Documents

document 261 pages

Also attached to this agenda item: 2011 8 22 WS 3 a Membership Recruitment and Retention... 2011 8 22 WS 3 b FEMA - fa-157

v Preface I n 2004, the U.S. Fire Administration (USFA) and The Department of Homeland Security (DHS) worked in partnership with the National Volunteer Fire Council (NVFC) to revise the 1998 text, Retention and Recruitment in the Volunteer Fire Service: Problems and Solutions. The original text was based on a series of workshops bringing together volunteer ire service members from all the States. This edition has been enhanced with new research and current issues as the emergency services enter the 21st century. Many of the original reasons for the recruitment problems remain: lack of time, apathy, and excessive requirements. However, they appear to have become even greater issues with the passing of time. Although the recruitment and retention challenges continue to grow, some volunteer organizations maintain good membership while others continue to function with reduced numbers. Those organizations that seek solutions and adapt to our changing personnel environment are successful. Individuals are still willing to give their time to volunteer emergency services organizations provided the following: • The experience is rewarding and worth their time. • The training requirements are not excessive. • The time demands are adaptable and manageable. • They are rewarded with a personal sense of value. • There is good leadership minimizing conlict. • There is ample support for the organization. The emergency services are the most demanding of volunteer activities today. The physical and time demands associated with training; responding to incidents; maintaining facilities, apparatus, and equipment; fundraising; and administering a nonproit corporation are grueling if not managed properly. In today’s hectic world, strong leadership is required to make the emergency services the organizations that will attract volunteers. This text will cover many of the problems of recruitment and retention and provide some examples of solutions that have worked in volunteer organizations across the Nation. Any opinions, indings, recommendations, or conclusions found in this text do not necessarily relect the views of the NVFC or DHS/USFA. vii contents Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 Field Survey . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 the retention &recruitment challenges: Causes & Effects . . . . . . . . . . . . . . . . .5 Time Demands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Training Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10 Increasing Call Volume . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12 Changes in the “Nature of the Business” . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 Changes in Sociological Conditions in Urban/Suburban Areas . . . . . . . . . . . . . . . . . . . .14 Changes in Sociological Conditions in Rural Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 Leadership Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 Federal Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16 Internal Conlict . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 Higher Cost Of Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 Aging Communities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 Effects Of The Decline In Volunteers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 retention: Challenges & Solutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25 Leadership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27 Management Style . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29 Fireground Management versus Fire Station Management . . . . . . . . . . . . . . . . . . .30 Democratic/Participative Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .30 Seeking Membership Feedback . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32 Mission Statement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32 Long Range Planning, Goals, and Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34 Selection and Tenure of The Chief . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34 Selection and Tenure of Oficers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37 Training of the Chief and Oficers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37 Internal Communications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .38 Volunteer Coordinator . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .40 Adopting Department Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41 Department Image . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .42 Pride in the Uniform . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43 Pride in the Department And Community . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44 Training in Public . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .45 Delivering Public Fire Safety and Prevention Programs . . . . . . . . . . . . . . . . . . . . . . .45 Well-maintained Gear and Apparatus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .46 Demonstrating Financial Beneits to Community . . . . . . . . . . . . . . . . . . . . . . . . . . . .47 Community Newsletters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48 Use of Media . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48 Customer Service. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .49 Working With Local Politicians . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .50 viii contents Other Image-enhancing Ideas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .51 Risks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 Health Risks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 Medical Examinations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 Concerns of the Family . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .53 Death and Disability Coverage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .53 Onduty Injury and Hospitalization Insurance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54 Line-of-Duty Death and Disability Beneits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54 Liability Coverage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54 Relocation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .55 Transferring to Other Departments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .55 Reciprocity of Training Credentials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .56 Diversity of People And Interests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .57 Fire and Emergency medical services Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . .57 Females . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .57 Minority Groups . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .59 Retired Fireighters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .59 Non-Fireighting Personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .60 “Burned Out” or Disabled Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .60 Learning Disabled/Mentally Challenged . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .60 Consolidation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .61 Attitude and Motivation Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .62 Attitude Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .62 Motivation Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .64 Member Surveys . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .65 Exit Interviews . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .66 Evaluations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67 Cohesiveness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67 Cliques . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .68 Females and Minorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .68 Emergency Medical services and Fireighters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .69 Handling Grievances and Problem Volunteers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .69 Combination Departments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .70 Encouraging Teamwork . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .71 Emotional Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .72 Nurturing New Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .72 Nurturing All Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .74 Handling Speciic Personal Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .74 Employee Assistance Programs/Member Assistance Programs . . . . . . . . . . . . . . . . . .75 Substance Abuse Counseling . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .75 Assistance from Chaplains . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .75 Status Circles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .76 Leaves of Absence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .76 Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions ix Financial Aid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .76 The Department as a Family . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .76 Stress Debrieings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .77 Training Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78 The Dilemma of Reducing Training Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . .79 Provide Training Schedules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .80 Training in Modules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .81 Training in Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .81 Instructor Competency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .82 Provision of Remedial Help . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .82 Diversifying Instruction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .82 Out-of-Town Training Weekends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .83 Reimbursement for Training Expenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .84 Training Competitions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .84 Time Demands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .84 Evaluating Requirements and Improving Eficiency . . . . . . . . . . . . . . . . . . . . . . . . . .86 Narrowing Assignments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .86 Sample Combination System Duty Shift . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .88 Duty Shifts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .88 Leaves of Absence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .89 Screening Calls and Alarm Malfunctions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .90 Involving the Family in the Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .90 A New Take on Fire Department Auxiliaries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .91 Involving the Family in Department Social Functions . . . . . . . . . . . . . . . . . . . . . . . .92 Selective Paging . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93 Handling the Most Demanding Hours: The Weekday Hours . . . . . . . . . . . . . . . . . . . .93 Supplementary Full-Time Personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .94 Recognition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .95 Newsletters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .96 Thank-You Notes and Greeting Cards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .96 Pictures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .97 Press Releases . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .97 National Volunteer Awards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .97 State Recognition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .97 Local Community Recognition andHeroism Awards . . . . . . . . . . . . . . . . . . . . . . . . .98 Award Banquets. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .98 Graduation Ceremonies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99 Pats on the Back . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99 Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .100 Setting Up an Incentive System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .100 Direct Financial Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .101 Types of Direct Financial Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .102 Retirement Plans, Pension Plans, and Length of Service Award Programs . . . . . . .103 x contents Individual Retirement Accounts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .104 Pay Per Call or Per Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .105 “Monthly Pot” . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .105 Annual Reimbursement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .105 Tax Exemptions and Deductions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .106 Health Insurance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .106 Tuition Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .107 Housing Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .107 Special Low-Interest Housing Loans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .108 In-Season Bonus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .108 Indirect Monetary Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .108 Local Business Discounts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .109 Chamber of Commerce Dollars and Gift Certiicates . . . . . . . . . . . . . . . . . . . . . .109 Health Club Memberships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .110 Other Indirect Monetary Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .110 Uniform and Department Paraphernalia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .111 Other Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .111 Equality in Incentive Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .113 Qualifying for Beneits and Incentives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .113 The Fun Factor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115 Social Committee/Social Director . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115 Parties . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115 Prevention Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115 Making Training Enjoyable . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .116 Other Ways to Have Fun . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .116 Increased Range of Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118 What to Avoid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118 Alcohol Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .120 Drug Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .120 recruitment: Challenges & Solutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .123 Citizen Corps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .124 Needs Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .125 Qualities and Skills to Look for in Volunteers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .126 Character Qualities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .127 Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .127 Daytime Availability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .128 Geographically Well-Located . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .128 Young Fireighters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .128 Cadet Training Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .129 Previous Public Safety Experience . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .129 Special Skills . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .130 Who Should Do the Recruiting? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .131 Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .131 Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions xi Recruitment Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .132 Recruitment Coordinator . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .132 County Versus Department, District, or City-Level Recruiting . . . . . . . . . . . . . . . . . .133 Where to Look. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .133 Personal Contacts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134 Door-to-Door . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134 Dedicated Recruitment Telephone Number . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134 Newcomers to Town . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134 Schools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .135 Retirement Homes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .136 Civic Organizations and Churches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .136 Fire Departments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .136 County Fairs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .137 Resorts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .137 Local Businesses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .137 Events . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .138 Utility Companies and County and Local Government Employees . . . . . . . . . . . . . .138 Military Bases and Personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .138 Other Emergency Volunteers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .139 Local Stores, Government Ofices, Restaurants, and Gyms . . . . . . . . . . . . . . . . . . . .139 Training the Public . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .139 Recruiting Messages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .139 Message Examples . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .140 Volunteering as Career Advancement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .140 The True Nature of the Job . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .141 Fireighter Checklist . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .142 Use of Various Media . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .143 Television, Radio, and Print Media . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .143 Videotapes and MultiMedia Shows . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .144 Brochures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .144 Direct Mail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .145 Posters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .145 Signs at Stations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .145 Advertisements on Apparatus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .146 Informal Station Open House . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .146 Movie Theaters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .146 World-Wide Web. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .146 Other Places to Advertise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .147 Informational Sessions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .147 Volunteer Fireighter Job Description. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .148 Screening Recruits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .149 Who to Accept . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .149 Motivations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .150 xii contents Tests and Background Checks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .151 Interviews . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .152 Driving and Criminal Records . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .152 Immigration Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .153 Commitment Agreements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .153 Followthrough . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .155 Follow Up on Initial Contacts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .155 Follow Up After Acceptance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .155 Opportunities to Leave . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .156 Barriers to Recruiting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .156 Exclusivity Image . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .156 Training Burden . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .157 Residency Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .157 Tenure Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .158 Recruiting Special Groups . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .158 Females . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .158 Hispanics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .160 African-Americans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .160 Native Americans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .161 Other Minorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .161 White-Collar Workers/College Students. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .162 Retirees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .162 The Annual Recruitment Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .162 The National 1-800-FIRE-LINE Recruitment Campaign . . . . . . . . . . . . . . . . . . . . . . . .165 conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .169 One State’s Retention and Recruitment Dilemma: Report From Pennsylvania . . . . . . . .170 aPPendices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .175 Appendix A: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .176 Retention and Recruitment Project Survey by the Public Safety Institute at Saint Joseph’s University Appendix B: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .184 Department of Labor Statistics for Not Volunteering in 2004 Appendix C: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .186 Department of Labor Statistics on How People Became Involved in Volunteering in 2004 Appendix D: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .188 Fire Corps Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions xiii Appendix E: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .190 Oficer Promotional Process and Evaluation Forms Appendix F: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .194 Sample Fire Department Annual Report Appendix G: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .208 References Appendix H: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .209 Examples of Modular Training Programs Appendix I: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .227 Examples Received from the Field General Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .227 Leon Springs Memorandum of Understanding . . . . . . . . . . . . . . . . . . . . . . . . . .228 Fireighters Association Bill of Rights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .230 Orientation Package Example . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .231 Application Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .237 Recruit Orientation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .242 Fireighter Evaluation Examples . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .243 list of tables Table 1: Retention and Recruitment Root Causes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 Table 2: National Standard Training Modules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8 Table 3: Sample Award Tiers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112 Table 4: Sample Point System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .114 Table 5: Sample Award Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .114 introduction T he volunteer emergency services are a long-standing tradition in the United States that often encompass families generation after generation. Unfortunately, it is also a tradition in danger of weakening. Many ire departments across the Nation today are experiencing more dificulty with recruiting and retaining members than ever before. Although there has been a decline in the number of active volunteer firefighters nationally from a high of 897,750 in 1984, the trend has changed in the last few years. The number of volunteers dipped to a low of 770,100 volunteers in 1989. While the number has increased since then, the problem of recruitment and retention is still serious in many areas. The most recent igures (2003) indicate over 800,050 volunteer firefighters, 73 percent of the Nation’s ireighting forces. Fire departments can no longer count on the children of current members following in their parent’s footsteps. Nor can they count on a continuous stream of community people eager to donate their time and energy to their local volunteer ire department. Adding to the problem, departments cannot rely on members staying active in the volunteer ire service for long periods of time. In order to address recruitment and retention problems, the National Volunteer Fire Council (NVFC), in cooperation with the United States Fire Administration (USFA), initiated a study of this issue that cumulated with a national workshop on recruiting and retention in 1993. Volunteer representatives from 16 States participated in this event, which was held at the USFA’s National Fire Academy (NFA) on the grounds of the National Emergency Training Cener (NETC) in Emmitsburg, Maryland. From this workshop came a general understanding of the problems with retention and recruitment nationwide, as well as many possible solutions to these problems. The indings were documented in the “Interim Report on Retention and Recruitment in the Volunteer Fire Service: Problems and Solutions” and in “Recruitment and Retention in the Volunteer Fire Service, Problems and Solutions, Final Report, December 1998.” In 2004, the NVFC released its “Cost Savings Study and Calculator.” The igures in the study reinforce the need for the volunteer ire service to increase its efforts in recruitment and retention of members. The Cost Savings Study conducted by the Public Safety and Environmental Protection Institute at St. Joseph’s University, Philadelphia, Pennsylvania, with assistance from VFIS found that the annual national savings resulting from the volunteer ire service is $37.2 billion. This is an average of over $45,000 per volunteer. The economy of this great country is substantially strengthened by the efforts of its volunteer ire departments. In 2004, the NVFC and the USFA again decided to address the issue of retention and recruitment due to the ongoing national problem. This endeavor includes much of the earlier work, a review of recent literature, and a ield survey to determine current initiatives that are in use and working in the ield. As indicated in the earlier research, there is no single reason for the decline in volunteers in most departments. However, there is a universal consensus that skilled department leadership is a key to resolving the problems. Retention and recruitment problems usually can be traced to several underlying factors: more demands on people’s time in a hectic modern society; more stringent training requirements; population shifts from smaller towns to urban centers; changes in the nature of small town industry and farming; internal leadership problems; and a decline in the sense of civic responsibility, among other factors. Although some regions are more affected than others, and the problems and solutions vary across regions, even within States and counties, volunteer retention and recruitment is a problem nationwide. Speciically, it is a local issue and must be dealt with locally. Can the trend in declining volunteerism be reversed? Information collected reveals that departments that have taken steps to deal with the problems have seen a resurgence in volunteerism. This indicates that many of the problems can be mitigated or eliminated if proper attention and resources are given to them. This text will attempt to identify and share the ideas and practices that are successful in recruitment and retention. Departments that have failed to address the problems and challenges of volunteering in today’s world have been forced to hire career ireighters, consolidate, or even close their doors. 2 introduction Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 3 field surVeY A core component of this project was to query the volunteer emergency service community on current issues that: • make members want to volunteer; • keep volunteers serving; and • make volunteers leave the organization. Surveys were conducted via online methods, at various ire and emergency medical services (EMS) events, and based upon various association membership queries during the fourth quarter of 2004. The data was compiled and analyzed by the Public Safety and Environmental Protection Institute of St. Joseph’s University. The indings, provided later in this report, found several key areas of concern that will require action to address effective recruitment and retention efforts in the future. THE RETENTION & RECRUITMENT CHALLENGES: Causes & Effects 6 t he r etention & r ec r uitment c ha lleng es : Causes & Effects I t is important to determine the causes of the recruitment and retention problem in the volunteer ire service. Once causes are identiied, it is much easier to develop solutions. Several factors underlie today’s retention and recruitment problem in the volunteer ire service. It is a complex and multifaceted problem. Although stringent training standards, leadership problems, and time constraints caused by increased family responsibilities-- particularly in two-career families and single-parent households--seem to be the most common causes, there are many other factors contributing to the turnover that volunteer departments are currently facing. The problems most frequently cited by the Bureau of Labor Statistics for 2003 are: Lack of time . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44.7% Health/Medical problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14.7% Family responsibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9.5% Other . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8.2% No longer required/relevant. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5.8% Wasn’t interested . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4.3% Moved, transportation, expenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4.2% No one asked . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3.2% Burnout . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2.4% No longer member of organization. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1.7% The following data are from the St. Joseph’s University Study in 2004 What makes Your members leave Your organization?* No time to volunteer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92.3% Conlicts in organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47.8% Organizational leadership created adverse atmosphere . . . . . . . . . . . . . . . . 46.7% Too much training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45.6% Attitude of existing personnel to newcomers . . . . . . . . . . . . . . . . . . . . . . . 39.1% Criticism received from oficers/older members . . . . . . . . . . . . . . . . . . . . 38.0% Lack of camaraderie . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19.5% * Many respondents indicated more than one reason for leaving the organization The causes of the problems are similar in all 50 States. No single region of the country is dealing with problems that are signiicantly different than those found in other regions. There are some differences, however, in problems faced by urban versus rural communities. These differences stem from the sociological differences in the urban versus rural communities, which will be discussed later. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 7 TABLE 1. Retention and Recruitment Root Causes SOURCES OF PROBLEMS CONTRIBUTING FACTORS Time Demands • the two-income family and working multiple jobs • increased training time demands • higher emergency call volume • additional demands within department (fundraising, administrative) Training Requirements • higher training standards and new Federal requirements • more time demands • greater public expectation of ire department’s response capabilities (broader range of services such as EMS, Hazmat, technical rescue, etc.) • additional training demands to provide broader range of services • recertiication demands Increasing Call Volume • ire department assuming wider response roles (EMS, Hazmat, technical rescue. • increasing emergency medical call volume • increase in number of automatic ire alarms Changes In The “Nature Of The Business” • abuse of emergency services by the public • less of an emphasis on social aspects of volunteering Changes In Sociological Conditions (In Urban And Suburban Areas) • transience • loss of community feeling • less community pride • less of an interest or time for volunteering • two-income family and time demands • “me” generation Changes In Sociological Conditions (In Rural Areas) • employers less willing to let employees off to run calls • time demand • “me” generation Leadership Problems • poor leadership and lack of coordination • authoritative management style • failure to manage change Federal Legislation And Regulations • Fair Labor Standards Act interpretation • “2 in, 2 out” ruling requiring four ireighters on scene befor entering hazardous environment • Environmental Protection Agency (EPA) live-ire burn limitations Increasing Use Of Combination Departments • disagreements among chiefs or other department leaders • friction between volunteer and career members Higher Cost Of Housing (In Afluent Communities) • volunteers cannot afford to live in the community they serve Aging Communities • greater number of older people today • lack of economic growth and jobs in some towns Internal Conlict • disagreements among departmental leaders • friction between volunteer and career members 8 t he r etention & r ec r uitment c ha lleng es : Causes & Effects On a regional level, the northeast has seen the greatest decline in volunteers because it has traditionally been protected by volunteers more than other regions. Four States (New York, Pennsylvania, Delaware, and New Jersey) that have historically been served by large numbers of volunteers have all experienced a major volunteer decline. TABLE 2. National Standard Training Modules TRAINING MODULE AVERAGE LENGTH OF CLASS IN HOURS APPROXIMATE TIME TO COMPLETE FOR VOLUNTEERS* Fireighter • Fireighter I • Fireighter II • Instructor • Oficer I • Oficer II • Oficer III • Oficer IV 100 hours 100 hours 45 hours 40-60 hours 40-60 hours 40 hours 40 hours 4 months 4 months 1 month 1 month 1 month 1 month 1 month Emergency Medical Services (EMS) • First Responder • EMT--Basic • EMT--Intermediate • EMT--Paramedic 48 hours 136 hours 125-300 hours 350-1,500 hours 2.5 months 4-6 months 4-6 months 6 months-1 year Hazardous Materials • Awareness • Operations • Technician 25 hours 40 hours 40-80 hours 2 weeks 1 month 1 month Other Courses • Vehicle Operation • Pumps/Hydraulics • Aircraft Rescue • Vehicle Extrication • Silo Rescue • Farm Machinery Extrication • Water Rescue 20 hours 60 hours 50 hours 25-50 hours 35 hours 25 hours 16 hours 2 weeks 2 months 1.5 months 2 weeks 1 month 2 weeks 1 months *When taken several nights per week and/or on weekends Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 9 time demands V olunteering in the ire service is one of the most time-demanding volunteer activities today. Time demands come from many sources: emergency calls, training, meetings, maintenance of the stations and equipment, and fundraising to name a few. Most departments require members to contribute a minimum amount of time each month into each of these areas. Each area is vital to the operation of the department. Members in the departments typically contribute 20 to 100 hours per month or more. Historically, since 1648 when New York Governor Peter Stuyvesant organized a group of volunteers to provide ire protection, inspect chimneys, and raise money to purchase ladders and buckets, volunteers have faced time demands of running calls and running their department. Why have time demands become such a big issue? There is no simple answer. Many factors, with origins both inside and outside of the ire service, have combined to make time demands one of the most critical problems facing the volunteer ire service today. These factors are discussed below. the two-income family--The surge in the number of two-income families since the early 1970s has meant that people have very little time to volunteer. Time is spent at work, with the children, and maintaining the house. Spare time is an anomaly today. The little time people do ind to volunteer is often too little to allow them to become active in the ire service. Those who do volunteer in the emergency services today often discover that the time requirements, particularly the startup demands associated with initial training, are too great. increased training time demands--Training time requirements have risen steadily. In many departments until the mid-1960s, new ireighters were given minimal training (usually under 30 hours) before they were allowed to ride ire apparatus. In some cases, members were given a uniform and protective clothing the night they joined and could be seen ighting ire the same night. They learned on the job. Today, this is not acceptable. higher emergency call Volume--Many volunteer ire departments have seen their volume of emergency calls increase between 25 and 75 percent since the early 1980s especially if the organization is providing any medical services. This has dramatically increased time demands on volunteers. increased demands Within departments--The volume of work that an individual volunteer must handle today is greater than in past years because there are fewer members, leaving the remaining members to assume more responsibilities in all areas (from going to more ire/EMS calls to administration functions of the department). In addition, there are 10 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects greater demands of paperwork in today’s emergency service. Fire chiefs must ensure that everything from emergency responses to training is documented. A State or local report must be completed for each response. The paperwork today is also more detailed than in the past because of legal needs to provide more comprehensive documentation. There is fear that incomplete documentation could leave a department vulnerable to civil and criminal actions. training reQuirements T oday, most ire departments require volunteers to complete a basic ireighting class of over 100 hours before being able to ight ires (see Table 2). Departments that provide emergency medical care may require members to certify as an emergency medical irst responder, which is another 75 to 120 hours of training. Fireighters also must attend federally mandated annual hazardous materials training, which can range from 10 to 25 hours. Although recertiication is not as time-demanding as the initial training, it is another demand that volunteers must it into their busy schedules. Increased training requirements have had a major effect on retention and recruitment. On- the-job training is no longer permitted as a substitute for formal training and certiication. The time when a volunteer can start to go on calls and do other “exciting” duties is delayed, and their initial enthusiasm may be lost. Also some volunteers are not good at taking written tests and may quit rather than face one, fail, and have to leave. Formal training, however, has made both the volunteer and career ire service more professional and effective. Increased training requirements have been particularly traumatic for older members who have no certiications and are no longer allowed to run certain calls. Some who once volunteered to simply join in and pull hose or drive the apparatus are no longer allowed to do so. The root issues that have caused training requirements to increase are discussed below. higher training standards--Training for both volunteer and career ireighters has grown more formal and comprehensive. National consensus training standards created by ire service committees functioning under the National Fire Protection Association (NFPA) have increased both classroom and practical requirements. The standards are designed to increase safety awareness and establish minimum competencies at various training levels. The majority of States have adopted these standards. In addition, the U.S. Department of Transportation (DOT) established standards for emergency medical training that have been adopted by all 50 States. These standards have increased training time demands substantially. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 11 federal requirements--The Federal government has enacted training requirements for volunteers through the Occupational Safety and Health Administration (OSHA) and EPA. OSHA requirements apply to volunteers only in certain States and are generally met through basic ireighting courses. EPA requirements apply to all volunteers. The EPA mandates that all volunteers take annual hazardous materials training. In addition, State EPAs have limited the burning of old structures in certain areas of the country that further restricts the opportunity for live burn training. broader range of services--The consensus of ire chiefs from across the country is that the public’s expectations of the ire department are greater today than in years past. The public expects the ire department to provide assistance for emergencies that include ires, ire alarms, carbon monoxide alarms, broken water pipes, natural gas leaks, medical emergencies, vehicle accidents, hazardous materials spills, mysterious odors, structural collapse, extrications, water rescue, and even bomb threats or terrorist incidents. When the public calls for assistance in any of these situations, the ire department must be ready to respond. To respond to the public’s expectations, ireighters must attend a wider variety of training courses. recertiication demands--Recertiication requirements vary among the States, but generally range from annually to every 5 years. Time requirements for recertiication usually are approximately one-quarter the length of the original class. All States have medical recertiication requirements. The National Registry of Emergency Medical Technicians minimum requirements are 24 Continuing Education Units (CEUs) per year on speciied subjects. In addition, some States have their own standards that may be different; for example, Pennsylvania requires 18 CEUs on any subject. It is important for each department to know the speciic requirements that apply to it. Information on EMS training requirements for each State can be found at http://www.emsresponder.com/survey/ 12 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects increasing call Volume D uring the same time in which the number of volunteers has declined, the volunteer ire service has had to contend with an increase in the volume of emergency calls due to the lack of education on when to call 9-1-1. The NFPA reports that ire department call volumes increase at varying rates depending on the community. This means that volunteer ire departments have to do more with fewer people, and that the overall demands on individual volunteers have increased. Major causes of the increasing call volume are discussed below. increasing emergency medical call Volume--Emergency medical calls have created the greatest increase in call volumes for ire departments. Years ago, most ire departments did not respond to EMS calls. Currently, more departments are becoming involved with providing medical service. This may only be at a irst responder level; but regardless of the level, increases the response load considerably. The best means to reach a person in medical crisis quickly is for units to respond from ire stations located throughout a community. The public has grown to expect this rapid response capability from ire departments. Popularization of EMS by the media and various television programs has led some people to call for help for problems that do not it the traditional deinition of an emergency, such as general sicknesses. In addition, some people use the EMS system for medical advice, and some persons use it to access primary care or because they cannot afford transportation to the hospital. increase in the number of automatic alarms--As previously noted, the volume of automatic alarms has grown steadily, particularly in areas with commercial buildings that often have alarm systems. Fire departments have also experienced a sharp increase in call volume due to alarm system malfunctions. Many volunteers are growing tired of the time demands associated with responding to these malfunction false alarms. Some departments enact polices that, after a set number of malfunctions in a given time period, the occupants are charged the response costs and/or ined to reduce the unnecessary use of volunteer resources. In addition, medical alert alarms are adding to unnecessary emergency responses. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 13 greater reliance by the Public on fire department’s services--The public has not only grown to expect a wider range of services from the ire department, but also has grown to rely more heavily on the ire department. A greater reliance translates into more calls. For example, in years past when someone broke an arm he/she would have a relative or neighbor drive him/her to the hospital. Today, people often call for an ambulance instead. The public also is aware of the greater knowledge and professionalism of ireighters. As a result, people may call the ire department to check an electrical concern instead of calling an electrician. Or they may call an Emergency Medical Technician (EMT) for advice about how to treat an injury instead of calling a doctor or going to the hospital. This greater reliance on the ire department has contributed to the increase in call volume. Many long-time members of the emergency services will say that the ire service today “just isn’t what it used to be.” Fire departments have gone through many changes over the years to adapt to new requirements and demands. As noted above, emergency service providers are required to take more training, and the public is calling more and demanding a broader range of services. These requirements have built to the point that many veteran volunteer ireighters say that volunteering just is not fun anymore. The situation is exacerbated by the following two factors. changes in the “nature of the business” a buse of the emergency services by the Public--Many volunteers say they have tried to adapt to the increased demands, but the breaking point comes when they feel abused by the public. “Abuse of 9-1-1 and our services by the public today has driven volunteers right out the door,” said one ire chief. For example, some homeowners and businesses fail to correct problems with malfunctioning automatic alarm systems that summon the volunteers multiple times, often at night. Or citizens call 9-1-1 to request transport to the hospital for minor stomach cramps. When the public excessively requests emergency assistance in situations that are not true emergencies, the volunteers burn out. Less Emphasis on Social Aspects of Volunteering--The loss of the social aspects associated with volunteering has hurt recruitment and retention. Many volunteers join ire departments and stay involved not only to serve their community and help others in need, but also to develop social relationships. Some volunteers report that the time demands of volunteering coupled with the time constraints of everyday life have left no time to develop social ties or spend time outside of the station with other ireighters. Likewise, many ire departments have closed down their irehouse clubs and pool rooms that historically have been social centers for many volunteers. 14 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects changes in sociological conditions in urban/suburban areas T he sociological changes experienced by volunteer ire departments in growing areas, particularly around cities, have affected recruitment and retention. Unfortunately, larger populations usually do not translate into larger number of volunteers. Many of the factors that have fueled the sociological changes have been mentioned already: less time to volunteer, the two-income family, and less of an interest in serving the community or volunteering by younger persons in particular (the “me” generation). The transience of many large suburban and urban areas has hurt recruitment and retention. People who move often are less likely to become involved in a volunteer ire department. Likewise, ire departments usually do not want individuals who spend a year getting trained and then leave. The problem with transience is particularly acute in resort areas or communities with military populations. In other areas, where the number of large farms and ranches is decreasing and land is being sold and subdivided, ire departments have experienced a surge in transience. Unfortunately, sometimes growth can lead to a lost sense of community, especially in metropolitan areas where people commonly live in one area and work in another. This may result in people taking a less active role in their communities. Residents of urban areas also tend to have less community pride and spirit than residents of smaller towns. The loss of community spirit means that people are less interested in serving their communities. Fire departments in suburban and urban areas have found that this characteristic has hurt recruitment. changes in sociological conditions in rural areas C hanges in sociological conditions also have affected recruitment and retention in smaller towns. Some of the changes, including time demands and the “me” generation, are similar to the changes experienced in urban areas. A relatively new sociological change seen by many small towns is the replacement of small main street businesses with large, multipurpose department stores or regional shopping facilities. A single large store has put many small main street stores out of business. These stores tend to be less personal, and managers are less willing to let employees leave when the alarm sounds. Large corporations usually are not as closely tied to the community as are local businesses and, as a result, are often less willing to give employees time off to volunteer. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 15 leadershiP Problems M any retention and recruitment problems can be traced back directly or indirectly to leadership problems. Effective leadership helps retain members as well as reduce dissatisfaction. Ineffective leadership is the most common reason for a decline in membership. Poor leadership and lack of coordination--Some of the leadership problems stem directly from the lack of direction given to members, particularly new members. New members need direction, especially in the area of training. If this initial direction is not provided, new recruits often become frustrated and quit. A program of mentoring and coaching needs to be implemented for new members. Incumbent members must be assigned to assist, acquaint, and get the new recruit off to a good start. A department that is progressive and stays on the leading edge tends to have an easier time with recruitment and retention because its members take more pride in the department. Progressiveness, however, requires strong leadership and coordination of members’ efforts. authoritarian management style--Dictatorial leaders drive members out of volunteer ire departments. Volunteers feel they are given enough orders in their day-to-day jobs, and prefer not to have every action dictated around the station. Participative management styles attract and retain members. Volunteer members want to have some “ownership” in the organization. They must have a sense of worth and feel they are using their talents to contribute to the overall good. They cannot be treated poorly or looked down upon. Volunteers also have to understand the need for discipline, the ireground is not the place for democracy. failure to manage change--Change is inevitable in any ire department, and it can be painful if it is not managed properly. Departments that undergo major changes (such as consolidations) that are not well-managed usually will lose members. One of the most common causes of management problems during periods of change is poor communications. This is an information age and individuals are used to being kept well informed by media and Internet sources. Withholding information will only lead to gossip, hypothesizing, lower morale, and suspicion. Poor communications are generally the sign of an authoritarian manager who is a weak leader. More will be said about this in the section on leadership. 16 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects federal legislation S everal acts by the Federal government in recent years have had an impact on recruitment and retention. fair labor standards act--The FLSA is a Federal law administered through the U.S. Department of Labor (DOL) that governs compensation and overtime requirements for hourly employees. The FLSA prevents employers from requiring or coercing employees to volunteer at their place of employment. The FLSA has existed since 1938, but in 1985 the U.S. Supreme Court ruled that FLSA requirements are applicable to State and local government employees. The ruling requires local governments to pay monetary compensation to ireighters who work overtime. Most career ireighters are considered hourly employees and fall under the provisions of this Act. Based on the 1985 ruling and a 1993 DOL interpretation of the law, career ireighters are prohibited from volunteering during their off-duty hours at a ire station in the same jurisdiction in which they are employed, unless their volunteer activities are a separate capacity from their paid work activities. For example, a career ireighter could not volunteer in the same jurisdiction during off- duty hours to serve as a ireighter, but could perform administrative tasks at a ire station. The 1985 Supreme Court decision enforced minimum wage and overtime provisions of the FLSA within State and local governments, which has affected many ire departments in both urban and rural areas. This has caused some volunteer systems to lose hundreds of members. Subsequently, stafing problems emerge which leads to a lack of protection for citizens. Some State labor departments have further interpreted the FLSA prohibition to apply to volunteer ire instructors who are employed as State police, and nurses who volunteer to teach EMS (even though the law only prohibits employees from volunteering in the same job capacity as which they work). Fear by some city oficials of possibly being required to pay back wages to employees who volunteer during their off-duty hours has caused some localities to get rid of volunteer members who are city employees, even though the members are not employed as ireighters. This occurred in Hanover, Massachusetts, where the local labor ofice interpreted FLSA to prohibit three call ireighters who were town employees (a teacher, a janitor, and a truck driver) from volunteering as ireighters. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 17 DEPARTMENT OF LABOR ADOPTS BENSHOFF FLSA TEST Fire Chief, Dec 1, 2002 Reprinted with permission Byline: John Rukavina Late in 1999, a Fourth Circuit Court of Appeals decision--Benshoff v. City of Virginia Beach, 180 F3d 752--caught my eye. It dealt with the Fair Labor Standards Act status of career Virginia Beach ireighters serving as volunteers on the volunteer EMS squads that serve Virginia Beach. As I wrote in the March 2000 Lex de Incendiis, “Latest FLSA ruling takes an unexpected twist,” available at www.irechief.com>: “More than a decade ago, a wrestling match started between the ire service and the U.S. Department of Labor. The bout began in Montgomery County, Md.... “[But] A recent decision by the Fourth Circuit Court of Appeals ... might have put a signiicant dent in the Department of Labor’s decision ... and 10 or 15 years ago, it might have made a difference in Montgomery County, Md.” That unexpected twist has come full circle. In the 1980s, Montgomery County career ireighters were county employees assigned to ire stations owned and operated by private non-proit corporation ire departments. Some of those career ireighters who were assigned to work at one department also volunteered at another PNP ire department elsewhere in Montgomery County. Others who believed that a career ireighter could not “volunteer” for its employer, Montgomery County, iled a complaint with the Department of Labor. At that time the DOL ruled that, even though Montgomery County’s PNP ire departments were corporate entities separate from the county, those departments were linked closely enough to the county to trigger the provisions of FLSA (29 U.S. Code section 203(e)(4)(A)), which provides that a public safety employee cannot volunteer to provide “services for a public agency” that are “the same type of services which the individual is employed to perform for such agencies.” As a consequence of that ruling, Montgomery County prohibited its career ireighters from volunteering for any PNP ire department in Montgomery County. Now, we fast-forward to 1998 and join Virginia Beach ireighter Gregg Alan Benshoff and six other ireighters as they sue Virginia Beach for failure to pay them for time spent at work as members of volunteer rescue squads that contracted with Virginia Beach as EMS providers. John Rukavina is director of public safety for Wake County, North Carolina, and holds a law degree from the University of Minnesota School of Law. He was a 1993 FEMA Fellow at Harvard University’s Kennedy School of Government and is a graduate of the National Fire Academy’s Executive Fire Oficer Program. He has taught for the National Fire Academy, at IAFC conferences and for the Institutes of Government at the Universities of North Carolina and Georgia. continued on next page 18 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects Benshoff and his co-plaintiffs argued that they were entitled to hour-for-hour pay for their volunteer rescue squad activities because those squads contracted with Virginia Beach’s Department of Emergency Medical Services to deliver EMS in Virginia Beach, and because, as part of their jobs, Virginia Beach ireighters respond to medical emergencies and provide Basic Life Support treatment (the rescue squads provide Advanced Life Support and transport services). Benshoff and his co-plaintiffs also argued that the relationships between the rescue squads and Virginia Beach, and the fact that their career and volunteer work involved delivery of emergency medical care, meant that Benshoff and his co-plaintiffs were “employees” of the city, even when they served as volunteer members of the rescue squad. Both the Federal District Court (a trial court) and the Fourth Circuit Court of Appeals ruled against Benshoff and his colleagues. The judges of both courts agreed that the rescue squads were not “controlled” by Virginia Beach to the degree that would be required to trigger the “public-agency/same-employer/same work” provision of FLSA. In analyzing the issue, the court asked three questions: • Were the rescue squad members controlled by the city’s Department of Emergency Medical Services the same way an employer customarily controls an employee? The court asked whether the Department of EMS could override a rescue squad’s acceptance or rejection of a candidate for membership. The answer was no. And could the department discipline a rescue squad’s individual members? Again, no. • Were the day-to-day operations of the rescue squads controlled by the Department of Emergency Medical Services? Although the Department of EMS divided Virginia Beach into response brigades and zones; selected brigade commanders, squad commanders and assistant squad commanders to coordinate EMS activities in those zones; and created schedules for assignment of rescue squad members as the shift EMS supervisor, these activities were not “suficient to establish an employer-employee relationship under the FLSA.” • Was the city’s provision of cars for use by the rescue squads, and of loans and grants to purchase rescue trucks and ambulances, enough to establish the control required for evidence of an employer-employee relationship? No. And what about the workers’ comp and death beneits the city furnished to rescue squad members? Again, no. The Fourth Circuit judges also disagreed with DOL’s “friend of the court” argument that EMS work done by volunteer squad members was done for the City of Virginia Beach and was thus “providing [public safety] services for a public agency.” The Fourth Circuit ruled that “there was no reason to believe that Congress intended to insert the issues of control and beneit to the exclusion of all other considerations into the determination of whether a public agency employee is volunteering services ‘for a public agency’ in the irst instance.” Instead, the Fourth Circuit judges said that they would focus on whether a particular activity constitutes employment to “ferret out any cases where, unlike the one before us, there is a ‘sham’ volunteer corporation ... to avoid the compensation provisions of the [Fair Labor Standards] Act.” continued on next page Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 19 Benshoff captured the attention of Montgomery County’s PNP ire departments and prompted the Burtonsville Volunteer Fire Department Inc. to ask the DOL for a formal “opinion letter” addressing the question of whether the Benshoff analysis and conclusions also applied to Montgomery County and its relationships with its ire departments. On Nov. 27, 2001, DOL Acting Administrator Annabelle Lockhart issued DOL’s formal opinion--in applying the Benshoff analysis to Montgomery County and its PNP ire departments, Lockhart ruled that career Montgomery County ireighters who served as volunteers in one of Montgomery County’s PNP corporation ire departments were not “employees” when they served as volunteers. Lockhart’s opinion was challenged by Montgomery County, and in May 2002, Administrator Tammy McCutcheon, who was Lockhart’s successor, met with the Montgomery County attorney, Montgomery County Fire/Rescue staff, two Rockville Volunteer Fire Department Inc. members and a representative of the career ireighters union to review Lockhart’s decision. At the end of the meeting, McCutcheon stood by Lockhart’s indings. “We noted,” said McCutcheon, in a post-meeting opinion letter dated June 5, 2002, “that there are a number of factual differences between the Benshoff case and the situation in Montgomery County, the most signiicant being that in Montgomery County the volunteers provide exactly the same services (both ire and emergency medical services) as do the career employees. In contrast, in Benshoff the city was not licensed by the State to provide the Advanced Life Support services provided by the rescue squads, and the rescue squad volunteers did no ireighting. “However, we concluded that the primary facts that led the court in Benshoff to conclude that the FLSA did not require compensation for volunteer time were similar in Montgomery County... Those separate corporations exercise day-to-day control over what positions volunteers hold, what they do and when they do it. “Therefore, in light of the Benshoff decision, we conclude that the FLSA does not require Montgomery County to pay its career ireighters if they volunteer, freely and without coercion, to provide services to the non-proit ire and rescue corporations in the County. This is true whether they are providing services as a ireighters or as an emergency medical technician.” [Emphasis added.] Until June 5, 2002, arguments about Benshoff and its applicability to ire and rescue departments were largely limited to Maryland, Virginia, West Virginia, North Carolina and South Carolina--the jurisdiction of the Fourth Circuit Court of Appeals, because the opinion of one circuit court isn’t automatically binding in another circuit court’s jurisdiction. But the Lockhart and McCutcheon opinion letters brought the Benshoff tests out onto the national stage because DOL opinion letters can be used in every State. When news of these formal opinions reached the ire service, there were many ire chiefs who believed that his or her career ireighters could also serve as volunteers in the same department without FLSA penalty. That impression was supported by summaries of those opinions by FLSA experts. Here’s one example: continued on next page 20 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects “In a major policy change, the U.S. Department of Labor has decided that ireighters may volunteer to perform the same type of services within their employer’s jurisdiction that they are paid to perform--without those hours increasing the employer’s overtime pay obligations under the Fair Labor Standards Act (FLSA). [Emphasis added] The casual reader might conclude from this bulletin that “within their employer’s jurisdiction” means the jurisdiction of any ire department employer. And many casual readers did. Within a day or two of the release of McCutcheon’s opinion letter, I’d ielded at least 20 phone calls from ire chiefs of combination ire departments who wanted me to conirm that DOL had seen the light and freed them from the shackles of FLSA’s overtime requirements. But I couldn’t help them. The “jurisdiction” that DOL’s Lockhart and McCutcheon addressed was limited to • A county or city ire/rescue department, • With career employees, • Who volunteered with an independent private non-proit corporation ire (or rescue) department in the same county or city, • Which “exercise[s] day-to-day control over what positions volunteers hold, what they do and when they do it.” If your ire department jurisdiction meets all four of the criteria listed above, your career ireighters--like those of Virginia Beach and Montgomery County--have new volunteer opportunities. If not, hang onto your FLSA reference materials, because you still need them. two-in, two-out osha ruling--OSHA issued an interpretation in 1995 of one of its long-standing standards to require ire department to have four ireighters assembled at a structure ire before an interior attack could be made on the ire. The intent of this ruling is to require two ireighters to stand by outside of the structure as a safety team for the two ireighters who enter. Unfortunately however, this ruling creates an additional burden on departments that are already struggling with the size of their memberships. To comply with the ruling, some departments have had to increase the number of volunteers on a duty shift, which ultimately creates more time demands on the members. As discussed previously, time demands are one of the leading causes of recruitment and retention problems. ePa live-fire burn limitations--The EPA has issued strict standards that restrict ire departments and training agencies from conducting live-ire training burns in certain areas of the country. The rulings are part of larger emission control standards that affect Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 21 urban, suburban, and industrial areas in particular. Fire departments in areas affected by the standards cannot conduct the realistic training burns that they once did. To complete training courses, ireighters in these areas may be forced to travel great distances to areas where they can conduct live-ire burns. This creates greater time demands on volunteers who are trying to complete live-ire training. internal conflict I nternal conlicts and other stresses drive members out of ire departments. The two greatest problems with internal conlict in the volunteer ire service originate among leaders or between volunteer and career members in combination departments. disagreements among departmental leaders--When disagreements among departmental leaders (either oficers or administrative oficers) develop, the membership may become disillusioned. When the disagreement becomes personal or is not resolved quickly, the resulting tension drives members out. Unfortunately in many departments, power politics arise. Generally, the major concern is who will be the “boss,” and make major decisions. Egos get in the way of the purpose of the organization and providing the best emergency services for the community. More will be written about this later. friction among Volunteer and career members--A major source of recruitment and retention problems in some combination volunteer-career departments is friction among members. The friction often arises from disagreements about the way things should be run, or power struggles over whether a volunteer or career member/oficer will be in charge at an emergency incident. Sometimes, one group may have more training than another group and claim it is more experienced. It is vital that the training levels for both career and volunteer members be the same. The State of Illinois is a good example of a single training program. In fact, some volunteers may even make more responses; therefore, gain more experience than a shift-working career member. Good examples of where these problems have been overcome and smooth working combination departments exist are the Baltimore County, Maryland, Fire Department and the Hanover County, Virginia, Public Safety Department. In Baltimore County this is accomplished by a unique system of having a single ire department, but allowing the individual volunteer stations to maintain their identity, and organizational and administrative authority. However, all career and volunteer stations must meet the same standards of stafing, training, and operational procedures. A career chief oficer assumes control of incident operations upon arrival. 