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Chapter 7

Policy Development for Volunteer Involvement

Linda L. Graff, BA, BSW, MA

Linda Graff And Associates Inc.

All of this is a far cry from the days when an agency staff member would pick up the phone periodically and call in some friends and neighbours to help with the task at hand.1

—Silver (1988, p. 86)

This chapter discusses the development of policies to guide the safe and effective engagement of volunteers, whatever their role and whatever the nature of the organization for which they work.

Despite the valuable contributions that a comprehensive set of policies offers to volunteer involvement, many nonprofit, community, and public service organizations operate their volunteer programs in policy voids while others have given policy development for volunteer programs only the slimmest of attention. It is argued that policies are critical to effective volunteer involvement and if quality programming, excellence in service provision, increased productivity, and greater volunteer satisfaction—all outcomes of good policy development—are insufficient motivation, then surely the potential risk and legal consequences at stake should compel all volunteer-engaging organizations, no matter the nature of their work or the size or complexity of their volunteer program, to devote immediate and ongoing attention to this most important element of program infrastructure.

As demands for accountability and transparency in volunteer organizations increase, policies and procedures that guide the involvement and management of volunteers are ever more important since they represent concrete evidence that the host organization is acting in good faith and with due diligence (Edwards, 2009).

Consider the situation described in Exhibit 7.1. This real-life scenario would be cause of hand-wringing, panicked calls to the lawyer and the insurance company and hair-tearing anguish about where things went wrong. The fact is that this, and thousands of other examples like it, describe accidents waiting to happen in volunteer programs everywhere, every day. And while there is nothing anyone can do to guarantee that injuries and loss will not occur as the result of volunteering, there are many things that agency administrators and directors of volunteer resource management can do to help prevent serious incidents and to minimize harm and reduce liability when they do occur. Policy development is one of the most critical of those things.

Exhibit 7.1 Case Study

Sandy, a volunteer friendly visitor in a program for isolated seniors, arrived for her regular shift at her client's house to find the client quite unwell. The client, Mrs. Fritz, did not want to make a fuss and tried to keep Sandy from notifying anyone but finally allowed her to call the family doctor. The doctor said, “Bring her in to my office immediately.” While driving was not really part of the volunteer job, Sandy thought it important to get help right away and drove Mrs. Fritz over to the doctor's office. The doctor thought that Mrs. Fritz might have had a mild heart attack, scheduled some tests, and told Sandy to take her home. Sandy objected, but when the physician insisted, Sandy helped Mrs. Fritz into the car and they headed off home. On the way, Mrs. Fritz cried out, put her hands to her chest, and slumped forward. Sandy reached over to hold Mrs. Fritz up and drove into a tree.

This chapter defines policies and procedures, discusses how policies fit in an overall risk management program, and outlines four important types and functions of policies. Included are descriptions of the policy development process, how to write policies, and how to increase compliance with policies.

What Are Policies?

What is a policy? How do policies differ from procedures, protocols, standards, and guidelines? What is the role of policies?

Definitions of Policy and Procedure

The word “policy” is one with which we are all familiar, yet it is difficult to define in a meaningful way in the context of nonprofit organizations and their programs. Further, the notion of policy can be intimidating. The term connotes immutable proclamations of imperial import, emanating from unseen and untouchable powers, carrying potentially dire consequences. The term is often used to compel compliance: One must do it if it is a policy. Few people work with policies on a regular basis, have the opportunity to understand policy or to feel at ease with it.

Paula Cryderman (1987) developed what are arguably the most meaningful and practical definitions of policies and procedures as they apply in the nonprofit domain. In her manual for the Canadian Hospital Association on how to write policies, Cryderman created these definitions.

Policies

Policies form the written basis of operation secondary to legislation and the organization's bylaws. They serve as guidelines for decision making; they prescribe limits and pinpoint responsibilities within an organization. Policies can be viewed as rules or laws related to the facility's overall mission, goals, and objectives. They are usually broad statements that are general in content. Despite this, policies may be detailed and particular if appropriate to the subject matter.

According to Cryderman (1987):

Policies can exist at a corporate or board level, reflecting the overall objectives and affecting everyone in the organization, or they can exist at a lower level and be relevant to a specific department or unit. (p. 10)

Cryderman says policies tell people what to do. They are of great import, falling in the proclamation hierarchy just below the laws of the land and the laws of the organization. They guide decision making, though Cryderman's use of the term “guideline” should not suggest that there is discretion in their application since she goes on to assign to policies the power of rules and laws. Importantly, Cryderman says policies “prescribe limits,” suggesting, as John Carver (1990) did in reference to governance policies, that policies can set the outside boundaries of behavior, inside of which action is acceptable. In this context, policies need not be a lengthy catalog of prohibitions but rather an empowering and enabling illumination of all that is allowable.

In Cryderman's definition, policies are typically broad and general, although she allows for the possibility that some policies can be very specific. For example, an organization may have an antidiscrimination policy that applies across the whole of the organization and governs personnel matters, client services, client rights, collegial relationships, and so on. An organization might also have a policy about whether volunteers must pay for the coffee they consume at the organization's office. Both are policies. Both might have procedures associated with them and, possibly, penalties attached for noncompliance, but clearly these two examples operate at quite different levels and have very different scopes.

Policies must be related to the organization's overall mission, goals, and objectives. This is a critical point. Many policies embody values and beliefs, positions and philosophy. For example, at first glance, a policy about whether to reimburse volunteers’ out-of-pocket expenses is merely a financial matter. But upon closer consideration, such a policy is equally about what the organization believes it “owes” volunteers. Reimbursement policies speak to an organization's commitment to make volunteering accessible to all as well as how much value an organization places on volunteer contributions. Hence, policies must scrupulously reflect the mission, values, and goals of the larger organization. Therein lies the danger of copying policies from other organizations without careful consideration of whether they are entirely consistent with one's organizational culture and values base.

Procedures

Cryderman (1987) says, in contrast to the “what” of policies, procedures tell people how to do what they must do.

Procedures give directions according to which daily operations are conducted within the framework of policies. They are a natural outgrowth of policies, supplying the “how to” for the rule. Procedures describe a series of steps, outline sequences of activities or detail progression. Thus the procedure manual is operational and is usually best expressed in a directive tone. (p. 10)

In Cryderman's view, procedures exist in the day-to-day operational realm although they must reflect and be consistent with the overall framework of values, beliefs, and goals embodied by policies. Procedures often are written in sequential format, delineating, for example, step 1, step 2, step 3, and so on.

Policies

According to Cryderman (1987):

Procedures

Cryderman (1987) says, in contrast to the “what” of policies, procedures tell people how to do what they must do.

Vision

Boulder County values and provides opportunities for active participation of its citizens in voluntary partnerships that enhance and enrich government services and the quality of life in the community.

Philosophy

Boulder County government is a joint venture between its citizens and the individuals and departments that are charged with the responsibility of carrying out the functions of local government.

To assure that citizens have opportunities for meaningful and effective engagement in local government operations, professional standards in volunteer management are accepted as the guidelines for best practices.

Senior managers typically are the developers of high-level operational policies, such as those pertaining to personnel, finance, and operations, and such policies might have a good deal of impact on the roles of volunteers, volunteer program infrastructure and management, as well as the budget available to support volunteer involvement. Here is an example of a high-level screening policy:

The ___ [name of agency] applies a formal selection process to all prospective volunteers. This process varies according to the nature and degree of responsibility in the work to be done, access to money or other valuables, access to personal or confidential information, and/or access to clients or members of the public. Positions of trust are subject to significantly more rigorous screening inquiries.

