Department of Labor emergency grants. ■ Capture and document important facts, such as the dollar value of unaffiliated volunteers, success stories, and special activities. Utilize photographs, print and video stories from the media, and feedback from organizations. ■ Collect information from volunteers about their experience. Use this input for evaluation and future planning. ■ Recognize and thank volunteers for their service to the community. ■ Follow-up with volunteers to promote long-term retention. Encourage affiliation with organizations that provide opportunities matching volunteers’ skills and interests. ■ Evaluate important functions such as the engagement of volunteers, execution of tasks, and committee functionality. Ensure that recommendations and revisions are made to the Unaffiliated Volunteer Management Plan. ■ Demobilize the Unaffiliated Volunteer Management function when conditions warrant. 15 These Principles and Concepts were developed by the Volunteer Management Committee of National Voluntary Organizations Active in Disaster (NVOAD). They serve as the philosophical framework for the effective management of unaffiliated volunteers during all phases of emergency management. For further information, please contact: DisasterVolunteering@PointsofLight.org National VOAD Volunteer Management Committee Members Katie Campbell Chair Association for Volunteer Administration (AVA) Representative Alex Amparo Volunteer Florida Bill Malfara American Red Cross National Headquarters Bruce Bailey Safety Service Corps Americorps State Program Karen Marsh Office of Citizen Corps Department of Homeland Security Suzanne Brooks Center for International Disaster Information Ande Miller National Voluntary Organizations Active in Disaster Ben Curran Recovery Division Department of Homeland Security Ollie Davidson Private Public Partnerships for Disaster Reduction Counterpart International/Humane Society of the US John Gavin Organizational Development Consultant Dante Gliniecki, State of Missouri State Emergency Management Agency Kathleen Henning (Kathee), CEM International Association for Emergency Management (IAEM) Representative 16 Susan Jensen Voluntary Agency Liaison FEMA Region V Cee Cee Molineaux Corporation for National and Community Service Dee Shukert Divisional Disaster Services Salvation Army Faye Stone North Carolina Commission on Volunteerism and Community Service Cheryl Tyiska National Organization for Victim Assistance Kristin Buckley Points of Light Foundation Miriam Parel Points of Light Foundation MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS Managing Spontaneous Volunteers in Times of Disaster: The Synergy of Structure and Good Intentions >> Glossary CERT: Community Emergency Response Teams CNCS: Corporation for National Community Service COAD: Community Organizations Active in Disaster EOC: Emergency Operations Center FEMA: Federal Emergency Management Agency ICS: Incident Command System NEG: National Emergency Grants NVOAD: National Voluntary Organizations Active in Disaster RSVP: Retired Senior Volunteer Program VCT: Volunteer Coordination Team VOAD: Voluntary Organizations Active in Disaster VRC: Volunteer Reception Center MANAGING SPONTANEOUS VOLUNTEERS IN TIMES OF DISASTER: THE SYNERGY OF STRUCTURE AND GOOD INTENTIONS 17 Points of Light Foundation & Volunteer Center National Network 1400 I Street, NW, Suite 800 Washington, DC 20005 www.PointsofLight.org/Disaster PUBLIC LAW 105–19—JUNE 18, 1997 VOLUNTEER PROTECTION ACT OF 1997 111 STAT. 218 PUBLIC LAW 105–19—JUNE 18, 1997 Public Law 105–19 105th Congress An Act June 18, 1997 [S. 543] Volunteer Protection Act of 1997. 42 USC 14501 note. 42 USC 14501. To provide certain protections to volunteers, nonprofit organizations, and governmental entities in lawsuits based on the activities of volunteers. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, SECTION 1. SHORT TITLE. This Act may be cited as the ‘‘Volunteer Protection Act of 1997’’. SEC. 2. FINDINGS AND PURPOSE. (a) FINDINGS.—The Congress finds and declares that— (1) the willingness of volunteers to offer their services is deterred by the potential for liability actions against them; (2) as a result, many nonprofit public and private organizations and governmental entities, including voluntary associations, social service agencies, educational institutions, and other civic programs, have been adversely affected by the withdrawal of volunteers from boards of directors and service in other capacities; (3) the contribution of these programs to their communities is thereby diminished, resulting in fewer and higher cost programs than would be obtainable if volunteers were participating; (4) because Federal funds are expended on useful and cost-effective social service programs, many of which are national in scope, depend heavily on volunteer participation, and represent some of