22 t he r etent ion & r ec r uitment c h alleng es : Causes & Effects higher cost of housing M any afluent areas across the country are struggling to retain members who cannot afford to live where they volunteer. The volunteer ire service has historically drawn a large number of blue-collar individuals who typically cannot afford the expenses of high- income areas. The rate of decline in the number of volunteers in these communities is often inversely proportional to the increase in housing costs. Members who join departments in afluent areas when they are younger generally cannot afford to purchase their irst house in those communities so they move to another jurisdiction that may be too far away to respond as a volunteer. In some cases, the cost of renting is also too expensive for volunteers. It is usually dificult for afluent, white-collar communities to replace these members. As an example, these communities need to explore volunteer ire station residing/in-station programs (with some compensation) for night coverage. Daytime coverage may be available from shift works, or career personnel may be necessary. In some cases, outside aid can augment the volunteer response, or contract services can be acquired. Other options may exist locally and need to be evaluated. aging communities M any areas have aging populations where volunteer ire departments have dificulty inding younger members to replace those who retire. Some towns have experienced a steady increase in the average age of residents; other towns have been created as retirement communities that speciically attract older people. Both these types of towns struggle with recruitment. The primary cause of this situation is the steady increase in the aging population in the country. It also can be attributed to the lack of economic growth in smaller towns. Younger individuals leave towns that lack jobs. There are still a few departments in rural areas where retention is not a problem; however, these communities are increasingly the exception. The recommendations for afluent areas will also apply here. effects of the decline in Volunteers T he erosion of the volunteer ire service in the United States has economic and social effects. The economic ramiications are obvious, as towns are forced to hire career ireighters in place of volunteers. The 75 percent of the country served by volunteer ireighters relies on them to be the irst line of defense in almost any type of emergency from ires and medical emergencies to technical rescues and hazardous materials spills. Volunteers are the initial mitigators before the arrival of county, State, or Federal backup emergency response teams for all types of natural disasters. Of the over 30,000 ire departments in the United States, 88 percent are volunteer, protecting 40 percent of the population. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 23 On September 10, 2004, the NVFC Foundation oficially released its Cost Savings Study and Calculator at the National Associations of Towns and Townships Conference in Washington, DC. The study, which was conducted by the Public Safety and Environmental Protection Institute at St. Joseph’s University with the assistance of VFIS, found that it would cost U.S. taxpayers $37.2 billion annually if they had to replace all volunteer ireighters nationwide with career stafing. Some have indicated they cannot afford to hire career ireighters, and that the services of ireighters would not exist if their departments failed. Others have said that their towns could afford to hire a few career ireighters, but that volunteers would still be necessary to supplement the career staff. According to the Cost Savings Study, an average igure that can be used for a career ireighter’s salary and beneits is $71,500 per year. The actual igure varies by area of the country. The loss of volunteers also would have more subtle social ramiications. In many communities, particularly small towns, the volunteer ire department has been a social center. Dinners, dances, family reunions, and weddings all have been held in the ire station. Volunteer ireighters embody and represent the spirit of the community. They are often the centerpiece in parades. The loss of the volunteer ire service would be a major social loss for any community. estimated saVings generated bY Volunteer firefighters and emts in delaWare in 2004 Salaries & Fringes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $125,591,025 Equipment/Purchase/Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . $8,553,600 Building Purchases/Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $1,017,500 Employee Apparatus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $1,173,214 TOTAL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $136,335,339 Source: Delaware State Auditor’s Ofice RETENTION: Challenges & Solutions Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 27 leadershiP A ire department’s ability to retain volunteer members has a direct relationship to its ability to manage its people. Many retention problems can be traced back, directly or indirectly, to inadequate or misguided efforts from department managers. Effective leadership (see following list) helps retain members as well as reduce dissatisfaction. Ineffective leadership is perhaps the leading reason for a decline in membership. If a volunteer’s experience is not constructive or is dissatisfying because of leadership conlicts, the volunteer most likely will quit. There are too many time demands on people today to tolerate a poor volunteer experience. Most volunteers agree that effective leadership is key to resolving retention and recruitment problems. Effective leaders with character qualities listed on the following page are vital to the success and strength of the department. One thing to remember: leadership qualities and skills are not simply acquired, they must be learned and practiced. They also must be exhibited both in the station and on the ireground so that others can learn them by observation. Bylaws, rules, and regulations also are important. It is the leadership’s responsibility to maintain discipline and carry out departmental regulations fairly and consistently. Clear, measurable standards of performance and conduct should be developed and enforced. These should be written by a group representing all ranks and elements of the department. Once these policies are set, the leadership must communicate them to the ireighters. This can best be accomplished by providing all members a written copy, discussing any concerns, and updating them as necessary. Leaders also must learn to share tasks and delegate responsibilities to all members of the department. The management must recognize that each member will have different levels of time and energy. Instead of overloading one person with many duties, each volunteer should be used and respected for his or her distinct talents and knowledge. A chief may request the aid of a person whose full-time career is as an auto mechanic when apparatus needs work, or ask a person with computer experience to work on data reports. The delegation of tasks to all members not only divides the amount of work so that one person is not overburdened, but it also allows each member to take on a responsibility, giving them a feeling of ownership and importance in the organization. This is critical to retention of dedicated, enthusiastic, ambitious members. If their talents are not used in the ire department, they will take them elsewhere. 28 r etention: Challenges & Solutions firefighters’ association bill of rights* 1. The right to be treated as a coworker--and not just free help. 2. The right to suitable assigment. 3. The right to know as much as possible about the organization-- policy, people and programs. 4. The right to participate in activities. 5. The right to quality training. 6. The right to sound guidance and direction. 7. The right to proper working conditions. 8. The right to a safe working enviroment. 9. The right to promotion and a variety of experiences. 10. The right to be heard; to have a part in the planning. 11. The right to recognition, through promotion and reward. 12. The right to day-to-day expression of appreciation by the management of the district. Fire Chief President of the Board Fireighters’ Association President *This is merely an example and is not a law or endorsed by the Department of Homeland Security (DHS) or the United States Fire Administration (USFA). Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 29 However, it is imperative to remember that many people volunteer to escape their everyday lives, and do not want to repeat their daytime job when they are at the station. It is often beneicial to ask members to choose projects, allowing them the opportunity to adopt their own duties. It is important to be aware of each volunteer’s talents and needs, while getting the job done eficiently. It is best to strike a “happy medium.” If members wish to escape their regular work, recruit them to be operational members. At the same time, think and recruit outside the normal box: be innovative. Often it is extremely beneicial to recruit new members for non-ireighting specialty tasks within the department; for example, a bank employee or accountant to do the inancial work, a lawyer for legal issues, a human relations expert to handle personnel problems. Then treat these non-ireighters with the same respect and beneits as the ireighters. A program introduced by the Federal government is Fire Corps, which is detailed in Appendix D. management stYle Many members have been driven out by problems with their chief or oficers’ management style. As a result of this and other changes in workplace management philosophies, there has been a striking move in volunteer ire departments across the Nation toward participatory management. Of serving volunteers, 58 percent are between the ages of 30 and 49 and another 18 percent are older. These people are no longer “kids,” and many are managers in their own right. They have a lot to offer and must be used effectively, or they will be lost. Volunteers do not want to work for a chief who is viewed as an inlexible dictator. Volunteers want to be proud of their organization and comfortable with it. They do not want a lot of grief while serving. In a survey of reasons for leaving a ire department, one former volunteer ireighter said, “There is only one way to do things in this department--his way.” Another former member was very critical of his chief. Feelings about the chief, as reported in the survey, included perceptions that the chief was not a competent manager; the chief did not respect the time of the members and expected everyone to devote all of their time to the ire service (as the chief did); the chief was tarnishing the image of the department; and the chief was not competent in directing ire operations. To make sure that chiefs understand their leadership responsibilities in respecting the individual, Benton County, Arkansas, gave each ire chief in the county a copy of the book Volunteer Fireighters: A Breed Apart. This called attention to the expectation that they should be considerate to their ireighters, and gave the chiefs a better understanding of why volunteers are such a unique group. The intended message was conveyed as much through the act of giving the book to the chiefs as in the content of the book itself. 30 r etention: Challenges & Solutions FIREgROuND MANAgEMENT VERSuS FIRE STATION MANAgEMENT On the ireground, a set military-style structure of command and leadership may mean the difference between life and death. However, at the station, leaders should consider options other than a traditional military style of command. Volunteers prefer more democratic leadership styles around the station. While most volunteers do not respond well under dogmatic or dictatorial leadership, neither do they lourish under a lackadaisical management attitude. Having a “do whatever you want” ireground style is detrimental and no longer permitted under NFPA 1500, Standard on Fireighter Occupational Safety and Health Program and operational procedures, whether Incident Command System (ICS), Incident Management System (IMS), or National Incident Management System (NIMS). Having a “do whatever you want” ire station style will cause morale problems. A lack of leadership leads to a lack of direction, and in almost all cases, the department declines. DEMOCRATIC/PARTICIPATIVE MANAgEMENT Using a democratic or participative management style around the station may take some adjustment at irst. Democratic/Participative leadership means that everyone shares in running the department; it does not mean the structure of leadership is lost. The simple way to do this is to run the ire station using ICS. Projects and responsibilities can be divided up and everyone has a place and task to perform. Chief oficers (group supervisors) still should guide project teams, help them deine their goals and project time frames, keep abreast of their progress, and coordinate interaction among them. There are a variety of ways to include the volunteer in the management of the department, such as designating them to committees (groups) to run tasks such as prevention, equipment purchases, hazardous materials response, personal protective equipment (PPE), or many others. The groups study the issues and make recommendations to the full membership and the chiefs. Fire departments, however, run into problems when ire chiefs regularly disregard the recommendations of groups. This hurts the morale of group members, as well as affecting retention. To avoid situations where the chief may disagree with a group’s recommendations, the chief should provide guidance to the group from the outset, including the scope of the group and the degree of latitude the group will have in the decisionmaking process. Members must be treated as part of the organization rather than “free labor.” A highly successful approach to participatory management is the “circle inside the pyramid” organization (i.e., a traditional pyramid organization on the ireground and a joint planning style “circle” back at the station). A major beneit of decentralized management is that it relieves the chief and oficers from having to perform all of the management duties of the department. As one chief has said, “Everybody that joins has a need to join, and when membership weakens, it’s probably because the people don’t get a chance to participate.” Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 31 Other ways to involve the membership in the decisionmaking process: • Voting. In some departments, the membership is responsible for choosing their helmets, self-contained breathing apparatus (SCBA), and personal protective equipment (PPE) by vote after manufacturers make presentations for members on the various alternatives. In one department, the chief designates the goals and objectives of the department, but allows the oficers and volunteers to decide how they implement them. By creating an atmosphere where the volunteer can become more involved, a department is furthering recruitment and retention. The members are making an investment, one from which they will not want to walk away. • assign oficers to lead specialty units, for example, the search and rescue unit, or the communications unit. This provides a multitude of leadership opportunities. “Volunteer VieWPoint” If you want my loyalty, interests, and best efforts, remember that... 1. I need a sense of belonging, a feeling that I am honestly needed for my total self, not just for my hands, nor because I take orders well. 2. I need to have a sense of sharing in planning our objectives. My need will be satisied only when I feel that my ideas have had a fair hearing. 3. I need to feel that the goals and objectives of the organization are within reach and that they make sense to me. 4. I need to feel that what I’m doing has a real purpose that contributes to human welfare--that its value extends beyond my personal gain, or hours. 5. I need to share in making the rules by which, together, we shall live and work toward our goals. 6. I need to know with some clear detail just what is expected of me--not only my detailed task but where I have opportunity to make personal and inal decisions. 7. I need to have some responsibilities that challenge, that are within range of my abilities and interest, that contribute toward reaching my assigned goal, and that cover all goals. 8. I need to see that progress is being made toward the goals we have set. 9. I need to be kept informed. What I’m not up on, I may be down on. (Keeping me informed is one way to give me status as an individual.) 10. I need to have conidence in my superiors--conidence based upon assurance of consistent fair treatment, or recognition when it is due, and trust that loyalty will bring increased security. The Effective Management of Volunteer Programs. J. Donald Philips, Hillsdale College, Hillsdale, Michigan. 32 r etention: Challenges & Solutions But to repeat, promoting participatory management does not mean losing all discipline or command structure. It is important to have rules, regulations, policies, Standard Operating Procedures (SOPs), and Standard Operating Guidelines (SOGs) that are enforced. Most volunteer departments ind that strong but fair discipline helps rather than hurts retention. There is no room for double standards of discipline in the volunteer ire service. It can also improve the relationship with local authorities as well as make the department more professional. SEEkINg MEMBERSHIP FEEDBACk Good leaders always seek input and feedback from their ireighters. An annual “roundtable meeting” where any member of any rank is allowed to discuss what he or she thinks is going well in the department as well as any problems may be a course of action. This meeting can be very important to members because it allows everyone to have input and relect on the State of the organization. Many problems are resolved at meetings like this. Broad input from the membership on policies, purchases, and other major decisions may be another solution. One department holds a “Four C’s” meeting where the oficers solicit the following information from each member. • compliments: What do you think is good about the ire department? • convictions: What are your beliefs about the direction of the ire department, and what is your vision for its future? • concerns: What current or potential problems need to be addressed? • comments: Do you have anything else to say about the department? mission statement Emergency service organizations must have an understanding of “where they are” and “where they are headed.” To achieve this, it is important to plan the way into the future. This process includes developing a goal, mission, objectives, and a vision. The following deinitions and example will be of beneit as an introduction to the next section. goal --long term, broad-based ideal to be completed. mission --clearly deined task to be accomplished to achieve purpose. objectives --measurable, time dependent, steps leading to completion of mission and goal. Vision --future target of excellence. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 33 Example: goal --Comply with all of NFPA 1500. mission --Improve ireighter safety as much as possible. objectives --Steps to take to achieve this. Vision --No ireighter injuries or deaths. One of a department’s leadership’s prime responsibilities is to deine the mission of the organization and put it in writing. A clear mission statement gives a sense of purpose to those who volunteer. A volunteer ire department’s mission may change dramatically over time. The department as a whole should review the mission statement at least annually to remind members of their purpose and to make adjustments as necessary. Reviewing a department’s mission is another excellent opportunity for management to involve the members in the organization. When there are changes in services offered, it is important to revise the mission statement and deine the role of the member as well as the department as a whole. For example, a recent trend has been adding EMS to the traditional ireighting job. While some ire SAMPLE MISSION STATEMENT FOR AN ALL-VOLuNTEER DEPARTMENT SAMPLE MISSION STATEMENT FOR A COMBINATION DEPARTMENT The Ponderosa Volunteer Fire Department’s mission is to be a leading emergency service organization by: • meeting the needs of our community in ire prevention, ire suppression and rescue; • utilizing and improving the dedication and skills of our people; and • constantly improving all of our services and operations In carrying out this mission, the Ponderosa Volunteer Fire Department will: • give top priority to ireighter safety and environmental concerns; • encourage the professional and personal development of our members; • work as teams to take full advantage of our skills, knowledge and creativity; and • communicate openly and honestly to our members and community to inspire trust and conidence. Courtesy Ponderosa (TX) Volunteer Fire Department As volunteers, our mission is to work jointly with career Fireighters and Paramedics to: • prevent ires and medical emergencies from occurring through safety education; • control ire, medical, and other emergencies should prevention fail; and • enhance the level of emergency services provided to the citizens by the County. Courtesy Cherrydale (VA) Volunteer Fire Department 34 r etention: Challenges & Solutions department members participate in both functions, other departments separate EMS and ire protection with members participating in one or the other function. The objectives should be speciic, describing services such as hazardous materials mitigation, urban search and rescue, and other specialties. A mission that diversiies over time may be useful for retaining members who become complacent due to the increasingly smaller number of working ires. A mission statement for an all volunteer department may be different than that of a combination department. For example, compare the mission of the Ponderosa, Texas, Volunteer Fire Department, an all-volunteer department, with that of the Cherrydale, Virginia, Volunteer Fire Department, a combination department. long range Planning, goals, and obJectiVes Having a clear idea of the future direction of the department will allow planning where and how to use volunteers. Every ire department should have a master plan and a strategic plan to give it direction. These plans can be based on 5- or 10-year increments. These “plans” state the overall goal and the objectives to be accomplished in the selected time period. They should be working documents and subject to change. The “plans” require annual review and updating. The master plan divides the community into ire management areas and reviews ire control and target hazards in each area. Future growth and development are forecast and compared to present resources and future needs. Resources available and needed for each ire management area reviewed in order to plan for current and future control of the ire problems. Strategic planning looks at the department’s organization and places a focus on managing change and organizational performance. Strategic planning performs an organizational resource assessment, deines the service expectations, and develops a planned priority for using resources to meet expectations. Both types of planning lead to the establishment of an overall goal and numerous objectives to measure progress. Fire chiefs should communicate their long-term vision for the department to members. They also should establish annual objectives toward meeting this vision. By stating the department goal, vision, and objectives up front, volunteers know what to expect. This reduces anxiety about the future by establishing a clear direction, a road map that members will understand and support. selection and tenure of the chief There is considerable disagreement over what the tenure of the chief and oficers should be, but there is strong agreement that the criteria for selecting them should be stiffened, and that the selection should not be based only on popularity. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 35 The leadership skill of the chief is the most important factor in recruitment and retention. The chief’s personality and competence in communications, personnel relations, and human resource management are vital. The chief is therefore critical to successful recruitment and retention. The volunteer chief’s role has become much more complex than it was in the past. Chiefs must be knowledgeable in technical issues, personnel management, health risks, budgeting, and liability issues. The chief’s roles include being a counselor, a facilitator, and a family member. Volunteer departments should establish chief oficer selection criteria that relect all areas of responsibility. While there are merits to having leaders that everyone likes, there is a strong consensus against electing a chief solely on the basis of popularity. “Don’t just vote for your friend,” said one chief. If the chief does not know his or her “stuff”, the members may lose respect for him or her and quit. After reviewing NFPA 1021, Standard for Fire Oficer Professional Qualiications, the department should develop minimum qualiications that must be met by those who wish to become chief oficers. There is a need for administrative, leadership, and management skills in addition to being a competent ireground oficer. The knowledge needed to be an effective chief cannot be gained in a short time. Most volunteers feel that chiefs should rise up through the ranks of the department. This way they not only gain experience, but also become familiar with the department from all perspectives. Others also will have more respect for them because they have been a line ireighter. Most departments have an election process as well as minimum requirements for the chief’s position. Some departments have evolved methods of choosing a chief that are speciically designed to alleviate problems of bias. Many departments now use tests as a part of the selection process. While good test takers may not necessarily make good oficers, testing is commonly recommended as one element of the selection process. In States where many departments are part of the municipality, it is common for the city manager or city council to have the inal approval for a new volunteer chief. In many communities, departments take pride in promoting leadership continuity from one generation to another. However, the mantle of leadership should be earned, and not necessarily passed on to a family member of the incumbent chief, unless he or she is qualiied and voted on by the members. There should be no “double standard” or favoritism for family members. All candidates should meet the minimum qualiications. As the demands on volunteer departments have increased, as well as standards regulating them, the pressures on the chief also have increased. Some departments are inding it dificult to ind anyone who wants to be chief, especially someone who is qualiied. This 36 r etention: Challenges & Solutions has caused many volunteer departments, especially in New England, to pay the chief as a full-time or part-time employee. An alternative to this is to hire a irm to perform administrative functions or acquire full or part-time administrative support personnel. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 37 A number of volunteers feel that a chief should have at least a 3-year tenure. Not only can it take a year to learn the job, it also can take years to implement new ideas, and turn around a department headed in the wrong direction. Many departments have a 1-year term for the chief position, but will reelect a chief for many years if the members are satisied. Rapid turnover is a key concern, and rarely beneits anyone, especially in the area of recruitment. Some argue that the chief position should rotate frequently to allow for promotion, but the overriding concern should be achieving good leadership over the long haul. selection and tenure of officers While good leadership by the chief is paramount, retention is inluenced by the quality of the other oficers. In most ire departments, career and volunteer, the quality of oficers is the weak link. The most common quality problems are the lack of essential administrative, communication, personnel management, and technical skills. In selecting volunteer oficers, both their technical and management skills need to be considered. Some departments use the same standards for promoting volunteer oficers as career oficers (i.e., a civil service exam or assessment center and interviews). Technical prowess is important because it gives the oficer respect. However, to be effective an oficer also needs to know how to deal with personnel issues such as discipline, supervisory, or personal problems. Volunteering is often an escape from other life pressures; a volunteer environment where people are not managed properly and problems are not resolved correctly will increase pressure, and hurt retention. See Appendix E for samples of an oficer promotional process and oficer evaluation forms. Some departments allow their oficers to be re-elected after 1- to 3-year terms; however they are not locked in the position, and can return to being a basic member for their own peace of mind or for the good of the department. This allows other members to compete for the positions, encourages oficers to keep current, and keeps the oficers on their toes. Other departments automatically rotate oficers after 3 years, so no one person is stuck indeinitely with the extra duties required of an oficer. Also some departments require that oficers be re-tested every 3 years to ensure their competency. Those who do not have the will to maintain their expertise are dropped. These different policies toward oficer tenure all have the same goal: keeping the quality of oficers high, retaining the good people who serve as oficers, and giving members a fair shot at becoming an oficer. training of the chief and officers Inadequate training for volunteer chiefs and oficers is a common problem. Oficer training must be affordable, accessible in the ield, scheduled on nights and weekends, and conducted in a time span “that works.” Many departments now require oficers to have completed an Oficer I course as recommended by the NFPA oficer standard. Chief 38 r etention: Challenges & Solutions level oficers, in particular, should take additional courses in volunteer management and leadership such as the NFA’s Volunteer Incentive Program (VIP), which is a free training program. Oficers need to take classes in leadership and acquire the skills of directing personnel and managing a group composed of all age levels. internal communications The vast majority of management problems are due to miscommunications, misinformation, or wrong assumptions by members. Volunteers may quit over matters of policy or requirements that have been misunderstood or not communicated to them. Policies and procedures that are in writing and available to all for reference can alleviate misunderstandings. Volunteers also may quit because they feel out-of-the-loop with what is going on in the department. These problems can be avoided by providing regular “good information” to members through formal discussions, postings, emails, and newsletters that are open and available to all members. Information is not useful if it does not reach its intended audience. The chief must channel information through oficers, and oficers must channel it on to the ireighters. Too often information coming into the department stops at the top or in the oficer ranks. Some chiefs and oficers do not share information because they feel insecure and threatened if their people know too much. Knowledge is power. Others who are very control-oriented may keep information to themselves because they prefer to run operations alone without the interference of others. These attitudes are excluding and detrimental to effective communication, volunteers’ morale, and retention. Rumors develop in every ire department, and innocent rumors can destroy an organization. Good communications stop rumors from ever developing, let alone spreading and damaging the department or a member personally. Good oficers know the common causes of communication problems and avoid them. Communication is more than just passing information to others. It also involves listening skills, including management listening to department members. Active listening means listening to other people with the intensity one reserves for speaking. Chiefs and oficers need to talk with the people in their department, trying to understand them, and listening to their problems and gripes. They need to show sincere interest in what the members think and how they feel. Information about volunteer management and leadership training courses, including the National Fire Academy’s Volunteer Incentive Program, is available by calling the National Volunteer Fire Council at 1-888-ASK-NVFC or the National Fire Academy at 1-800-238-3358. www.nvfc.org www.usfa.dhs.gov Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 39 Many departments are moving with the times, as are many businesses, using new technologies to improve communications among members. Technologies that can help you to communicate include • fax machine. Faxes can be sent out regularly to all stations. Faxing information distributes it quickly and in a written format to avoid miscommunications. • alphanumeric pagers. Communication can be improved, as can attendance at meetings and drills. Alphanumeric pagers are also a good tool for distributing kudos messages to recognize volunteers. • electronic mail. Email allows rapid, easy communication to members. Departments should establish group distribution lists that allow a message to be sent to all members or a group of members with one click of the computer mouse. • Voice mail. Every oficer and board member should have voice mail today. Voice mail systems also allow for distribution of a message to a group. • Worldwide Web pages. Departments should be encouraged to establish their own Web site. Information useful for recruitment can be posted. Many departments have begun to post their newsletters on the Web. Other ways to make sure information is communicated to members: • bulletin boards. Information about training, meetings, and orders should be posted at the station for everyone to see. Bulletin boards also can be created on department Web pages. • Post meeting minutes. Minutes from business meetings should be posted in the station(s) for everyone to see, and preferably by email to ensure communications to members who miss meetings. • issue new members written guidelines and information about the organization, such as its SOPs, beneits, schedules, requirements, and answers to sample questions that a new recruit may ask. • assign mentors. They should provide guidance, introduce the member, and be available to answer questions or clear up misunderstandings about policies. Mentors also should be available to coach new members during training sessions and drills. • teach members to communicate. This type of program helps clear up internal rumors, improves communications among all levels, and even helps some members communicate better at home with their families. For example, Lacey (WA) Fire District #3 hired a trainer to teach its volunteers how to communicate and how to avoid miscommunications. In areas where the literacy level is low, some members might not be able to read newsletters. More common, there are members who do not read regularly. Many people will never have computer literacy. Therefore, newsletters, computer bulletin boards, and 40 r etention: Challenges & Solutions other printed information are often not enough to ensure good communications. The literacy problem can be addressed by verbally passing on information at all departmental functions. It may be necessary to have separate conversations with challenged members. Key information will need to be dispersed through several channels, both written and oral. Volunteer coordinator Some localities with multiple volunteer departments have established a volunteer coordinator position to coordinate activities among independent departments. The purpose of the coordinator is to assist with many of the day-to-day tasks of running the department, to improve coordination of day-to-day activities, and thereby to relieve the oficers of some of the burdens of running the department. This is often conducted on a county or regional basis. A volunteer coordinator can handle many routine tasks such as scheduling training classes; writing an interdepartmental newsletter; handling issues that affect all companies, such as mutual aid agreements; creating recruitment drives; processing paperwork (applications, incident reports, etc.); and assisting new recruits. The coordinator alleviates the volume of routine but necessary tasks that chiefs otherwise would have to handle. This can help retain chiefs who might become “burned out” by the time it takes to complete paperwork and the many ancillary tasks. In addition, the coordinator is a central source of information and communication for all of the departments. In combination departments, the coordinator can serve as a liaison between the volunteers and the ire chief at daily meetings that the volunteers are not able to attend. In many ways, the volunteer coordinator is the “incident commander” of administrative duties among the various departments. This position may be illed by a volunteer member, but in large or busy systems, it is preferable to establish this as a career position due to the volume or work. Fairfax County, COMMON CAuSES OF COMMuNICATION PROBLEMS • failure to share information clearly leading to misunderstandings; • failure to share information openly; or • failure to disseminate information through multiple channels. RELIABLE COMMuNICATIONS Important information should be shared through at least two channels (e.g., by newsletter and pager) to make sure everyone receives the message. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 41 Virginia; Hillsborough County, Florida; Montgomery County, Maryland; Sedona, Arizona; and Lacey, Washington are examples of departments that have hired full-time volunteer coordinators. adoPting dePartment standards The image of a volunteer department is formed in part by the standards it is expected to meet. Many departments establish standards for training and standards for operations (sometimes called standard operating procedures or SOPs). Standards establish a framework for organization and performance, and often instill pride and conidence, which are qualities that are good for retention. The new NFPA 1720, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments will provide considerable guidance. On the other hand, standards can be a barrier to retention if members do not understand their purpose or if they establish excessive requirements. Training standards are vital to any department, and standards actually can help retention instead of being a barrier if line oficers properly communicate the intent of the standards. Standards allow volunteers to achieve professional training competencies. In some departments, however, ireighters are quitting rather than going through the certiication process to meet their department’s training standards. They complain that the standards are too time-consuming to meet, or too rigorous. Line oficers must explain to members that the intent of training standards is to improve and enhance skills, knowledge, and safety. Training standards also are intended to establish minimum competencies for all personnel. In today’s society it is essential that all emergency service organizations develop, adopt, and implement standard operating procedures and guidelines. SOPs and SOGs make operations more professional; however, they can increase frustration and hurt retention if not used properly. Both the department leadership and its members need to live by the department’s policies, standards, and guidelines. To aid in the development of SOPs/SOGs, understanding speciic deinitions is essential: Policy --A guiding principle or course of action adopted toward an objective or objectives. A policy describes the general principle that will guide behavior. It is a deinite course or method of action to guide and determine present and future decisions. Procedure --Prescribes speciic ways of doing speciic activities. An SOP regulates the formal steps in an action, and is a series of steps followed in a particular order. guideline --A statement, indication, or outline of policy by which to determine a course of action. An SOG is a guide or indication of a future course of action. regulation --Is a rule or order prescribed by an authority to regulate conduct. 42 r etention: Challenges & Solutions rule --A principle set up by an authority, prescribing or directing action or forbearance. SOPs/SOGs do not describe the technical skills of how to do a job, but describe the organization’s procedural guidance for doing the job. For example, they would not explain how to operate the audible and visual warning devices, but would indicate when their use is permitted. Many departments have found the following recommendations effective in developing and implementing effective SOPs/SOGs. • Inform the membership as to the need to develop, adopt, and implement SOPs/SOGs, and how the process is undertaken. • Build the development team. Commit to using task forces, committees, or guideline groups involving the members of the organization. SOPs/SOGs are most effective when the members of the organization are included in the development process. As a general rule, organizations should get input from all groups potentially affected by the SOP/SOG. A key variable in determining success or failure during implementation is keeping the product “user friendly.” A volunteer department also needs a mechanism for updating these procedures and guidelines. If they are outdated or incorrect, they probably will not, and should not, be followed, hence undermining their very purpose. dePartment image A major role of department leadership is to promote a favorable image of the department throughout the community and among its members. One of the principle reasons that volunteers stay with a department is their desire to become members of an organization with a good reputation and positive image. Conversely, ireighters will want to leave an organization when its image goes sour. There are many ways to promote a good image, such as: • instill pride in uniform and the department; • train in highly traveled public places; • increase exposure through community ire prevention and educational activities; • keep apparatus and stations well maintained and clean; • inform the public about inancial savings generated by volunteers; • send newsletters to the community residents; • promote the department through the media; Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 43 • improve “customer service”; • keep political leaders informed about the department’s progress and problems; and • encourage political leaders and other community organizations to hold town meetings at the ire station. Pride in the uniform Many departments promote a positive image by encouraging members to wear their uniform in public, and requiring that uniforms be worn at prominent local functions. For example, a department can require its members to wear dress uniforms to all public meetings and any affairs where the members are representing the department. A work uniform can be worn by members at local functions where they are on medical standby like football games, rodeos, and other sporting or community events. The uniform not only makes a department more visible, but also represents the professional and business side of ireighting. There is a more subtle reason for wearing it in public as well: wearing a uniform encourages members to demonstrate appropriate behavior and professionalism. 