This organizational policy on diversity applies equally to volunteer involvement:

Our organisation is firmly committed to diversity in all areas of its work. We believe that we have much to learn and profit from diverse cultures and perspectives, and that diversity will make our organisation more effective in meeting the needs of all our stakeholders. We are committed to developing and maintaining an organisation in which differing ideas, abilities, backgrounds and needs are fostered and valued, and where those with diverse backgrounds and experiences are able to participate and contribute. (Volunteering England, 2002)

Typically a good deal of operational and program policy is developed at the program or department level. With respect to volunteering, often the key staff or volunteer leader of the volunteer department develops day-to-day policies that shape and govern the work and behavior of volunteers and the coordination and support of volunteer effort. Here are just a few examples that pertain to volunteer screening processes:

Acceptance as a volunteer is not automatic. We reserve the right not to accept applicants based on an objective and equitable assessment of their suitability.

Falsification of information, including material omission or misrepresentation, at any point during screening is grounds for immediate disqualification from the application process, or even immediate dismissal if the falsehood is discovered after acceptance.

Prospective volunteers are screened to the level of intensiveness dictated by the position(s) for which they apply. If a ___ [name of agency] volunteer applies for transfer to another volunteer position for which the initial screening process is more intensive than for the position the volunteer has been occupying, the volunteer is subjected to the additional screening inquiries of the position being applied for. Failure to satisfactorily meet these additional screening requirements is grounds for denial of the transfer.

To What Level(s) Does the Policy Apply?

As Cryderman (1987) pointed out, policies can apply to various levels of an organization. Some can be quite broad in scope while others might be quite specific.

For example, board policy statements on philosophy, values, and beliefs are likely to apply to all aspects of the organization and usually include volunteers as well. Here is an example of a high-level policy on antioppression:

The Family Service Association of Toronto (FSA) re-affirms its commitment to a policy of anti-oppression on the basis of, but not limited to, ethnicity, language, race, age, ability, sex, sexual or gender identity, sexual orientation, family status, income, immigrant or refugee status, nationality, place of birth, generational status, political or religious affiliation in all aspects of its operation and at all levels of the agency.

FSA further recognizes that the increasing diversity among residents in Toronto has added cultural, social and economic benefits to our community. It is also sensitive to the fact that oppressed groups experience marginalization and encounter barriers to full access and participation in the community. FSA seeks to increase access and participation, especially for those who are marginalized, disadvantaged or oppressed.

FSA encourages individuals to participate fully and to have complete access to its services, employment, governance structures and volunteer opportunities. It will make every effort to see that its structure, policies and systems reflect all aspects of the total community and to promote equal access to all. (Family Service Association of Toronto, 2006)

Policies at this level typically are the responsibility of the board. Input from staff, direct-service volunteers, and other organizational stakeholders may be invited, but usually the board is the key player in this kind of policy making.

Instrumental policies, even those issued from the upper levels of an organization, can also have organization-wide applicability as well. For example:

All personnel are trained and familiar with fire and evacuation procedures, including the location of all alarms, extinguishers, and exits out of the organization's offices and out of the building.

It is not uncommon for policies of this nature to apply equally to volunteers.

Many policies are much more specific and much more limited in scope, written specifically for volunteer involvement. Consider these illustrations:

As representatives of the ___ [name of agency], volunteers, like staff, are responsible for presenting a good image to clients, business associates, and the community. Volunteers dress appropriately for the conditions and the nature of their volunteer duties, maintaining a high standard of personal appearance, hygiene, and grooming at all times.

Individual volunteers accurately complete and submit all time sheets and other required information on a timely basis.

Because their work is so vital to the achievement of the organization's mission, dependability is important among our volunteers. Volunteers are reliable and punctual. When expecting to be absent from a scheduled duty, volunteers inform their staff supervisor as far in advance as possible so that alternate arrangements may be made. Frequent absenteeism results in a review of the volunteer's work assignment or term of service.

If a volunteer is unable to fulfill a position responsibility, the anticipated absence or shortcoming is reported with as much advance notice as possible to his or her immediate supervisor or the Director of Volunteer Resource Management who ensures that a replacement is found or other suitable arrangements made. It is neither the responsibility nor the right of volunteers to find or assign an alternate person to perform their work.

These policies clearly have been developed specifically for volunteers and therefore have a much more limited scope and influence. Policies of this nature are less likely to receive board or chief executive attention. Rather, they are more likely to be the responsibility of departmental staff or program committees, although in smaller organizations, boards sometimes involve themselves in policy matters of this sort.

Why Write Policies?

Volunteerism has grown to enormous proportions. Most nonprofit organizations involve volunteers in governance, administrative, and direct service functions. Volunteers are performing complex, responsible work without which many organizations would falter, if not completely dissolve. It is often difficult to determine just by sight alone whether a nonprofit employee is paid or unpaid since volunteers are often elevated to essential roles and do work of equal importance and value to that of their paid counterparts. With the engagement of professionals and other highly skilled volunteers in what is increasingly referred to as pro bono consultancy, volunteers may occupy senior administrative/governance and high-level advisory positions. For the same reason that it is important to write policies to guide the work of paid staff, so too is it critical to provide a policy framework to guide the work of volunteer staff.

Importance of Policies

To the detractors who might suggest that policy development seems overly bureaucratic for volunteer involvement, it is noted that policies do not have to be offensive or unnecessarily restrictive. They can be positive, constructive, and supportive. One risks undermining the professionalism of volunteers by assuming that policies are necessarily distasteful. Volunteers are busy people who offer their time and skills but who expect rewarding work, clarity of expectations, thorough training, ongoing support, and responsible and respectful management in return.

Where volunteers are engaged in meaningful work—including, for example, in direct contact with clients, provision of organizational services, fund development, administration, or leadership and governance—failure to provide policy guidance is not only disrespectful to volunteers and their contributions but fiscally and managerially negligent.

Simply put, volunteer work has become far too important in most organizations to function in a policy void.

Additionally, policies:

Enable volunteers to know where they stand, offering some security that they know how they can expect to be treated and where they can turn if they feel things are not going well

Help to establish continuity over time and across changing leadership

Help to ensure fairness and equity, consistently applicable to all

Both clarify and communicate values and link them to expected behavior

Articulate organizational positions on important matters of ethics and organizational obligations

Set out organizational beliefs about the world, people's rights, how business is done, and how people work with one another

Communicate expectations, specify standards, and state rules

Connection to Liability Management

When policy attention is paid to volunteer involvement, it is often out of fear of potential liability connected to volunteers’ presence. The more responsible and complex the work, the greater the risks associated with its completion. If volunteers are rolling bandages, for example, dangers are minimal. But consider these actual examples:

Volunteers who provide home support for people with disabilities are helping to transfer patients in and out of the bathtub without training.

Volunteer counselors staff a suicide prevention hot line with little training, and they have no professional backup while on duty.

A volunteer friendly visitor drives his client to the grocery store each week to help her do her shopping. If he were to be stopped, his car would be pulled off the road for noncompliance with safety regulations.

A volunteer at the local senior citizen's center has some first-aid training and has been helping seniors make decisions about which of their prescription medications they should and should not bother to take.

An elderly woman who has been a volunteer escort at the cancer treatment center for over two decades is beginning to lose her faculties. Last week she took a patient in a wheelchair to the wrong clinic, where he waited for three hours before staff were able to locate him.