the most successful public-private partnerships, protection of volunteerism through clarification and limitation of the personal liability risks assumed by the volunteer in connection with such participation is an appropriate subject for Federal legislation; (5) services and goods provided by volunteers and nonprofit organizations would often otherwise be provided by private entities that operate in interstate commerce; (6) due to high liability costs and unwarranted litigation costs, volunteers and nonprofit organizations face higher costs in purchasing insurance, through interstate insurance markets, to cover their activities; and (7) clarifying and limiting the liability risk assumed by volunteers is an appropriate subject for Federal legislation because— (A) of the national scope of the problems created by the legitimate fears of volunteers about frivolous, arbitrary, or capricious lawsuits; PUBLIC LAW 105–19—JUNE 18, 1997 111 STAT. 219 (B) the citizens of the United States depend on, and the Federal Government expends funds on, and provides tax exemptions and other consideration to, numerous social programs that depend on the services of volunteers; (C) it is in the interest of the Federal Government to encourage the continued operation of volunteer service organizations and contributions of volunteers because the Federal Government lacks the capacity to carry out all of the services provided by such organizations and volunteers; and (D)(i) liability reform for volunteers, will promote the free flow of goods and services, lessen burdens on interstate commerce and uphold constitutionally protected due process rights; and (ii) therefore, liability reform is an appropriate use of the powers contained in article 1, section 8, clause 3 of the United States Constitution, and the fourteenth amendment to the United States Constitution. (b) PURPOSE.—The purpose of this Act is to promote the interests of social service program beneficiaries and taxpayers and to sustain the availability of programs, nonprofit organizations, and governmental entities that depend on volunteer contributions by reforming the laws to provide certain protections from liability abuses related to volunteers serving nonprofit organizations and governmental entities. SEC. 3. PREEMPTION AND ELECTION OF STATE NONAPPLICABILITY. 42 USC 14502. (a) PREEMPTION.—This Act preempts the laws of any State to the extent that such laws are inconsistent with this Act, except that this Act shall not preempt any State law that provides additional protection from liability relating to volunteers or to any category of volunteers in the performance of services for a nonprofit organization or governmental entity. (b) ELECTION OF STATE REGARDING NONAPPLICABILITY.—This Act shall not apply to any civil action in a State court against a volunteer in which all parties are citizens of the State if such State enacts a statute in accordance with State requirements for enacting legislation— (1) citing the authority of this subsection; (2) declaring the election of such State that this Act shall not apply, as of a date certain, to such civil action in the State; and (3) containing no other provisions. SEC. 4. LIMITATION ON LIABILITY FOR VOLUNTEERS. (a) LIABILITY PROTECTION FOR VOLUNTEERS.—Except as provided in subsections (b) and (d), no volunteer of a nonprofit organization or governmental entity shall be liable for harm caused by an act or omission of the volunteer on behalf of the organization or entity if— (1) the volunteer was acting within the scope of the volunteer’s responsibilities in the nonprofit organization or governmental entity at the time of the act or omission; (2) if appropriate or required, the volunteer was properly licensed, certified, or authorized by the appropriate authorities for the activities or practice in the State in which the harm occurred, where the activities were or practice was undertaken 42 USC 14503. 111 STAT. 220 PUBLIC LAW 105–19—JUNE 18, 1997 within the scope of the volunteer’s responsibilities in the nonprofit organization or governmental entity; (3) the harm was not caused by willful or criminal misconduct, gross negligence, reckless misconduct, or a conscious, flagrant indifference to the rights or safety of the individual harmed by the volunteer; and (4) the harm was not caused by the volunteer operating a motor vehicle, vessel, aircraft, or other vehicle for which the State requires the operator or the owner of the vehicle, craft, or vessel to— (A) possess an operator’s license; or (B) maintain insurance. (b) CONCERNING RESPONSIBILITY OF VOLUNTEERS TO ORGANIZATIONS AND ENTITIES.—Nothing in this section shall be construed to affect any civil action brought by any nonprofit organization or any governmental entity against any volunteer of such organization or entity. (c) NO EFFECT ON LIABILITY OF ORGANIZATION OR ENTITY.