44 r etention: Challenges & Solutions The types of uniforms worn today vary from jumpsuits to button-down collared shirts with badges and collar pins. Many younger volunteers prefer to wear embroidered golf shirts. What is important is that everyone looks alike, clean, and professional. Since many volunteers respond from home, wearing street clothes to calls, they should carry a jumpsuit in their personal vehicles so that they look more professional at the scene. Jumpsuits can provide identiication and if marked with relective striping, improve incident scene safety. Another source of pride for ire departments is their insignia. Emergency service departments should not allow anyone other than a member to wear their insignia. This not only keeps the uniform an item of pride, but also helps identify members in emergencies and enhances security issues. It also prevents misplaced criticism when a nonmember is mistaken for a member. Departments must insist that their members not wear their department uniform or insignia at inappropriate establishments, or park a department vehicle at places where the department’s image could be tarnished by association. A department’s image may be affected by problems arising because of the generation gap. Values held by the younger generation are different from those of the older generation. A volunteer department with strong paramilitary traditions often has dificulty coping with young volunteers wearing earrings, unusual hairdos, and unusual clothing around the ire station. Volunteer departments that require short hair and prohibit certain styles of clothing or jewelry may decrease retention by having dress standards that all must adhere to--standards that are designed to make the organization appear professional and elite. On the other hand many volunteer departments function perfectly well with relaxed dress standards, and that too, can be a point of pride. Questions on dress styles should be addressed to assess member’s feelings about various issues to determine if these issues do, in fact, affect recruitment and retention. Volunteers should not have to purchase their own uniforms. Uniforms should be provided free in exchange for all of the time the volunteer gives the community. Some departments purchase uniforms outright, while others provide cash vouchers for members to buy uniforms. A suggestion is to provide coveralls to all new members, and once they achieve Fireighter Level 1 status, they receive a full uniform. This instills pride and is an incentive. Pride in the dePartment and communitY Emergency service departments will ind that it is easiest to retain volunteers who are truly concerned about their community and take pride in maintaining it. These volunteers will want to ensure that their community has the best ire and emergency services possible. Involvement in local activities improves public relations and builds pride in the community. A department can sign up for the “Adopt a Highway” program where members work Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 45 together to clean their area quarterly. Many departments participate in the “Fill the Boot” charity collection program for muscular dystrophy. Others participate with law enforcement in the “National Night Out.” One department has members attend neighborhood block parties. These are an excellent opportunities for the department to garner support from the community as well as teach ire prevention, current safety issues, or hand out smoke detectors. Unfortunately, some departments report membership pride has declined as their communities have grown rapidly and lost the “personal” touch. As members have lost pride in their communities, they’ve also lost pride in maintaining equipment and the department, and there is less dedication and more problems with retention and recruitment. training in Public The quality and visibility of training affect a department’s image in the eyes of its members and the public. It is a good way to educate the public about the department and build community pride in the organization. Holding drills in places that are visible to the public assists retention and recruitment by: • letting the public know the ire department is training and working for them; • attracting prospective recruits who see the exciting part of training; and • giving the members of the department exposure to the public--a little showing off. In one case, training in the public eye literally paid off as the ire department’s vehicle budget was tripled after the department spent one year training outside, gaining visibility. deliVering Public fire safetY and PreVention Programs In addition to their importance for ire safety, public education and prevention activities improve the visibility and image of volunteer departments. These activities may include displays at malls, fairs, and other public locales; conducting both ire and public safety classes; and performing ire evacuation, carbon monoxide, or shelter-in-place drills in schools. Programs like “Learn Not to Burn” and “Risk Watch” from NFPA should be encouraged in community schools. A member of a volunteer department in Wyoming started a smoke detector campaign in which free detectors are carried on all apparatus. Volunteers offer to install detectors for residents. A year after providing the detectors, the volunteers follow up with residents to ensure that the detectors are working and have good batteries. The ire department was highlighted by the media and received positive “PR” because the members actively involved 46 r etention: Challenges & Solutions themselves in the community not only by ighting ires, but by providing ire safety as well. Volunteer departments should obtain media time to encourage the International Association of Fire Chiefs’ “Change your clock, change your batteries” program. This serves a good purpose and keeps the department name in front of the public each spring and fall. One Texas department develops a preire incident plan for every structure in the community. The department prides itself on its familiarity with the community and demonstrates a high level of caring and professionalism through these visits, which also provide an excellent time to test smoke detectors and pass on safety and ire prevention information. Well-maintained gear and aPParatus A classic point of pride for many volunteer departments is the quality of their PPE and apparatus. First-class equipment enhances safety and instills a positive self-image. Volunteers pride themselves on being progressive and cutting edge. This can be used as a recruitment tool. Although many ire departments cannot afford new equipment, similar results can be achieved to an extent by keeping current equipment clean and in excellent working order. Volunteers must take pride in the operation and appearance of their PPE, apparatus, and stations. Many States now have ire insurance premium taxes that generate revenue to support ire departments. In some cases, this revenue must be spent on protective clothing or equipment. The county ire coordinators in Arkansas have helped volunteer departments obtain funding for improved equipment through the allocation of county funds and a one- half percent tax on insurance premiums. This money is used to buy needed equipment and ire apparatus. Recently, additional revenue has come from Federal and State grants. Since PPE is vital to the overall safety of the volunteers, departments should explore all methods of funding to ensure it is current and in good condition. There are numerous grants available to support this. Many departments have acquired new breathing apparatus with grants for the Fire Act or the Department of Homeland Security. Often, State agencies such as the Texas Forest Service have grant programs for PPE. Some volunteer ire departments have found community resistance and even resentment in buying new apparatus, especially top of the line apparatus and large ladder trucks that might not be necessary. Volunteer departments are an excellent buy for their community, but must be careful of an image boomerang from purchasing unnecessarily expensive apparatus during tight budget times. One east coast volunteer department drew negative Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 47 front page headlines for purchasing the second most expensive ladder truck in the Nation in a low-risk community. Questionable iscal management will not assist recruitment. demonstrating financial benefits to communitY Informing the community about the high value of volunteers is another way to improve the image and foster the growth of a department. Many departments feel that educating the community about what the ire department is doing and how much the volunteers save the community is a good idea. This can be done through several approaches: • make the department’s annual inancial reports available to homeowners. • Publish a summary inancial report in the paper or in a fund drive newsletter. • estimate how much the volunteers save the community. Using this igure, volunteer departments can demonstrate to the local appropriations board the amount the volunteers donate in equivalent dollars and time per year. This information can be reported in the press and successfully used to argue for more equipment and funds. Use the NVFC Cost Savings Study and Calculator available on the Web site to assist with these calculations. • Publish a report on the dollar value of property saved by volunteers from ire damage. Compute the approximate value of property saved as well as ire losses. These igures put the volunteers’ effort in inancial terms that are important to the community. Using these data, the ire department generates free publicity as well as important statistics on the ire problem. This again builds pride that is important for recruiting new personnel and retaining others who feel they have a “worth” to the community. • improve insurance services ofice (iso) ratings to reduce community insurance premiums. Some departments try to improve their ISO ratings as an indicator of their proiciency, as well as a way to reduce the insurance costs in their community. Although obtaining low ISO ratings is positive progress for any department, in some areas this “progress” may backire. For example, in a rural area of Louisiana, some insurance companies raised their premiums to compensate for the loss of revenues they experienced when many rural departments improved their ISO ratings. The local ire departments faced a real dilemma of explaining why the community should invest in a good ISO rating if it does not reduce insurance rates. Join Your Volunteer Fire Rescue Company 703-771-5396 FIGHT HIGHER TAXES Loudoun County Volunteer Fire Rescue Services 48 r etention: Challenges & Solutions communitY neWsletters Another way to enhance the image of the department in the community is to send a departmental newsletter to each resident. A number of departments distribute newsletters to keep citizens informed about equipment purchases, upcoming events, department operations and capabilities, number of responses, ISO ratings, and needs of the department. The newsletters are also an excellent medium for public ire education. use of media With proper exposure through the media, a ire department can garner inancial and moral support for its volunteers. Remember, however, that the media likes controversy, and may play up problems within the department. Below are some ideas to promote a close relationship with the media, and provide good coverage for the department. • appoint a department Public information oficer (Pio). Many volunteer departments have PIOs who serve as the point-of-contact for the media and help put the department’s name into the press. PIOs should invite the media to department functions such as awards banquets, dinners, and other fun events. Coverage of these events keeps the community informed about what the department is doing. • fax news releases to the media. Fax a news release to media contacts whenever there is a working incident. Include the cell phone number for the PIO so the media can talk directly to someone on the scene. Also fax information about departmental special events. Some volunteer departments encourage reporters to train with the department to see how professional the volunteer departments have become. This can lead to a “human interest” story that can promote recruiting. Further, it might be the opening to recruit the media representative to be or assist the PIO. • issue the media ire department pagers. One department’s giving the local newspaper reporters a pager so they would know when the ire department was called proved successful. • conduct media ride-alongs. Some departments let the media ride with them to ires or join them at the ire scene. • Provide the media with photographs of incidents. • request that newspapers publish regular ire department columns. Some departments get the local weekly newspaper to run a column on the volunteer ire departments regularly, sometimes two or three times a month. • supply the media with public service announcements for the department. Provide public education programs to local network-afiliated channels several times a week to gain exposure for the ire department and to educate the public. This type of program can give a big boost to the department in the public’s eye. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 49 • run special feature articles in the paper. Area ire departments can have the local paper run a spread during EMS week and Fire Prevention Week showing members and their units. The volunteers and their family members take pride in seeing these pictures. • recruit a newspaper reporter to be a member. One department recruited a newspaper editor to be a ireighter/paramedic. This can helps the department gain more access to the paper. Remember that there tends to be high turnover of media personnel in smaller towns and rural areas, where the bulk of volunteer ire departments are located. Therefore, volunteer ire departments in these areas must • continually court the media to maintain relationships with them; • secure the placement of department news in local press; and • ensure their familiarity with the department, its members, and its mission. customer serVice Departments that take an extra step to help people in times of crisis will receive a high level of community support over time. The goodwill generated by departments that provide a high level of “customer service” will improve a department’s image and make the department more visible. This ultimately helps recruitment and retention. Several ways to improve customer service are discussed below. • have a chaplain provide postire assistance. Many departments recruit a local clergy member to be the department chaplain. In one department in the Plains States, the chaplain responds to all ires and major accidents to provide solace to victims and ireighters. The chaplain also starts the critical incident stress debrieing (CISD) process immediately when needed. The particularly innovative twist is having the chaplain stay at the ire scene with the victim families until help arrives from other agencies such as the local food bank, clothing bank, American Red Cross, or other assistance. The chaplain operates in a nondenominational way when acting on behalf of the ire department. This is an exceedingly kind and helpful service. • expand services to ire victims. Some departments have improved their image within their communities by providing great “customer service” after ires. A department can provide ire victims with boxes to collect and store valuables and arrange for damaged property to be boarded-up or secured. Some departments provide brochures with advice about how to deal with the insurance company after a ire and how to clean damaged property. • The document FA-46/June 1998 After the Fire! Returning to Normal can be obtained from the USFA. The Web site is www.usfa.dhs.gov or by calling USFA at (301) 447-1000. 50 r etention: Challenges & Solutions WorKing With local Politicians Retention problems often arise when local political leaders do not provide strong support for volunteers. Volunteers who feel unsupported have a propensity to quit. To maintain political support, work closely with local political leaders to make sure they understand what the ire department does and the level of dedication of volunteers. Invite ire district commissioners or similar oficials to department meetings and training events. “That’s part of educating them and making the system work. It makes volunteers feel like management knows what’s going on, and it helps morale,” to quote a chief using this tactic. Departments should work closely with politicians to acquire incentives for their members and discuss beneits for companies or businesses that will allow volunteers to respond from work. Proposals like reductions in local income or property taxes and State income taxes need to be made on behalf of both groups. Every department should provide an annual report to political leaders and the media. The report should be concise but informative. It is the single best way to keep people informed about the department’s accomplishments and challenges. A sample Annual Report is provided in Appendix F. The report should include the following: • department’s mission statement; • names of chief oficers and members of the board of directors; • list of services provided (suppression, EMS, Hazmat, technical rescue); • number of members (noting increases or decreases); • call volume statistics (with comparisons to statistics from the previous 5 to 10 years); • list of major accomplishments in the past year; • list of major challenges for the future; • special needs for the future; • general budget information, including major sources of revenue and expenses; and • overview of performance measures, perhaps citing NFPA 1720 (number of calls, response times). Another way a department can improve its image is to request that local governing bodies pass special resolutions to highlight accomplishments of the department or to commend volunteers. Special resolutions or commendations by political leaders show their support for the volunteers and improve morale by giving the volunteers the appreciation they deserve. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 51 other image-enhancing ideas • Participate in local parades. • Create a department informational video for display on cable television or at public events. Contract with a local television station to interview ireighters and people the department has helped in the community. Display the departmental video at public events, and give it to homeowners’ associations to show at meetings. Another outlet is the local government access cable television channel. • Hold public events at the ire station. This may include community open houses, street dances, performances, movie nights, breakfasts, dinners, and holiday events. • Host a fallen ireighters’ memorial service like that at the NFA. • Host gatherings for local political candidates. • Hold an annual old-timers dinner for former members. This shows respect and remembrance for those who have donated much of their time and energy, and sends a signal to current members. • Hold demonstrations on smoke and carbon monoxide detectors, teach ire extinguisher usage, or show ireighting equipment and techniques. • Send the department newsletter to the public and businesses. This promotes visibility and helps maintain support for the department. At all such events, the department members should have recruiting applications available. SAMPLE RESOLUTION The Oak Harbor (WA) Fire Department worked closely with political leaders to make them understand the level of commitment and services provided by volunteers. It subsequently convinced the city council to pass a resolution creating a volunteer incentive program, which provides monetary awards to volunteers for length of active service. The resolution said, “The City and Fire Department Administration recognize the value of the Volunteer Fireighters and the service they provide to the community. The demand and time required for training and incident responses will continue to increase as the community grows and as the position of a ireighter becomes more complex. This time removes the members from work, hobbies, and family. Turnover among Volunteer Fireighters occurs for many reasons and for many, the cause is beyond their control...The Mayor and City Council believe it is important to provide incentives for ireighters to remain active with the department...” 52 r etention: Challenges & Solutions risKs T he risks of being a volunteer can be reduced with good training, equipment, and effective leadership. Most volunteer departments do not ind members quitting because of the risks faced; however, the chief and the oficers must pay attention to risk management not only to reduce injuries, but also to indicate concern for the volunteer’s welfare. health risKs Acquired Immunodeiciency Syndrome (AIDS) and other contagious diseases generally have not had the impact on retention and recruitment that was once feared. However, it is still important to deal with health risks openly and routinely, emphasizing precaution. To reduce health risks and fears, make sure that members receive free hepatitis and tuberculosis shots. Issue protective gloves and masks and make sure that members use them appropriately. Departments also should offer regular health education classes to provide the latest information about health risks and ways to handle patients who are infected with a disease. The department should invite a representative from the local health department to speak at a training session each year. This gives members an opportunity to ask questions and clarify rumors they have heard about the spread or risks of diseases. Fire departments should also follow up with health oficials when a volunteer is directly exposed to blood to determine whether or not the patient carried any communicable diseases. medical eXaminations Fire departments should take every step possible to minimize the physical risks their members personally face while performing operations. Many volunteer ire departments now require medical examinations for their members, either annually or every few years. Volunteers have accounted for over half of all ireighter deaths in the past few decades, and the majority of their deaths are heart attacks. Members who are not it for active duty must be given nonstressful assignments on the scene or at the station. Unfortunately, many ire departments fear that they may lose members if medical examinations are required. Most departments only request that a member’s personal physician sign a form stating the member is it for duty. This reduces the liability for departments and hopefully ensures members are in good health. However, many physicians do not understand the rigors of the ire service and may only perform a minimal examination. It is better to have a thorough examination and assign a new member to light duty than to lose a member in a job-related death. Examinations should follow NFPA 1582, Standard on Comprehensive Occupational Medical Program for Fire Departments. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 53 Many departments also cannot afford the cost of medical exams for members. Requiring members to pay for their own examination is a barrier to recruitment and retention. There are several ways to address this: • stagger medical examinations depending on the ages of the members. All members initially must have an entrance examination, but after joining members under 35 are required to have them every 3 years; members ages 36 to 50 every 2 years; and members over 50 every year. • Pay a doctor a lat fee for all members. One department saves money by asking a doctor to give the exams for a $500 yearly stipend. His costs are much greater than this, so he is honored each year for his contribution. • recruit a doctor to be a member. Another department recruited a doctor to give physicals. The department pays for laboratory fees, but the doctor conducts the physicals for free. SAFER grants can be used to fund medical examinations. concerns of the familY Family members, particularly spouses of ireighters, are usually concerned about the risks associated with ire and rescue work. The fear about injury or death may create enough stress within a family that, over time, the stress forces the volunteer to resign. To address these fears, ire departments should do everything possible to alleviate family concerns such as demonstrating the level of protective clothing, training, and safety precautions that are taken to protect volunteers. Some departments invite family members to attend live training burns so that they can see what a real ireground is like. Departments also should provide the family with a written description of the insurance protection and the Federal Public Safety Oficer Beneits (PSOB) provided to the volunteer and family members in the event of a line-of-duty injury or death. death and disabilitY coVerage At a minimum, volunteers expect the ire department will provide coverage for their family to receive disability or death beneits should they be injured or killed. Departments that fail to offer death and long-term disability (AD & D) beneits to volunteers for injuries sustained while on-duty will face dificulties with both retention and recruitment. There is no question that these coverages should be provided by the organization. 