Female volunteers are sent out to deliver parenting education classes to single mothers in low-income housing projects. The volunteers go alone, according to their own schedule, often at night. The agency has no record of who is going where or when.

Volunteers for the local environmental cleanup agency have been disabling the chain brake safety mechanisms on chain saws because the brakes make this already hard work even more arduous.

Volunteers go fundraising door to door. They are recruited by a third-party recruitment service, given minimal information about the charity or its work, are unsupervised in their work, are given no safety training, and are expected to turn in the funds they raise with no checks or accountability procedures in place.

Volunteers go on overnight camping trips with youngsters. They are not screened in any meaningful way.

Ours is an increasingly litigious culture and the possibility of legal action occurring as a result of nonprofit operations is an ever-present reality (Carter & Demczur, 2010). A quick search of headlines turns up evidence of volunteer wrongdoing with, it seems, increasing frequency: volunteer sports coaches who abuse children; volunteer fundraisers who abscond with proceeds; fraudsters and cons who infiltrate seniors’ services to run scams on the most vulnerable; board members who abuse their positions for personal gain. In the courts, in the press, and in the mind of the public, organizations are being held accountable for mistakes, accidents, and negligence on the part of volunteers acting on behalf of the organization.

Policy as a liability reduction technique is quite probably unparalleled. There is no better proof that an agency has acted prudently and responsibly in attempting to reduce the likelihood of injury or loss than a full set of current, comprehensive policies and procedures, clearly in place, and consistently communicated to all relevant parties.

As the work of volunteers becomes more complex, responsible, and front line in nature, the matter of policy development for volunteer programs becomes critical. The formula is quite simple: The greater the degree of responsibility of volunteer work, the greater the need for rules to govern and regulate its accomplishment, the greater the need for guidelines to ensure safety, and the greater the need for policies.

While the fear of liability is perhaps not the best reason to embark on policy development for volunteer programs, it is often the most compelling.

Policy and Risk Management

There is no more pressing reason to develop policies for volunteer programs than the role that policies play in an organization's overall risk management system. Policy development is a critical component of a comprehensive risk management program. In short, policies are the premier risk management device.

Policies supply rules. They establish boundaries beyond which volunteers should not wander. They specify what is and is not expected, what is and is not safe. To consider the case study about Sandy and Mrs. Fritz in Exhibit 7.1, there were several points at which the presence of policies could have prevented the tragedy that occurred. For example:

What is the agency policy regarding volunteers who are tempted to exceed the limits of their job description? Is there a boundaries policy?

What is the agency policy regarding volunteers who encounter a situation with which they feel they cannot cope or in which they feel uncomfortable making decisions?

What is the agency policy regarding volunteer backup? Is there someone in authority on call at all times that volunteers are on duty—staff who can give explicit directions or take over when the situation exceeds the limitations and responsibilities of the volunteer's role?

What is the agency policy about friendly visiting volunteers driving their clients? Is it allowed? Is there a full set of policies regarding such volunteer transportation service, including verification of current driver's license (rechecked on a regular basis), driver's record, and the volunteer's own insurance coverage (is a minimum level of auto insurance required?). What is the agency policy regarding insurance coverage for nonowned automobiles?

If policies such as these had been in place and communicated clearly to Sandy (and, of course, if Sandy had complied with the rules), the story most certainly would have had a different outcome.

A Quick Note on Enforcement

In today's climate of increasing litigiousness and growing demands for accountability, organizations must meet ever-higher standards of due diligence, and volunteer activity is not exempt. In the wake of a tragedy arising from the misjudgment or willful misconduct of a volunteer, the headlines the next morning are not likely to offer special dispensation to the organization because the worker was unpaid. The offender may or may not be identified as a volunteer, but most assuredly the organization's name will have a place of prominence in subsequent news coverage. Members of the public are equally unlikely to respond to the media attention by saying “Oh well, it's a tragedy of course, but the offender was just a volunteer, after all.”

Unarguably, policies are vitally important. Not having policies to guide and govern volunteer involvement is ill advised. Having policies that are not enforced is worse.

It is difficult to assert with any authority just how careful or thorough an organization ought to be in its oversight of its volunteers. How carefully should volunteers be screened? How many reference checks should be implemented? How thoroughly should volunteers be trained? How often should the organization connect with and monitor the work of its various types of volunteers? There are no clear, objective standards on any of these questions. But if an organization creates a standard, embodies it in policy, and then fails to meet or enforce its own standard, risk of legal action is much greater, and the outcome of such legal action is much less likely to favor the organization.

The lesson is obvious: Write policies and enforce them.

Policies as Empowerment (Gaining Access to the Board)

Volunteer programs are typically underrecognized and underresourced. Boards and senior management frequently lose touch with the expansion in scale and significance of voluntary action, even in their own organizations. As Nora Silver (1988) pointed out more than two decades ago, a gap exists between the ability of directors of volunteer resources management to create volunteer programs—to recruit, place, and supervise volunteers—and the organization's development of administrative, communications, and accountability systems to support those volunteer programs.

Boards of directors provide leadership to their organizations. They set overall agency policy and assume fiscal responsibility for the organization. As the board is ultimately legally responsible for the agency and its programs, it is also responsible for the volunteer component. The board has the power to authorize the construction of a volunteer program, and it has the responsibility to ensure the effectiveness of that program. The board can—and should—call for program objectives, established policies and procedures, professional management, recognition of volunteers, and an adequate budget for the volunteer program.

The question arises: How do we get the attention of senior management and boards of directors? The answer may be: through policies, in the context of risk management.

When something goes wrong in the volunteer program, the ultimate responsibility will not fall to the director of volunteer resources management. The board is ultimately legally responsible for all that occurs under the auspices of the agency, and hence the lawsuit, when it arrives, will settle on the board table. And board members, in general, are becoming increasingly aware of their own vulnerability to liability: Board volunteers suddenly are realizing that not only can the voluntary organization they serve be sued, but there are instances in which individual board volunteers themselves can be sued.

It is suggested, then, that the best way to get the attention of senior management and boards is to alert them to the potential risks and hazards embodied in volunteering. In this view, policy development for volunteer programs is the key to the boardroom door. Some would suggest this is fear-mongering, or manipulation by fear. In fact, directors of volunteer resources management have an obligation to alert their supervisors to risks and liability. Not doing so is irresponsible. Only when risks are fully identified and assessed can they be properly managed.

But alerting management to the dangers is only half of the task. As we have seen, policy development is a key component in risk management. Boards generally concur that policy development is within the realm of board mandate, and they can, therefore, be counted on to pay attention when someone exclaims, “We need a policy on that!” The comprehensive strategy might be to:

Identify the risks.

Draft policies and procedures that minimize the risk and/or limit the organization's liability.

Take these together to the board table.

When the board realizes that activities being undertaken by volunteers are significant enough to create liability exposures for both the organization and board members personally, the volunteer program will be seen in a different light. Suddenly it will become a department worthy of board time and attention. From here, the director of volunteer resources management can build a case for adequate resources (budget, space, staffing) and agency support services (screening, training, supervision, direction, insurance, policy and procedure development). Policies are a concrete tool to accomplish what Ivan Scheier (1988) called on all managers to do: “Insofar as volunteer administration continues to see itself as derivative, passive and dependent, others naturally tend to see us that way too. Beginning to define ourselves as powerful, active and autonomous is the first step in becoming more so” (p. 29).