— Nothing in this section shall be construed to affect the liability of any nonprofit organization or governmental entity with respect to harm caused to any person. (d) EXCEPTIONS TO VOLUNTEER LIABILITY PROTECTION.—If the laws of a State limit volunteer liability subject to one or more of the following conditions, such conditions shall not be construed as inconsistent with this section: (1) A State law that requires a nonprofit organization or governmental entity to adhere to risk management procedures, including mandatory training of volunteers. (2) A State law that makes the organization or entity liable for the acts or omissions of its volunteers to the same extent as an employer is liable for the acts or omissions of its employees. (3) A State law that makes a limitation of liability inapplicable if the civil action was brought by an officer of a State or local government pursuant to State or local law. (4) A State law that makes a limitation of liability applicable only if the nonprofit organization or governmental entity provides a financially secure source of recovery for individuals who suffer harm as a result of actions taken by a volunteer on behalf of the organization or entity. A financially secure source of recovery may be an insurance policy within specified limits, comparable coverage from a risk pooling mechanism, equivalent assets, or alternative arrangements that satisfy the State that the organization or entity will be able to pay for losses up to a specified amount. Separate standards for different types of liability exposure may be specified. (e) LIMITATION ON PUNITIVE DAMAGES BASED ON THE ACTIONS OF VOLUNTEERS.— (1) GENERAL RULE.—Punitive damages may not be awarded against a volunteer in an action brought for harm based on the action of a volunteer acting within the scope of the volunteer’s responsibilities to a nonprofit organization or governmental entity unless the claimant establishes by clear and convincing evidence that the harm was proximately caused by an action of such volunteer which constitutes willful or criminal misconduct, or a conscious, flagrant indifference to the rights or safety of the individual harmed. PUBLIC LAW 105–19—JUNE 18, 1997 111 STAT. 221 (2) CONSTRUCTION.—Paragraph (1) does not create a cause of action for punitive damages and does not preempt or supersede any Federal or State law to the extent that such law would further limit the award of punitive damages. (f) EXCEPTIONS TO LIMITATIONS ON LIABILITY.— (1) IN GENERAL.—The limitations on the liability of a volunteer under this Act shall not apply to any misconduct that— (A) constitutes a crime of violence (as that term is defined in section 16 of title 18, United States Code) or act of international terrorism (as that term is defined in section 2331 of title 18) for which the defendant has been convicted in any court; (B) constitutes a hate crime (as that term is used in the Hate Crime Statistics Act (28 U.S.C. 534 note)); (C) involves a sexual offense, as defined by applicable State law, for which the defendant has been convicted in any court; (D) involves misconduct for which the defendant has been found to have violated a Federal or State civil rights law; or (E) where the defendant was under the influence (as determined pursuant to applicable State law) of intoxicating alcohol or any drug at the time of the misconduct. (2) RULE OF CONSTRUCTION.—Nothing in this subsection shall be construed to effect subsection (a)(3) or (e). SEC. 5. LIABILITY FOR NONECONOMIC LOSS. 42 USC 14504. (a) GENERAL RULE.—In any civil action against a volunteer, based on an action of a volunteer acting within the scope of the volunteer’s responsibilities to a nonprofit organization or governmental entity, the liability of the volunteer for noneconomic loss shall be determined in accordance with subsection (b). (b) AMOUNT OF LIABILITY.— (1) IN GENERAL.—Each defendant who is a volunteer, shall be liable only for the amount of noneconomic loss allocated to that defendant in direct proportion to the percentage of responsibility of that defendant (determined in accordance with paragraph (2)) for the harm to the claimant with respect to which that defendant is liable. The court shall render a separate judgment against each defendant in an amount determined pursuant to the preceding sentence. (2) PERCENTAGE OF RESPONSIBILITY.—For purposes of determining the amount of noneconomic loss allocated to a defendant who is a volunteer under this section, the trier of fact shall determine the percentage of responsibility of that defendant for the claimant’s harm. SEC. 6. DEFINITIONS. For purposes of this Act: (1) ECONOMIC LOSS.—The term ‘‘economic loss’’ means any pecuniary loss resulting from harm (including the loss of earnings or other benefits related to employment, medical expense loss, replacement services loss, loss due to death, burial costs, and loss of business or employment opportunities) to the extent recovery for such loss is allowed under applicable State law. (2) HARM.