54 r etention: Challenges & Solutions ondutY inJurY and hosPitalization insurance Most ire departments provide insurance to cover injuries and medical expenses sustained if members get hurt while on duty as a volunteer. Volunteers expect the ire department to provide this in exchange for their willingness to risk their own lives to help others. Departments that do not provide this coverage will have a dificult time recruiting and retaining volunteers. Long-term disability insurance (workers’ compensation) and AD & D provide coverage for medical bills and lost wages when a volunteer is injured on duty. Unfortunately, many volunteer departments lack this type of long-term insurance. Few volunteers can survive long without the income from their regular jobs. line-of-dutY death and disabilitY benefits The death beneits paid by the Federal government’s PSOB program for line-of-duty deaths generally are not considered enough, and are supplemented by some State agencies and individual ire departments. The PSOB currently pays over $250,000. This sum when divided over the number of years a widow might have to support her family is not usually equivalent to the lost annual salary. Fire departments must learn PSOB program requirements to make sure that the required tests and autopsy are performed. In California, some departments offer their volunteers free membership in the State Fireighter’s Association, which provides additional life insurance beneits not available through the member’s jobs. Some departments extend the line-of duty death policy to include a non- line-of-duty death. An extension of beneits like this helps both retention and recruitment. liabilitY coVerage Many volunteers are concerned about liability. Fear of being sued and losing personal assets exists among some members of the volunteer ire service despite many legal protective clauses such as the Good Samaritan Act to protect volunteers. These fears have caused some members to quit and others to avoid or step down from positions of greater responsibility. One department had a member quit soon after he inherited some money and could not be assured he would not be a target of lawsuits. Other departments have cited examples of members refusing to be promoted to an oficer or chief’s position to avoid liability exposure. In one case, a chief put his house entirely in his wife’s name to protect his assets. Note: Liability laws pertaining to emergency services vary from State to State. Each organization must research and consider the laws of its State. While some fears are legitimate others are not, although all are perceived to be real. Whether real or perceived, liability concerns must be addressed by departments to avoid scaring away members. No one wants to have increased personal liability as a result of volunteering. Many volunteer chiefs have purchased personal liability insurance for fear that Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 55 their personal assets may be in jeopardy if sued. In some cases, this is unnecessary because the department carries a policy protecting its members, or because State laws restrict frivolous suits. The chief/president should consult a local attorney to help determine the exposure to this issue. The best way to alleviate concerns about liability issues that could hurt retention is to consult an insurance representative or attorney. One department has a lawyer make a presentation to the department once or twice a year, and then ield questions. Some departments give members a pamphlet outlining the major issues of liability for a volunteer ireighter. Others recruit a lawyer/member to help protect them from liability issues, both by providing advice on ways to reduce liability exposure, and by demonstrating to other parties that the department can and will defend itself legally. If the department believes that there is potential risk for members to be sued after consultation with a lawyer, it should purchase liability insurance for itself and its members. Varying State regulations can be a problem for understanding the liability faced when providing mutual aid across lines. Legal advice is needed regarding all the jurisdictions to which mutual aid might be given. relocation V olunteer ireighters frequently move to new areas, usually for work-related reasons, causing departments to lose valuable members. The loss is even greater today than in years past because of the higher training investment in each ireighter today. transferring to other dePartments While a single volunteer department usually cannot do much about someone leaving the area for work-related reasons, volunteer departments together can do a better job of: • Keeping each other informed of volunteers coming to their area. The State of Virginia’s Ofice of Emergency Medical Services has a recruitment coordinator who assists volunteers who are moving within the State by forwarding their names, upon request, to departments where they relocate. • encouraging volunteers who leave an area to enroll in the department where they settle. • Writing letters of recommendation for volunteers who have done a good job. • letting volunteers know of employment opportunities where they currently live. This may allow them to stay in the area instead of relocating. 56 r etention: Challenges & Solutions reciProcitY of training credentials A crucial issue affecting relocation is the need for reciprocity in training credentials among States. Retention of volunteer ire service members suffers when members move to another State and are forced to retake courses because their credentials are not recognized there. In some cases, very experienced and highly certiied volunteers have to start their training from scratch when they move across State lines. Although many States accept credentials from other States as long as the credentials meet the NFPA 1001, Standard on Professional Qualiications for Fireighters, reciprocity of credentials is not universal among States. Also, some States or departments have different or higher training requirements than others, and many volunteer departments decide for themselves whether to accept credentials from departments within their own States, let alone from other States. Volunteers seeking reciprocity should have credentials bearing the seal of the National Professional Qualiications Board or the International Fire Service Accreditation Congress. A transferring volunteer should be required to meet a new department’s level of training, but the qualiications that ireighters have achieved already should not become worthless when they move. The following suggestions are made regarding the transfer of volunteer members: • state ire and ems training oficials should consider ways to implement universal reciprocity of ire and ems training credentials among all 50 states. Recruits still would be required to prove their skills or demonstrate knowledge of local protocols, but their previous training would be taken into account. • at the minimum, all states should allow certiied volunteers from other states to challenge certiication exams immediately instead of restarting their training from the beginning. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 57 diVersitY of PeoPle and interests V olunteer ire departments should try to accommodate the interests and abilities of their members. Some people prefer EMS, and others just ireighting. Another is willing to drive an ambulance, but not participate in patient care. By focusing on the strong points of each volunteer, the department can put together an eficient and professional team whose members enjoy what they are doing. This is essential for the retention of members. Accommodation is, of course, more important where there is an inadequate pool of volunteers. Few volunteers today will have the time to raise funds, train to certiication in a variety of skills, respond to incidents, and work on administering the department. Department leaders must use their personnel management skills to direct volunteers to areas where they can best serve based on their qualiications and not expect them to be able to do all things. Use accommodation for the betterment of the organization and to provide better service to the customers. Most departments also try to be sensitive to the needs of an increasingly diverse volunteer force, and volunteer departments in many places are under pressure or have actively promoted a plan to have their membership become more representative of the community. fire and emergencY medical serVices members Departments that handle both ire and EMS calls sometimes require members to be cross- trained as ireighter/emergency medical technicians (EMTs). Cross training requirements are very time demanding. Given the time demands of the ire and EMS service today, cross- training requirements may force members to leave because they do not have the time or desire to cross-train. Departments should respect the diversity of interests among its members, and volunteers should be allowed to function to the level that they desire to contribute--not forced to cross-train. However, it is reasonable for ire/EMS departments to require ire-only volunteers to have basic EMS training (such as cardiopulmonary resuscitation (CPR)), and EMS-only members to have basic ireighting training (such as how to use a ire extinguisher). females Overall, ire departments struggle more to retain female ireighters than males. Female volunteers are highly sought as candidates by career ire departments and often are “hired away.” Females are more likely to receive pressure to leave the emergency services from their families and signiicant others. 58 r etention: Challenges & Solutions There are many women active in the ire service today, particularly in EMS roles. Females comprise approximately 4 percent of the volunteer ire service, an estimated 32,000 members. Females constituted about 38 percent of strictly EMS roles. (Please see the call- out paragraph about FA-128 below.) The following are recommendations to help retain females: • establish separate women’s restrooms and changing rooms. If space does not permit this, have signs to hang on restroom doors to indicate when a male or female member is using it. • eliminate sexist humor and offensive visual displays. • Purchase uniforms and protective clothing made in women’s cuts and sizes. • treat all recruits and members equally and fairly, regardless of sex. • Provide females with the same training and promotional opportunities as males. This is not only for retention purposes, but it is also mandated legally. • Welcome female members and do not treat them protectively or condescendingly. • develop maternity policies and allow leaves of absence for pregnant members. • make it clear that sexual harassment will not be tolerated. • Provide sexual harassment training for all department members. In today’s society many single parents have the primary responsibility of caring for their children. This may preclude them from leaving home to respond on calls, or to attend meetings or training. In order to retain more volunteers, the ire department can initiate a child-care program. Babysitters are on call if a member is summoned to an emergency or needs to attend training. Some departments give pagers to babysitters and alert them to respond to the home of a volunteer or the ire station where one sitter can tend to several children, if needed. Accepting females into volunteer departments has sometimes affected the retention of their male counterparts. Male volunteers have been put under pressure by their wives to quit their department when an unmarried female joins the ranks. To avoid potential problems in this area, some departments hold social functions that allow the families of the male and the female members to get to know each other. The USFA publication A Handbook on Women In Fireighting (FA-128) provides special information about considerations which should be made to help integrate women into the ire service. www.usfa.fema.gov/downloads/pdf/publications/fa-128.pdf Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 59 minoritY grouPs Many oficers have reported that their departments have experienced problems with retaining minority members. To reduce the outlow, ire departments need to be aware that members have different cultural and religious identities and accommodate them as feasible. Chief oficers, in particular, must consider how various issues may affect each member differently. A department that shows recognition and regard for minorities will promote respect and trust among all members. This is an important ingredient for successful teamwork. Retention of minority members improves when a department makes it a point to be familiar with the diversities among ethnic cultures, especially the ones within their jurisdiction. For example, there is substantial diversity among Hispanics: Cuban, Mexican, Central American, Caribbean, and South American nations each have their own traditions. The same is true for Asians and many other groups. An understanding of cultural sensitivities and religious backgrounds makes minority members feel more comfortable and helps with minority recruitment efforts. Departments also should try to accommodate different religious beliefs and practices. For example, accommodating some Mennonite volunteers may require having no insurance on them, taking no pictures of them, and tolerating beards. Mennonites in Arkansas have successfully gone to court to get State certiication for use of SCBAs while wearing a beard; the court held that the local ire board could not be sued if a Mennonite is injured as a result of having a beard. Accommodations should also be made for volunteers who cannot train or respond to calls on the day they consider the Sabbath. retired firefighters Fire departments must create roles for members who are ready to retire from active ireighting in order to retain them. A volunteer department may have different levels of membership: active, “bridge,” and retired. Recently retired volunteer ireighters can serve in the bridge position between the active ranks and full retirement. They can also be asked to respond only to large incidents when more people are needed, and to act as a bridge between generations by offering training advice. To be designated as a bridge, a member must have been active for several years. The bridge position allows them to remain as members in good standing for several years while training less and responding on fewer calls. In some departments, retirees take on support duties instead of active ireighting. They operate pumpers, ill air tanks, provide canteen services, and other support duties. 60 r etention: Challenges & Solutions non-firefighting Personnel Fire departments offer a variety of support positions such as bookkeeping, data management, fundraising, ire prevention, public safety education, PIO, building maintenance, and apparatus maintenance that can be illed by people who are not ireighters and who do not respond on calls. This relieves operational ireighters so that they can concentrate on training and operations. The role of non-ireighting members is crucial because, without them, ireighters might leave the volunteer service due to the burdens of paperwork or fundraising. Non-ireighting support personnel are valuable, and their retention must be considered too. Unfortunately, some departments do not give non-ireighting members the full voting status of their ireighting counterparts. In these cases, operational ireighters are concerned that non-operational members do not know how to vote appropriately on issues such as the requisition of ire apparatus and PPE. Highly technical decisions might be relegated to committees with particular experience. The exclusion of non-ireighters from voting privileges, however, may drive out these members and hurt the retention of others. It is recommended that departments withhold voting rights from members (operational or administrative) who do not attend meetings or make other minimum requirements. “burned out” or disabled members Volunteers often experience “burn out,” or become emotionally drained from all the tragic incidents they have seen and no longer want to respond to emergencies. Instead of losing them altogether, departments might retain these individuals by allowing them to engage only in support activities or other functions that are less intensive operationally. A policy for granting a leave of absence also can be established. This policy also is applicable when a volunteer is injured and can no longer be an active ireighter. learning disabled/mentallY challenged Volunteer ire departments try to be a positive force in the community and to nurture various individuals within the department. Some departments have tried to assist people who want to be members, but cannot pass entrance exams or agility tests because of mental or physical disabilities. Although these individuals cannot qualify as ireighters, many are still capable of doing speciic tasks on the ireground or in the irehouse. For example, mentally disabled individuals often are able to clean trucks, rack hose, and assist with other support activities. Physically disabled people often can work in administrative positions or as dispatchers. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 61 There are many departments today that now have members with various types of disabilities; however, some departments have expressed concerns about retaining mentally challenged members due to the department’s liability exposure, especially if a member’s disability impairs judgment or the ability to identify hazards. A serious incident can occur with members who cannot read warning labels and instructions or have diminished reasoning power. Not only could they make judgment errors that may make the department liable, but they could hurt themselves and others. In considering whether to recruit or retain these members, departments must also consider that the American with Disabilities Act (ADA) requires that reasonable accommodations be made for employees with illnesses or disabilities. Some departments have addressed the liability concerns by assigning a ireighter to be a mentor to watch over those who need more assistance. Perhaps the best course of action is for the whole department to make sure that a disadvantaged member does not get in over his or her head. Unfortunately, in some cases it may be necessary to encourage those who have poor judgment (mentally challenged or not) to no longer volunteer. People today are very conscious of discrimination against those with health disabilities, but modern society is also very litigious. As a result, volunteer departments need to discuss the issue of using disabled personnel with their insurance company and/or department attorney and be sensitive to both sides of the issue. consolidation T here has been a growing trend towards the consolidation of volunteer ire departments into regional or county departments. Pennsylvania completed two studies during 2005 that address consolidation. The studies concluded that various forms of ire service regionalization, including consolidations and mergers, are feasible and represent a logical approach to addressing many of the challenges currently facing volunteer organizations. Regionalization, however, cannot be mandated and cannot occur in isolation. Rather, the promotion of regionalization efforts is just one of several steps that need to be taken in order to preserve and enhance the volunteer services. When consolidating/regionalizing resources, personnel are better deployed, more effectively trained, and used more eficiently than in multiple ire companies. Consolidation reduces funding and other competition between adjacent departments, improves cost and operational effectiveness, and may increase the pool for recruiting. This is an important move especially for rural ire departments that lack the necessary funds to run an eficient operation. For example, several small departments joined together can employ uniied purchasing that is less expensive and time consuming. 62 r etention: Challenges & Solutions Consolidation, however, can adversely affect retention and recruitment. It may force stations to close and merge; and the department name may change, both of which may result in the loss of identity and tradition. Volunteers may quit if they no longer feel pride and identiication with a department. This often can be remedied by building pride in the new department, or allowing each former department to continue its identiication through symbols on apparatus. Another issue that must be addressed during a consolidation is differing standards among the departments. When the chiefs of two departments that merged did not agree on credentials, certiications, or requirements, ireighters in the one department were forced to retrain even though they came from the department with the stricter standards. The merger created many conditions opposite to what encourages retention: it increased the training burden by not recognizing previous credentials; it altered the progressive image by lowering requirements; and it did not treat members of both departments equally. The result was a disastrous retention problem. All potential ramiications of a consolidation must be considered ahead of time, including the likely impacts on each group affected by the change. Consolidation can result in a better or worse environment for volunteers. Some departments hire an outside consultant to provide objectivity and guidance in planning a consolidation. A mechanism such as a governing board that includes representation from each of the former constituent departments should be established to deal with the problems that arise for several years after a consolidation. attitude and motiVation research u nderstanding the attitudes and motivations of volunteers is imperative in maintaining their satisfaction and preventing membership turnover. Attitude research is aimed at determining what members think about their department. Motivation research helps determine why volunteers join the department. attitude research Attitude research identiies members’ thoughts and feelings about their department. It helps chief oficers identify problems early so that they can prevent problems that may arise and cause members to quit. A member simply may have a bad attitude about the department because of personal reasons that are dificult to change. On the other hand, a member may have had a bad attitude about the department because of unfair treatment. One might expect a volunteer who is unhappy to have a frank discussion with management before quitting; but many choose not to do so, especially if they are disgruntled. A grievance procedure policy should be established. (See section on Handling Grievances.) Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 63 BASIC NEEDS OF A VOLuNTEER To feel part of the decisionmaking process. Volunteers function best when they get to help make decisions. This means more than just an opportunity to vote on an issue in a meeting. Include volunteers in planning sessions and committee work and ask how they feel about issues or problems about which decisions must be made. Let them know their input is important. To feel appreciated. Be generous with praise. Consider distributing a department newsletter that contains a section that thanks a member or members for a job well done. Send the local newspaper announcements of elections or information about special recognition of members. Volunteer appreciation days are very effective, but demonstration of appreciation should be constant. To have a sense of responsibility and authority. When a volunteer is given a job, make sure the person has the authority to make decisions. Properly trained, and with clearly written policies and procedures, the volunteer will be able to do the job within the framework and policy of the department and have a sense of pride in the work. To do interesting work. Most emergency work is interesting. The challenge is to make small jobs interesting. Stufing fund-drive envelopes, for example, can be made into a social event. Recruiting new members can be made more interesting by having a contest. Use imagination and make all jobs interesting. To have an opportunity to grow. Provide personal growth opportunities for members. A committee member, for example, might move into a leadership role within the committee structure. Challenge members with new jobs, larger tasks, and an opportunity to inluence decisions. To have effective supervisors. Volunteers should be able to feel that their supervisors believe in them and respect the value of their contribution to the department. Supervisors should have training in how to work effectively with volunteers. To have a safe working environment. The station should be a place where the volunteers are comfortable and safe, a place they can be proud of. To have constructive evaluation. Despite what one might believe, volunteers do like to know how they are doing. This means consistent and fair performance evaluations. Evaluations help determine the motivational climate of the department. 64 r etention: Challenges & Solutions motiVation research It is important to know each member’s motivations for joining the department. If the oficers understand a volunteer’s motivations for being a member, and help ensure that those motivations are met, the volunteer will be less likely to leave the department. Volunteers should be asked about their motivations before joining to ensure that they have the right reasons. Oficers should also check up on their volunteers occasionally to make sure that their desires and motivations for being a member are being fulilled. (Refer to the section on motivation research under the recruitment portion of this report for a list of the leading reasons that people join the volunteer ire service.) “We spend lots of time one on one [with members] discussing problems and motivations,” remarked one ire chief. This helps the leaders understand the members’ needs and make sure that things are in place to keep them motivated. “The bottom line is they like to help people, and they take pride in that,” he said. One department almost lost a member whose motivation for joining was simply to help maintain vehicles, but who was being railroaded into other obligations. Fortunately, the problem was recognized and resolved. Once motivations are identiied, departments can design training, activities, or other programs to help members meet their needs. “We must identify ways to meet needs of personnel, both volunteer and career,” said a combination department chief. In combination departments where career personnel answer a majority of the calls, volunteers may lose motivation if they feel like they are not needed. It is important for chiefs of these departments to set the tone from the top that volunteers are an integral part of the force, even if they do not respond on a majority of the calls. To ensure volunteers maintain an integral role, a combination department may assign volunteers the responsibility for handling a speciic task such as stafing an extrication truck, performing conined space rescues, or providing support services and lighting at ires. There are a variety of ways to determine the needs of members as well as discern their problems. Insights can be obtained through formal written surveys, informal discussions, or both. Attitude questionnaires and annual performance ratings can be good listening tools as well as measuring sticks of performance. They enable oficers and members alike to see their responsibilities, strengths, and weaknesses. MOTIVATIONS FOR VOLuNTEERINg Find out what a member’s motivations are for joining the department. A department that helps its volunteers meet their expectations is more likely to retain them over time. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 65 LEADINg REASONS WHy MEMBERS STOP VOLuNTEERINg IN FIRE AND EMS DEPARTMENTS • Internal conlicts • Excessive time demands • Feeling of a lack of support from department • Perceived unfairness of disciplinary actions • Perceived unfairness or inconsistencies in management member surVeYs Although most volunteers are motivated by similar factors, it is essential that each department ind out the factors that may help retain its members, or drives them away. Each department needs to do its own market research; you cannot assume that your volunteers are like those in the department next door. One department holds individual annual interviews with each member to ask, “What are the top three needs of the department, and what are the top three personal needs you have?” This information is used in shaping department policy and priorities and in dealing more effectively with each individual. Attitude and motivation research indicates that members are more easily retained if their motivation for volunteering is to provide a service to the community. Members say they prefer strict requirements placed upon them rather than serving in a department with a lackadaisical attitude; and that it was important to receive recognition for their assistance to the community. This information can help the department know what to look for in screening applicants and what to emphasize in managing the department. Although surveys can provide useful information, they need to be handled with care. A department found that its volunteers refused to ill out questionnaires any more after the department reprinted easily identiiable, verbatim quotes from a survey. However, some volunteers want to be quoted and will even put their names on the surveys. The key is to make sure everyone understands the ground rules of any survey undertaken. Fire departments should heed the results from a questionnaire and ensure that action is taken. There have been experiences when volunteers refused to ill out a new survey because the previous one had no impact. Volunteers do not like to waste their time. Find out what is driving them to volunteer or leave. It is a local issue. 66 r etention: Challenges & Solutions eXit interVieWs Exit interviews provide an opportunity for ire chiefs and line oficers to ind out why a member is leaving the department. In small departments, oficers usually know why a particular member has decided to quit; in larger departments, however, this may not be readily apparent. Exit interviews, therefore, are particularly important in larger departments. Exit interviews can take the form of a simple written survey that asks members why they are leaving, or they may involve one-on-one interviews. In any case, they should be structured so that the member who is leaving feels like he or she can honestly discuss the reasons for resigning. The leaving member should feel free to identify problems with management, personnel, time demands, training, or other areas. Volunteers are actually internal customers. Departments do not need or want bad press, so it is beneicial to meet with volunteers who are leaving to give them a chance to vent their anger or discuss their problems. In most circumstances, the parting should be as amiable as possible. Former members who remain in the community are needed for inancial and other forms of support. Since much recruiting is done by word of mouth, the department does not need a former member critizing the organization. SAMPLE ExIT INTERVIEW 1. What are your reasons for leaving the organization? 2. What were your most satisfying experiences while volunteering? 3. What were your least satisfying experiences while volunteering? 4. What are your recommendations for improving the organization and increasing volunteer satisfaction? 5. Are there any ways the department can be of assistance to you? 6. Is there any way the department could have prevented your departure? eValuations Evaluations or performance appraisals are essential to improving volunteer performance and volunteer organizations. Volunteers may view evaluations as negative events, and they can be if they are not conducted properly. The concept that evaluations are unpleasant should be overcome. The sessions should become a coaching session for the improvement Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 67 of the member and the good of both the individual and the organization. Effective evaluations focus on improving the volunteer and their contribution to the organization. This can best be achieved by working together on weak areas and determining in the evaluation where the member can better contribute to the department. Oficers can ill out “employee” evaluation forms on their volunteers once or twice a year. The evaluation includes questions on task performance, communication skills, quality of effort, attitude, and knowledge of job requirements. Some departments have the ireighters evaluate the oficers. The objective of both is to enhance the organization. In one department the chief performs annual member evaluations. The purpose of the evaluations is more to discuss than to rate the performance of individual volunteers and to provide an opportunity for the department to get feedback from members. “I talk with every member and they set personal and professional goals, and then we evaluate these at the end of the year,” said the chief. This program has helped retention by making sure that members are satisied and that their motivations and goals are met. It also allows members to “air out” complaints with the chief on a one-on-one level. This keeps complaints from festering. Sample Evaluations forms are in Appendix I. EVALuATINg VOLuNTEERS Evaluations not only should assess a member’s performance, but also should allow members to assess the oficers and department. cohesiVeness C ohesiveness is one of the essential ingredients that makes a ire department successful. Fireighters depend on one another for their safety. It is important not only to work as a team, but also to feel like a team. Unfortunately, cohesiveness is not always easy to achieve. Many factors can disrupt the peace. Cliques can form, groups and individuals may feel excluded, EMS and ire members may not get along, or career and volunteer members clash. Often these problems cause one or more of the parties to resign from membership. Chiefs, line oficers, and other members of the department’s management team must try to promote an environment in which members cooperate and work as a cohesive unit to avoid retention problems due to disagreements or conlicts among members. 68 r etention: Challenges & Solutions cliQues Cliques that form in a volunteer department can damage morale, affect teamwork, hurt the organization as a whole, and ultimately damage retention. Fireighters who drop out after a few months commonly say that they quit because they felt like they did not belong. Of course members may form friendship bonds with people of their choosing, but problems arise when these bonds become so exclusive that they bar others from enjoying the camaraderie of the group. Cliques also pose the problem when one member of a clique leaves, because several others may leave too. Cliques can really make or break a person and a department. Volunteers are not required to be best friends with everyone, but they should respect their peers and appreciate their efforts. Several approaches can be used to reduce the problems of cliques. First, it is important to make sure that newcomers to the department feel welcome and not excluded by cliquish groups. Department leadership should also encourage the intermixing of members, and periodically offer training opportunities or activities such as fundraising events with different groupings of members, so people get to know one another better. One department assigns a ield training oficer to each new member for 18 months. The oficer’s function is to help integrate the person into the department as a complete member socially, administratively, and trained. females and minorities Volunteer ire and EMS departments, like all employers today, must learn to appreciate the diversity of people in our society if they are to retain members and recruit from a broader pool of citizens. Departments in many areas are under pressure to make their membership more representative of the community, if they have not already done so. This has expanded the opportunities for females and minorities in the ire service. Unfortunately, gender and race are often factors that create frictions between the established cliques and new members. Minority and female members may feel more alienated than the average new member. If a newcomer, regardless of race, sex, religion, or ethnicity, is made to feel unwelcome, he or she is likely to leave. Sensitivities should be addressed as a department becomes more diverse. Some are obvious, such as having equal access to bunkroom and bathroom facilities for men and women and eliminating sexist or racist humor. All recruits and members must be treated equally and fairly and be provided with the same training and challenges. It is also advisable to open a channel of communication so that females and minorities have a mechanism for discussing potential problems. Some volunteer ire departments now require their personnel to attend cultural diversity and equal employment opportunity classes to increase their sensitivity as to what is considered offensive, and how cultural diversity can beneit the department. At the minimum, the leadership should make it clear that inappropriate words or actions will not be tolerated. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 69 emergencY medical serVices and firefighters Some departments suffer from rifts between volunteers who specialize in ireighting and those who specialize in EMS. This often comes to a head at budget time in departments with both functions. EMS members, who typically respond to three quarters of the total ire and EMS calls, may argue for more medical equipment; while ireighters argue for ireighting equipment. Members from either side may quit out of frustration or spite. It is the responsibility of the department management to control such conlicts. Purchases should be made only after assessing needs and priorities for new or different equipment. handling grieVances and Problem Volunteers One of the most unpleasant duties of management is dealing with people who cause problems. How well they are handled can affect the cohesiveness of the department. Grievances usually can be handled informally. However, some departments have had members leave because there was no formal route for them to take when the informal process failed. Therefore, it is important to have some standard way of dealing with grievances once other methods are rendered inadequate. The grievance process for discrimination, harassment, suspensions, or other matters should be spelled out in writing in departmental policies. Many departments have trial boards and grievance boards to handle problems. Bernalillo County, New Mexico, has a formal grievance procedure for volunteers. One member from each of its eleven ire districts is nominated to serve in a pool from which the County Manager selects four to form a review panel. A pool member cannot sit on the panel for a member from his or her own ire district. It is often extremely dificult to “ire” a volunteer without causing hard feelings. The preferable solution is to encourage the problem individual to resign voluntarily so that they do not ruin the atmosphere for the rest. If the person will not leave, management needs to decide whether the troublemakers would do more damage on the inside or by criticizing the department from the outside. When all else fails, termination must be considered. Many volunteers who cause problems have the attitude of “What are they going to do--ire me? They can’t. I’m a volunteer.” This type of attitude should not be allowed to establish itself in a department. If a volunteer department is to remain professional, its members must know that they will be held accountable for their actions. Although there is a general trend of irresponsibility, there is no place for this in the emergency services. All new members should understand clearly that their actions have consequences. 70 r etention: Challenges & Solutions In combination departments, volunteers and career members should be held to the same ethical standards. If a volunteer does something for which a career person would be dismissed, then ire the volunteer. Dissimilar policies or punishments for volunteer and career members create division between the two groups, because one will view the other as being given preferential treatment. This cannot be allowed if a cohesive, team-oriented department is the goal. combination dePartments One of the most pervasive problems found in combination departments is friction between volunteer and career members. This happens in any of the three types of organization for combination departments: • the organization where the volunteers provide support for the career staff; • the organization where the career staff provides support for the volunteers; and • the organization where speciic stations are assigned to either volunteer or all-career units. Encouraging volunteer and career ireighters to work together as a team in combination departments is often dificult. Depending on the type of organization, one group may be a minority and feel of less importance than another group, especially if the majority group infers that they are superior. Whatever the organizational form, it is imperative that career and volunteer ireighters work together not only for good morale, but to provide the best emergency services to their customers in the community and to save lives. The reasons for such friction vary, but often are traced back to four sources: a feeling that one group is better trained or more experienced than the other, a feeling that one group is more physically it than the other, a feeling that one group dominates the other and is unappreciative of the other’s needs or opinions, or a feeling that one group misrepresents itself to the public. Friction is characterized by members being openly disrespectful and distrusting of one another. This behavior damages morale for all members, volunteer and career. The department leadership, if it expects to retain the volunteer membership, must diffuse these types of situations. Many departments have found that the key to good relations between career and volunteers is a chief who is conscious of their differences and takes the lead in working out the problems between the two groups. To be a winning team, there must be a good coach. The chief must not tolerate the formation of barriers that separate volunteer and career personnel. Unabated, these kinds of attitudes can drive volunteers away and force a department to operate with a shortage of personnel. Retention & Recruitment for the Volunteer Emergency Services: Challenges & Solutions 71 encouraging teamWorK The Lacey, Washington, Fire District #3 actually established written teamwork guidelines to inform members what is expected of them and how to be a team player: “I/we will be on time for scheduled meetings and appointments. If not possible, I will inform the group beforehand why and when I will be there. “I/we will inform affected members, preferably beforehand, of any decision made which affects them and the reasons why. “I/we will give speciic, authentic acknowledgments of ‘job well done’ frequently.” “I/we will solve problems using the appropriate and effective strategies (such as confrontation, problem solving, negotiation, and use of the organizational chain of command).” “I/we will not exhibit ‘we/they’ behavior. We’re all in this together, so if I have a problem, I’ll solve it rather than blame.” “I/we will understand another person’s story, problem or point of view before I interrupt or draw a conclusion. (Use active listening skills to help them make their point.)” WAyS TO REDuCE FRICTION AND PROMOTE TEAMWORk IN COMBINATION DEPARTMENTS: • Have career and volunteer ireighters train together in order to promote intermixing and friendships, the building of mutual trust, and eficient operations. • Treat career and volunteer members as similarly as possible (i.e., with respect to training, itness, discipline, and promotional standards). • Share maintenance duties of the irehouse and apparatus. • Require all members to pass the same physical entrance exam. • Involve the spouses of both volunteer and career members in an auxiliary and department activities. • Share station chores. • Expect the same job performance and competence from volunteers as their career counterparts. • Talk out issues of conlict--don’t let them fester. • Avoid setting volunteers apart unnecessarily by creating different policies or uniforms. • Establish written roles and responsibilities for volunteer and career members (e.g., establishing who is in charge of maintenance/cleaning of stations/apparatus, getting particular apparatus out the door, command at scene). • Maintain good lines of communication with all members so all are apprised of departmental happenings and activities, giving rumors no chance to start. 72 r etention: Challenges & Solutions emotional suPPort S upporting the fellow ireighter has been a long-standing tradition within the ire service [...truncated...]