Where Policies Are Needed

Directors of volunteer resources management ask anxiously, “What policies do I need?” and “What if I miss something really important?” The answers to these questions vary from program to program and inevitably hinge on the nature of the volunteer program, the kind of work done by volunteers, the nature and complexity of the organization, and the amount of resources available for policy development. In the author's manual on policy development for volunteer programs (Graff, 1997), sample policies were presented on more than 70 different topics that would be applicable to most types of volunteer programs. Nearly as many again could be added to cover the unique dimensions of any specific program.

Functions of Policies

There is a way of conceptualizing policies according to their function that can be used to determine which policies any specific program might need to develop. In volunteer programs, policies serve four general functions:

Policies as risk management

Policies as values and belief statements

Policies as rules

Policies as program improvement tools

Each is explored in some detail in the next sections.

Policies as Risk Management

Policies are a critical component in an agency's overall risk management program, and a wide range of policies on a wide range of topics can help an organization to mitigate and manage risk exposures related to volunteer involvement. Here are just a few examples. The first pertain to risk management in the administration of volunteer involvement, and the latter pertain directly to the work of volunteers themselves.

Sample risk management policies related to the administration of volunteer involvement are presented next.

Screening

Volunteer screening is a critical component of both human resources management and risk management. The agency strives to maintain a safe and productive workplace with honest, trustworthy, reliable and qualified volunteers who do not present a risk of harm to themselves, other persons, or the reputation of the agency.

The agency applies a formal selection process to all prospective volunteers. This process varies according to the nature and degree of responsibility in the work to be done, access to money or other valuables, access to personal or confidential information, and/or access to beneficiaries or members of the public.

Risk Assessment

The director of volunteer resource management, along with other agency personnel, annually conducts a risk assessment on the positions, work, and activities of agency volunteers.

Risk assessment identifies risks, assesses their magnitude, and reexamines measures already in place to control and mitigate risks. Both volunteers and paid staff are invited to participate in this process. Risk management strategies are implemented as needed, including, in particular, written policies and procedures that identify, prevent, and reduce the incidence and impact of risk.

Insurance

Liability and accident insurance or other comparable forms of indemnification and protection are provided for all volunteers.

The agency evaluates its insurance needs on an annual basis and ensures that its insurance providers are well aware and up to date on the work done by volunteers.

Where insurance coverage is extended to volunteers, the agency ensures that volunteers are explicitly identified in the relevant policies as “named insureds.”

Volunteers are encouraged to consult with their own insurance agents regarding the extension of their personal insurance to include community volunteer work. Specific information regarding such protection is available from the director of volunteer resource management.

Hazardous Conditions

Volunteers are informed of foreseeable hazardous aspects, materials, equipment, or processes they may encounter while performing volunteer work and are trained and equipped in methods to deal with all identified risks.

Disaster Plan

The agency has a plan for dealing with natural disasters, including but not limited to flood, tornado, earthquake, and pandemic. This plan includes a communication plan for alerting volunteers who might be working in affected communities.

Backup for Volunteers on Duty

It is important that all direct service volunteers have backup from the agency in the event that they encounter trouble in the course of their volunteer duties. An identified staff member or other agency representative is on duty and accessible at all times when agency volunteers are on assignment.

Sample risk management policies pertaining to the work of volunteers, themselves are presented next.

Volunteer Driving

While on duty, volunteers do not use their own personal vehicles to transport agency clients.

Should an emergency arise in which a client requires immediate transportation, and time permits, the volunteer contacts his or her supervisor for direction. If the circumstance is more urgent, the volunteer uses his or her own judgment regarding whether an ambulance or other emergency service is required. Immediately after an incident of this sort, the volunteer notifies the agency of the situation and of the actions the volunteer has initiated.

Volunteers as Agents

Volunteers perform their duties in an objective, timely, and conscientious manner. They at all times act in a knowledgeable manner, consistent with their training, and in conformity with the volunteer code of conduct and these policies.

Volunteers are agents of the agency, and as such volunteers act in such a way as to ensure that their performance reflects positively on the agency, enhancing its integrity, reputation, and credibility.

Use of Organizational Affiliation

Volunteers do not use their affiliation with the ___ [name of organization] in connection with partisan politics, religious matters, business dealings, or community issues. Volunteers do not sell, recommend, or endorse any product, agent or company, or promote religious or political beliefs, perspectives, or practice.

Absenteeism

Because their work is so vital to the achievement of our mission, volunteer dependability is paramount.

Volunteers are reliable and punctual. When expecting to be absent from a scheduled duty, volunteers inform their supervisor as far in advance as possible so that alternate arrangements may be made. Frequent absenteeism results in a review of the volunteer's work assignment or term of service.

Boundaries are a special case of risks related to volunteer involvement. Volunteers may be at greater risk of exceeding both position-related and relationship boundaries, primarily because of good intentions. It is advisable to consider where policies can prevent volunteers from straying over boundary limits. Here are a few examples of such policies.

Position Boundaries

All volunteer positions have responsibilities as well as limits to those responsibilities. The agency clearly communicates both of these to volunteers through a range of mechanisms including, but not limited to, position descriptions, performance standards, orientation, training, on-the-job training, ongoing training, volunteer supervision and support, performance evaluation, and, as needed, corrective action.

Volunteers recognize and respect the limits of their skills and abilities and the boundaries and limitations of their position. Boundary breaches can be a very serious matter, and full compliance is expected.

If a volunteer is in doubt regarding the limitations of his or her role, no action is taken until direction on the matter is received from the volunteer's supervisor or another authorized agency representative..

Relationships with Clients

Our clients can be isolated, lonely, and particularly vulnerable to abuse and exploitation. For this reason, it is important that volunteers take great care in managing their relationships with clients.

Volunteer relationships with clients have the same boundaries as those between paid staff and clients. It is appropriate to be friendly, courteous, and caring, but it is not appropriate to become friends with clients, their family members, or others connected to the delivery of service. Friendships with clients can lead to unclear boundaries, inappropriate expectations, the appearance of favoritism or exploitation, as well as to conflicts of interest.

Invitations to volunteers from clients to spend personal time together or to engage in other than agency business are declined respectfully, citing, as needed, this policy as the basis for their action.

This policy applies throughout the duration of the delivery of service and for not less than 12 months following the termination of the volunteer's service to the client.

Engage Outside Help

Volunteers who identify client needs that are outside the boundaries of their own volunteer role (e.g., financial, healthcare, household assistance, transportation, etc.) bring these needs to the attention of the director of volunteer resource management for referral to appropriate community services.

Client Boundaries

Volunteers treat all clients with courtesy and respect. Volunteers respect the personal boundaries of clients and govern their physical behaviors accordingly.

Using the function of policies as a risk management device can be a useful guide to determining which policies a volunteer program needs to develop. The steps might include:

Look around the volunteer program.

Better still, walk around the volunteer work site(s).

Identify for risks, hazards, and dangers.

Play the What If? game, trying to identify what could go wrong under a series of different circumstances. What would this room look like if it were filled with smoke? How would this activity look from the perspective of a wheelchair? Would this activity be more dangerous in cold temperatures? in high winds? in the middle of an ice storm?

Consider policies that might reduce the likelihood of accidents, injuries, or loss of all types, and/or reduce the magnitude of harm should prevention fail and the risk materialize.