—The term ‘‘harm’’ includes physical, nonphysical, economic, and noneconomic losses. 42 USC 14505. 111 STAT. 222 PUBLIC LAW 105–19—JUNE 18, 1997 (3) NONECONOMIC LOSSES.—The term ‘‘noneconomic losses’’ means losses for physical and emotional pain, suffering, inconvenience, physical impairment, mental anguish, disfigurement, loss of enjoyment of life, loss of society and companionship, loss of consortium (other than loss of domestic service), hedonic damages, injury to reputation and all other nonpecuniary losses of any kind or nature. (4) NONPROFIT ORGANIZATION.—The term ‘‘nonprofit organization’’ means— (A) any organization which is described in section 501(c)(3) of the Internal Revenue Code of 1986 and exempt from tax under section 501(a) of such Code and which does not practice any action which constitutes a hate crime referred to in subsection (b)(1) of the first section of the Hate Crime Statistics Act (28 U.S.C. 534 note); or (B) any not-for-profit organization which is organized and conducted for public benefit and operated primarily for charitable, civic, educational, religious, welfare, or health purposes and which does not practice any action which constitutes a hate crime referred to in subsection (b)(1) of the first section of the Hate Crime Statistics Act (28 U.S.C. 534 note). (5) STATE.—The term ‘‘State’’ means each of the several States, the District of Columbia, the Commonwealth of Puerto Rico, the Virgin Islands, Guam, American Samoa, the Northern Mariana Islands, any other territory or possession of the United States, or any political subdivision of any such State, territory, or possession. (6) VOLUNTEER.—The term ‘‘volunteer’’ means an individual performing services for a nonprofit organization or a governmental entity who does not receive— (A) compensation (other than reasonable reimbursement or allowance for expenses actually incurred); or (B) any other thing of value in lieu of compensation, in excess of $500 per year, and such term includes a volunteer serving as a director, officer, trustee, or direct service volunteer. PUBLIC LAW 105–19—JUNE 18, 1997 111 STAT. 223 SEC. 7. EFFECTIVE DATE. (a) IN GENERAL.—This Act shall take effect 90 days after the date of enactment of this Act. (b) APPLICATION.—This Act applies to any claim for harm caused by an act or omission of a volunteer where that claim is filed on or after the effective date of this Act but only if the harm that is the subject of the claim or the conduct that caused such harm occurred after such effective date. Approved June 18, 1997. LEGISLATIVE HISTORY—S. 543 (H.R. 911): HOUSE REPORTS: No. 105–101, Pt. 1 (Comm. on the Judiciary) accompanying H.R. 911. CONGRESSIONAL RECORD, Vol. 143 (1997): May 1, considered and passed Senate. May 21, considered and passed House, amended, in lieu of H.R. 911. Senate concurred in House amendment. Æ
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Explanation & Answer

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Running head: DISCUSSION

1

Discussion
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DISCUSSION

2

Q1
While emergency management response and coordination efforts are highly specialized
and planned when a disaster; both natural and human-made, occurs, local people are always the
first people at the incident and may remain after all others have completed rescue and other
disaster management activities. These individuals play an essential role in assisting the affected
in responding to and recovering from a disaster and offer critical help to the main and authorized
emergency management entities (Points of Light Organization, n.d). These citizens are referred
to as spontaneous or unaffiliated volunteers and can be used effectively by the incident command
system and commander to offer valuable services once they are integrated and deployed well
with the affiliated volunteers.
One of the factors for the utilization of these volunteers is that they are the first people to
arrive at the scene of the disaster and offer to help in the professional teams and agencies in their
response and recovery efforts. Spontaneous volunteers are always self-deployed and help in any
way that they can based on various reasons. These motivations to volunteer in such disasters
include their altruistic behavior, personal fulfillment, and personal growth among other reasons
(White, 2016). Second, spontaneous volunteers understand the community and how it operates
and may have better information about the area; especially in cases of natural disasters where
they may understand the terrain and immediate action based on community disaster preparedness
initiatives. Third, it is imperative that disaster ...


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