Policies as Values and Belief Statements

Every organization builds a web of values and beliefs about the world in which it works, the nature of the problem(s) it seeks to address, and the way in which it operates. Some of these are subtle and rarely discussed. Many are unwritten but nonetheless well known and clearly understood. In addition, agencies often take positions on questions and issues related to their services as well as to their own internal operations. Policy statements are a mechanism for both articulating and communicating such values, beliefs, and positions. Some examples, including those from published sources, are presented next.

Multiculturalism and Antiracism/Antioppression

Volunteers respect the diversity of the community that they serve. Discrimination toward anyone on the basis of race, religion, ethnicity, culture, gender, age, disability, sexual orientation, family status, or any other grounds typically covered by human rights legislation is not tolerated. Further, the spirit of such statutory provisions is extended to all kinds and nature of human differences, showing respect and consideration to all people we work and connect with.

Volunteers are sensitive to the cultural and religious needs of their clients and take into account religious holidays, food prohibitions, and other important religious and cultural practices, observances, and conventions.

Value of Volunteers to the Organization

Southwest Homes believes in the value volunteers bring to its organization and programming. Volunteers willingly join the staff/volunteer team to help SWH attain its goals, stay rooted in the community, and help it realize its principles of consumer control, cross disability representation, and promoting integration. (Eidem, 2007)

Volunteers, and the contributions they make through volunteering, significantly enhance the quality of life, community spirit, and leisure time opportunities in Burlington. Volunteers are a valuable human resource requiring and warranting support and encouragement to maintain and develop their skills and to ensure their continued involvement in the provision of leisure opportunities throughout the City. The Parks and Recreation Department will continue to develop and provide support for volunteers and volunteer groups to ensure their continued involvement in leisure services and to develop this resource to its fullest. (City of Burlington, n.d.)

Agency's Right to Dismiss Volunteers

The agency accepts the service of volunteers with the understanding that such service is at the sole discretion of the agency. Volunteers agree that the agency may at any time, for whatever reason, decide to terminate the volunteer's relationship with the agency. (McCurley, 1990, p. 3)

Volunteer-Paid Staff Relationships

Volunteers and paid staff are partners in implementing the mission and programs of the ___ [name of organization], with each having an equal but complementary role to play.

Each partner understands and respects the needs and abilities of the other.

The technique to identify policies of this sort involves thinking through the values, beliefs, and positions held by the organization. Answer these questions:

What do we hold as important? What do we value that volunteers need to know about? What is our philosophy about volunteers, about the work we do, about how we do business around here?

What positions has the agency taken on issues, questions, or problems?

What does the organization believe regarding good and bad, right and wrong, proper and improper, ethical and unethical?

The answers to many of these questions might be substance around which policies should be written and communicated.

Frequently, the most difficult policies to write are those that reflect or derive from values. Often, where disagreement surfaces in policy development, conflicting values will be the cause. In the examples in Exhibit 7.2, policy development will be difficult because the values that underpin the policies are both complex and incongruent with one another.

Exhibit 7.2 Examples of Conflicting Values

Values Conflict 1

We believe that volunteering is about caring for others, about simple motives to do good and help one's neighbors in times of need. It should not be overbureaucratized and overorganized.

We also acknowledge that rules and regulations around volunteer involvement—rules on topics such as application processes, thorough screening, and discipline and dismissal—have become necessary to protect the well-being of both volunteers and clients. Higher standards of transparency and accountability in health and human services make tighter controls unavoidable. These necessitate increased bureaucracy.

Values Conflict 2

Like many voluntary organizations, our mission is based on the struggle to obtain and preserve the values of inclusivity, individual rights and freedoms, and antioppression in all of its manifestations. We believe that we have an obligation to extend those values both to our programming (e.g., outreach and equality of access) and to our internal operations (e.g., hiring and promotions practices).

We also believe that clients have the right to demand from us services of the highest quality. Yet what is our response when a client refuses to accept the services of a volunteer on grounds typically prohibited by human rights legislation (the volunteer is the “wrong” age, the “wrong” gender, the “wrong” color, the “wrong” sexual orientation, etc.)?

Will we comply and find another volunteer and thereby collude with beliefs and behaviors that contradict our deeply held values regarding discrimination, or will we stand firm and refuse to reassign a volunteer, failing to fulfill our mission to deliver services without discrimination? When profound beliefs that run to the very heart of organizational existence clash with one another, the first step toward resolution is to recognize that the source of disagreement is values in conflict. Having identified the problem, the organization must engage in a values sort—a process whereby values are prioritized, with those that emerge on top serving as the basis for policy development. While one may abhor the very notion of downgrading the importance of a core value, when core values are in conflict with one another, forward motion may be impossible without prioritization.

Policies as Rules

Policies can be employed as rules to specify expectations, regulations, and guides to action. The distinction between policies as rules and policies as risk management often blurs. That is, a policy written to eliminate or reduce a specific risk might sound like a rule. A policy written because a rule is needed to guide a particular action may serve to reduce a specific hazard. The solution to this seeming confusion is this: Do not worry about it, because it simply does not matter. The point is that one develops whatever policies are needed; if some policies serve more than one function, all the better.

Intimate/Sexual Relationships and Sexual Contact

Volunteers do not under any circumstances engage in any form of sexual or romantic relationship, activities, touching, or physical intimacy with patients. Such behavior is always both unethical and inappropriate. Noncompliance with this prohibition is grounds for immediate dismissal/termination of contract.

Volunteers and Picket Lines

In the event of a union-initiated work stoppage or legal strike, volunteers do not cross the picket line.

Family Members as Volunteers

Family members of staff are allowed to volunteer with the institution. When family members are enrolled as regular volunteers, they normally will not be placed under the direct supervision of, or within the same department as, other family members who are employees. (Minnesota Historical Society, n.d.)

Substitution

If a volunteer is unable to fulfill a position responsibility, the anticipated absence or shortcoming is reported with as much advance notice as possible to his or her immediate supervisor or the director of volunteer resource management, who ensures that a replacement is found or other suitable arrangements made. It is neither the responsibility nor the right of volunteers to find or assign an alternate person to perform their work.

Acceptance of Gifts

The work of volunteers often engenders gratitude among clients. It is understandable that some clients and those who care for them wish to express their thankfulness through gifts to the people who have been so helpful. However, acceptance of personal gifts by volunteers is prohibited to prevent, and prevent the perception of, exploitation of clients and/or their families and caregivers and to protect both the reputation of the agency and its volunteers from accusations of favoritism or personal gain.

Volunteers do not accept gifts from clients, their families, caregivers, or other representatives. Any such offerings are respectfully and tactfully declined, citing, as needed, this policy as the basis for their action.

Financial Transactions with Clients

Volunteers do not enter into financial transactions with clients, their family members, or caregivers, either lending or borrowing in either direction. If clients are in immediate financial need, the director of volunteer resources management is notified, and referral is made to appropriate community services.

Safety Equipment

Volunteers comply with all safety regulations. Dismantling or disabling safety measures such as smoke alarms, chain brakes, saw fences, and so on are strictly forbidden. All appropriate safety gear must be worn, including hard hats, steel-toed boots, protective eye wear, hearing protection, and respirators. Failure to appropriately use all safety equipment or to comply with all safety regulations may be grounds for disciplinary action, up to and including dismissal.

To determine required policies of this sort, the director of volunteer resource management might spend time reviewing existing rules, both written and unwritten. Review past records such as memoranda, volunteer job descriptions, and volunteer performance review documentation to identify where rules have been articulated or directives issued. Also think about advisements or directives issued verbally to volunteers that have never been written down anywhere but that nonetheless reflect “how we do things around here.” Review staff policies, health and safety regulations, and accident reports (to identify where things may have gone wrong in the past).

Policies as Program Improvement Tools

On occasion, it may be useful to upgrade an expectation, a protocol, or a standard to the level of a policy, to give it more authority and import. This technique is useful where an activity is important but is perhaps not seen to be important by, or at least warranting the attention of, those expected to comply. Time sheets are an excellent example.

Volunteers mail or deliver their activity logs to the director of volunteer resource management within five working days of month-end.

Sometimes policies can be used to ensure that a program operates smoothly or to improve the effectiveness of a program or service. This policy on expectations of volunteers will enhance the service delivered:

Volunteers are expected to work within the parameters of their own volunteer job description while on duty with the agency. However, regular contact with clients can allow volunteers to make important observations about changes in the health and well-being of clients. Agency policy requires volunteers to report such observations to the director of volunteer resource management who takes appropriate action.

And this policy on wait lists commits the organization to speedy response and decreases the likelihood of losing volunteers between the time that they express interest and the time they actually get involved:

Wait List

Because prospective volunteers typically want to become active as soon as possible, the ___ [name of organization] attempts to engage people quickly through continuous intake. Only if volunteer opportunities are not immediately available or initial volunteer training is not available quickly do we maintain a wait list of interested prospective volunteers. If the wait list becomes lengthy, we make every effort to help volunteers find alternate placements in the community. This is preferable to losing them from volunteering forever.

Implementing a policy that speaks to the operation of the program does not, of course, guarantee compliance, but the weight or import of stating an expectation in the form of a policy can help. It will also provide a basis for pursuing consequences in the case of noncompliance.

Acceptance of Supervision

Upon acceptance into service, volunteers agree to willingly accept supervision and support from designated supervisory personnel.

Failure or refusal by a volunteer to accept supervision and/or to integrate the direction of the supervisor into his or her volunteer work performance may be grounds for disciplinary action up to and including dismissal.

To pinpoint which policies of this sort are required, the director of volunteer resource management might identify aspects of the volunteer program that are not operating as effectively or efficiently as desired. Perhaps a policy might help.

Equality or Elitism? Policy for Direct Service and Administrative Volunteers

In agencies where policies have been written to guide volunteer involvement, rarely do those policies apply equally to direct service and administrative (board, committee, advisory) volunteers. In the same way that so many board members refuse to consider themselves as volunteers (do they consider the label below them?), board members often think of themselves as outside (above?) the scope of policies written for volunteers. This type of two-tiered elitism among volunteer ranks has left administrative volunteering beyond both the control of, and the protection afforded by, risk management programs and policy development. The consequences can be dangerous. Consider the next examples.

Board members are rarely screened; formal application and interview procedures are rarely required.

Reference checks on board members are rarely required, even of those board members who have significant financial responsibilities—treasurers and comptrollers, for example.

The involvement of board members is rarely monitored, even though their actions and decisions are among the most important and influential in the organization.

Board members are rarely disciplined or dismissed, even when clear cause exists.

It is recommended that the scope of policies written for volunteer programs be extended to cover all volunteers equally. Exceptions need to be identified clearly, and only with justification.

Policy Development Process

The precise way in which policies are drafted, reviewed, revised, approved, and implemented varies a good deal from agency to agency. In some agencies, the board will hold within its own mandate anything that even remotely resembles a policy. In other agencies, the executive director (chief executive officer, chief operating officer, or other senior staff member) may determine that drafting policies for board approval is his or her own responsibility. Some agencies may have a policy committee that oversees all matters of policy for the agency. In other agencies, senior administration (paid and unpaid) may welcome the research, advice, input, and drafts from frontline staff regarding policies with broad applicability, allowing more specific policies or policies with limited scope to be developed and implemented by department staff. Although none of these policy development systems is inherently right or wrong, it is probably best if organizations develop an internal culture that welcomes notification of the need for policy development, review, or revision from all agency personnel, paid or unpaid. It is not helpful for volunteers to think of policy as out of their realm or somehow “above them.” People actually doing the work are often those most likely to identify risks, the need for improvements, or the need for rules or added protections.

Role of the Director of Volunteer Resource Management

It is important for the director of volunteer resource management to determine how policy development is typically handled in his or her organization. The director will thus be able to determine just what role he or she can play in policy development. There is no question, however, that the director of volunteer resource management is primarily responsible for identifying policy issues related to volunteer involvement and for bringing those to the attention of senior staff and administrators. At a minimum, it would be unethical not to report hazards or risks, or to fail to do everything possible to ensure the safety and well-being of all volunteers.

With few exceptions, senior administrators, paid and unpaid alike, have little knowledge of the details, complexities, or scale of volunteering as it actually occurs within their organizations. This makes getting the attention of senior administrators more difficult, to be sure, but it is all the more reason why the director of volunteer resource management must take the initiative in policy development for volunteer programs. The process may have to include a good deal of education regarding the true dimensions and significance of volunteer work. Reference to personal and collective liability exposure will often motivate board members and senior staff to listen more closely.

Ask for Help

As volunteer programs grow larger, as risks and liabilities grow, and as volunteers become engaged in increasingly sophisticated and even technical work, directors of volunteer resource management have more and more complexities to oversee. And changes and growth outside the volunteer department create new demands as well.

It is simply unreasonable to expect any single individual to have expertise in all the areas in which volunteers are engaged, especially in large organizations, in organizations with large or diverse volunteer programs, or where volunteer involvement might take place in an array of settings or even countries. Developing policies for volunteer programs can require skills and background in a wide range of fields, including:

Human resource management

Labor law

Contract law

Human rights legislation

Risk management

Statistics

Insurance

Information management

Emergency extraction

International politics and cultures

Athletics

Fundraising

Planning

Occupational health and safety

Systems analysis

Liability

Accounting

Education and training

How many directors of volunteer resource management who do not work in healthcare settings know enough about communicable diseases and universal precautions to develop policies and procedures on that topic; yet virtually every volunteer program where volunteers come into direct contact with other people probably requires such policies. How many directors of volunteer resource management know enough about liability and insurance to guarantee maximum coverage and protection?

No one should expect or be expected to know enough to develop all policies alone, so ask for help. People from all walks of life generally are willing to volunteer for short-term positions as pro bono consultants. Ask them to prepare a draft policy, to work with you and/or other agency representatives to draft a policy, or to review or edit an existing draft. After all, directors of volunteer resource management are experts at volunteer recruitment—they just do not think, as often as they might, about recruiting volunteers to help them with their own work.

How to Write Policies for Volunteer Programs

Policy development is deceptively complex. It requires the identification of the full range of topics on which policies are required. It demands extraordinary writing skills that blend both the science of stating exactly what is intended with the art of appropriate style and tone. Probably nowhere else is precision of meaning more critical and the overall tenor of the document is so critical to success of the effort. Managing policies on an ongoing basis—revisions to existing policies and the continuous identification of emerging issues—requires commitment. Setting a climate in which policies are framed to engender voluntary compliance, ensure clear communication, ongoing monitoring, and unflinching response in the face of noncompliance are all critical pieces of the policy landscape.

This section looks at policy writing. It discusses the overall structural approach to policy development and offers a range of how-to tips on effective policy-writing practices.

Structure of Policies

How policies are to be physically structured is a matter of great variation. One approach is to prepare only the policy statement and, where appropriate, the corresponding procedure(s). At the other end of the spectrum, policies can be multipart creations that include preambles, background factors, values statements, clarification of scope, embedded definitions, and a range of control and tracking mechanisms for authority, approval, implementation timelines, and revisions.

As with so much about policies, there are no ideal structures that suit all settings. The manner in which the policies pertaining to volunteer involvement are written should, in most cases, parallel the style and structure of other organizational policies, unless, of course, there is a clear reason for departure. The complexity of the structure of policies will depend on a range of variables, including:

The overall culture of the organization (e.g., how bureaucratic, how definitive and proscriptive)

How extensive the volunteer program

How risky and complex the work of volunteers

The nature of volunteer roles

The complexity of the overall volunteer program management system (e.g., one coordinator compared to a multilevel, multidepartment, multisite, decentralized and staff-supported engagement model)

The general rule is that the approach to policy development should fit the setting.

An outline of a range of structural elements of a policy is presented next. Not all of these elements must be in place, either in all organizations or in all policies. Choose only those elements that fit your organizational culture, make sense, and add value in your environment.

Context: Background/Preamble/Statement of Problem/Statement of Commitment

This element sets the context for the policy topic. It might be a statement of the problem that is giving rise to the policy. It may include background information or context needed to fully understand the issue that the policy addresses. It may be the “because” answer to the question “Why this policy?” It may set out the organizational values that inform the policy. Here are a few examples of context sections.

Preamble to a Volunteer Center's Volunteer/Paid Staff Division of Labor Policy

Damage is being done to volunteer programs and the volunteer movement, and volunteers and volunteerism are being exploited through the deployment of volunteers in positions that ought to be performed by paid staff. (The policy might prohibit the Volunteer Center from referring prospective volunteers to organizations that have a history of displacing paid staff and engaging volunteers in substitution.)

Background to a Respectful Workplace Policy

The City of Calgary is committed to creating and sustaining a vibrant, healthy, safe and caring work environment. To do so, all people. . . are to be treated with respect, honesty and dignity. Behaviour and/or situations that run contrary to such treatment will not be tolerated.

The City recognizes that conflicts, disagreements or inappropriate behaviours will occur. We expect these issues to be resolved in a manner that contributes to a healthy and productive workplace.

The City of Calgary promises to respond quickly to complaints about inappropriate behaviour in the workplace, and to resolve issues speedily, openly, honestly, and with appropriate consideration for privacy and confidentiality. (City of Calgary, 2005)

Preamble to an Extensive Screening Policy in an Organization with Many Positions of Trust

Volunteer screening is a critical component of both human resources management and risk management. We strive to maintain a safe and productive workplace with honest, trustworthy, reliable and qualified volunteers who do not present a risk of harm to themselves, other persons, or the reputation of the organization as a whole.

Context to a Volunteer Compliance Policy

Any responsible employer and/or service provider must strike a balance between respecting the dignity, rights, and comfort of its personnel and client population, and its legal and ethical obligations to deliver safe and efficient services to fulfil its mission. Sometimes satisfying both sets of obligations equally is very difficult, and tough decisions need to be taken. This is the case, when, for example, volunteers’ interests, motivation and good will exceed the boundaries of their defined volunteer role or when clients have legitimate needs that fall outside of the mandate of the agency's services.

Statement of Values that Inform a Volunteer Training Policy

Volunteer training is essential to effective service delivery, volunteer satisfaction, organization-wide risk management. We believe that both the organization and its volunteers have the right to ensure that training leads to satisfactory volunteer performance.

Purpose

The purpose statement is slightly more specific than the context statement. It speaks to what the policy aims to achieve.

For example, in reference to the excerpt from the City of Calgary's (2005) Respectful Workplace policy cited earlier, the purpose of the policy might be stated as:

Purpose: Respectful Workplace Policy

To promote, create, and maintain a safe and respectful working environment for all personnel, clients, and publics connected to our operations and services.

To take timely and appropriate action on all concerns or complaints regarding disrespectful behaviour in the workplace

The purpose statement in the context for the volunteer compliance policy, above, might be:

This policy on compliance exists to ensure that the organization's mission is achieved, the organization's values are upheld, services are of maximum effectiveness, risks are managed, operations are efficient and cost-effective, and exposure to liability is limited.

Policy

This is the actual policy statement (e.g., rule, expectation, behavior, prohibition, etc.). If any or all of the preceding elements are included, the policy statement may be very short and to the point. Another option is to weave some of the preceding points (e.g., context, values, etc.) into the policy statement itself. Here are a few examples of straightforward policy statements. They are about simple topics that really need no frills.

Volunteer Resignation

Volunteers may resign from their volunteer service at any time. Volunteers who intend to resign provide as much advance notice of their departure as possible along with the reason for their decision.

Environmental Respect

All volunteer activities strive to adopt practices that conserve energy and reduce pollution and dependency on natural resources (e.g., fuel, electricity, water). Volunteers and the programs through which they function strive to model good socially responsible practices and to reduce, reuse, and recycle materials and services wherever possible.

Alone Time

Volunteers avoid, wherever possible, spending alone time in private settings with young program participants. Instead, volunteers create alternate arrangements, such as meeting in a public place or in settings where other adults are present, or meeting with young participants in groups.

Screening Authority

Screening and acceptance decisions are made by authorized persons only, typically the director of volunteer resource management.

Examples

Depending on the complexity of the subject matter and the potential for genuine misunderstanding or ignorance pertaining to it, policies may include examples to illustrate precisely what the policy intends. This may be of particular use when the policy pertains to behavior or necessitates a change in attitude or performance from the commonly accepted practice in place before the implementation of the policy in question.

For example, the City of Calgary (2005) respectful workplace policy provides examples of appropriate and inappropriate behaviours in the workplace.

Policies on discipline and dismissal often include sample grounds for various transgressions up to and including dismissal. A partial list as illustration follows.

Grounds for Disciplinary Action, Including Dismissal

Following is a sample list of possible grounds for dismissal. This list is for illustration purposes and is not intended to be complete or comprehensive. Individual situations vary, and supervisors and the director of volunteer resource management use discretion and good judgment in all decisions regarding possible volunteer dismissal.

Harm, abuse or mistreatment of clients, coworkers or other persons

Gross misconduct

Serious misjudgement that may undermine our trust in the volunteer, cause harm to others, or diminish public trust in the organization

Insubordination including failure or unwillingness to perform essential position responsibilities

Failure and/or unwillingness to accept direction from authorized supervisory personnel

Being under the influence of alcohol or illegal drugs while on volunteer duty or representing the organization

Dishonesty, theft, or other illegal acts

Loss of license or certification required to perform assigned duties

Caution: Be very careful not to portray any sample list or illustration of prohibitions as exhaustive or complete. Volunteers will undoubtedly find a way to do something inappropriate that seemed either too obvious or too remote to include on the list.

Here is part of a policy on bullying that includes examples of bullying behavior:

Bullying

Bullying includes:

Name calling, verbal taunts, gossiping, and put-downs

Exclusion from a peer group

Threats and intimidation

Extortion or stealing of money and possessions

Physical violence and attacks

No matter how it is defined, bullying is abuse.

Procedures

Procedures set out the how-tos for the policy. For example, what are the steps, processes, and actions required to implement the policy? Not all policies have procedures. Most procedures are preceded by a policy statement. Procedures may be simple single steps, such as where, when and how volunteers hand in their time sheets. Procedures may be complex with multiple components, multiple players, and multiple time frames, such as the procedures involved in screening for positions of trust or delivering corrective action for a serious transgression that ultimately may result in dismissal.

Procedures ought to be clear, straightforward, practical, sequenced, and actually work in everyday application.

Scope/Exceptions

Not all policies apply to all volunteers or to volunteers in all programs or at all work sites. For example, volunteer engagement and support processes designed for headquarters may not be appropriate in a campus setting or for overseas placements. And while it would make sense for an organization that engages volunteers in environmental cleanup work to have a policy on appropriate dress and safety gear (e.g., gloves, helmets, and safety boots) while on duty, that policy clearly does not apply to the reception volunteers who work at the front desk in the organization's headquarters. The lesson is, beware statements such as “all volunteers. . . ” or even the blanket-style “volunteers. . . ” which implies “all volunteers,” unless that is precisely what you mean.

Policies need to be adjusted according to position responsibilities. For example, policies on topics such as screening, training, and supervision need to be written in such a way as to allow adjustments for the demands and risks associated with the work of various volunteer positions. Screening of volunteers who work in positions of trust must be thorough and intensive; screening of single-event volunteers who merely hand out brochures or provide drinks at the rest stops of the fundraising marathon do not require anything near that degree of intensiveness.

Equally, some policies apply to the engagement of direct-service/frontline volunteers while other volunteers may be exempted from such policies or standards. For example, all frontline volunteers in positions of trust are subjected to an intensive screening process that might involve application form, interviews, identity verification, reference checks, criminal record check, and qualification check. Prospective board volunteers are recruited bypassing most of those steps. It may not be ethical or organizationally or fiscally prudent, but it happens all the time.

Where not all policies apply to all volunteers or to all volunteers equally, the scope of the policy or exceptions thereto are required. Examples of scope statements include:

Policy Scope

This policy applies to all of the following people and places:. . .

Training Exemption

Volunteers who have received equivalent training in a similar setting may be exempted from certain training requirements.

Grandfathering Exemption

As of their date of effectiveness, new screening policies apply equally to existing volunteers. Any volunteers currently in positions for which screening requirements will increase are subjected to all provisions of the new policy that apply to their position(s) and must complete their screening upgrades within one month of the date of effectiveness of the new screening policy. This policy does not apply to interviews and reference checks, two screening mechanisms that do not have to be performed with existing volunteers.

Weapons Policy Exception

Volunteers do not carry or have in their possessions or belongings any weapon as defined in the Criminal Code of Canada. This includes. . .

Exceptions:

Cultural or religious artifacts, the possession of which is protected in law, such as the Sikh kirpan, are subject to the same safety provisions specified in law.

Other exceptions to this policy may be granted by the department director for bona fide educational or instructional purposes, including, for example, tools or chemicals used by volunteers in the laboratory setting, providing that all reasonable safety precautions and risk mitigation strategies are in place.

Responsibility

Who does what with each dimension of the policy statement or procedure (e.g., who communicates, who supports, who monitors, who verifies, who follows up, who applies consequences, who documents, etc.)?

Consequences of Noncompliance

The penalties for not following the policy are communicated. This section may be brief, such as:

Compliance with this policy is mandatory.

Failure to comply with this policy will result in corrective action consequences up to and including dismissal.

This is a zero tolerance policy. Failure to comply will result in immediate dismissal.

This section may be more detailed, including for example, the outline of various types of corrective action, depending on the nature of the breach of policy (e.g., willful, deliberate; breach constitutes an illegal act; inadvertent mistake with minor consequences; etc.). It may also outline a process for first time non-compliance versus repeated failure to abide by the policy, reflecting a graduated response process for handling non-compliance. For example, a low-level first time offense such as a volunteer showing up late for a shift may attract a low-level supervisory response; a volunteer's lateness for an extremely important and time-sensitive position might attract a more serious intervention, even on the first occurrence; repeated breaches of the same policy are likely to attract increasingly more serious disciplinary intervention.

Definitions

Depending on the subject matter, a set of definitions and or interpretations may be necessary, either for a single policy or for a set of policies. For example, this subsection of a larger risk management policy needs a definition of a legal term:

Duty of Care

The ___ [name of organization], its staff and volunteers, have a duty of care to the youth we work with.

“Duty of care” can be defined as a legal obligation to take reasonable measures to care for the safety and well-being of our clients to an appropriate level or standard.

Here are other examples:

Age of Majority

The age of the youth we work with affects the standard of care required of us. Young people who have not yet reached the age of majority are subject to a more rigorous standard of direction, oversight and supervision than the older residents in our care.

“Age of majority” is the threshold of adulthood as it is conceptualized and recognized in law. Due note is taken that the age of majority varies by jurisdiction. For our purposes, the age of majority of the youth we work with is the age of majority as legally defined in the jurisdiction where the youth normally resides.

Bullying

“Bullying” is defined as repeated, aggressive behavior by one or more people that harms others physically and/or emotionally.

Tracking

It is common for organizations to embed tracking information in each policy statement. For example, any of the listed information might be included:

Policy number

Policy title

Under the authority of

Approved by

Effective date

Revision date(s)

Department

Business unit

Revision dates are particularly important for version control.

A sample of what the overall policy structure might look like is presented in Exhibit 7.3. Be sure to customize this format to suit the structure and conventions of your own organization.

Seven Principles of Writing Policies

Seven principles of writing policies are presented next. Some speak to the structure of policy statements, some are matters of grammar, and some have to do with tone and presentation. In application, these principles together make for clearer, crisper, and often more compelling policies that can be, at the same time, more palatable.

Be Concise

Write as much as is required for the policy to be clear and comprehensive. Remember, however, that the longer the policies and the thicker the policy manual, the more intimidating the topic will be and the less likely that policies will be read and used regularly.

Be Clear

Policy writers must take great care to ensure that the policies they develop convey precisely and completely what is intended. Do not assume that the people reading and applying policies will understand them to mean what was originally intended.

Terms that may be in common usage within an organization may not be familiar to volunteers from different walks of life, country, or culture or whose first language is different from the dominant organizational language. For example, what constitutes harassment? What would discriminatory behavior look like? What constitutes threatening or violent behavior? What does punctuality mean—Not later than the time of expected arrival? Within five minutes of expected arrival? Within a half hour of expected arrival? Showing up at all? Sending a friend in one's stead?

Avoid technical terminology and jargon. Where it is necessary to use technical terms, explain them, either in the text or in an attached glossary.

Beware acronyms. They are a common and useful shorthand for insiders but an offputting and exclusionary practice for newcomers and others not as involved in the day-to-day workings of the organization.

Policy writing involves an artistic touch along with technical ability and clear communication. Not everyone possesses this talent. If policy development is not your forte, enlist help. Clarity and tone are equally critical in this domain. Recruit a volunteer who has written policy professionally.

Write in the Present Tense

It is recommended that policies be written in the simple present tense. Many policy writers use the future tense in their work. For example,

Volunteers will call into the office immediately whenever they encounter a situation which is outside their scope of authority, capacity, or position description.

In the present tense, this policy would read:

Volunteers call into the office immediately whenever they encounter a situation which is outside their scope of authority, capacity, or position description.

The force and import that a full set of policies written in the present tense can convey is remarkable. Policies written in this style seem to leave no room for interpretation and communicate the sense that what they require is the reality. Consider these examples, written in the present tense.

Volunteers dress appropriately for the conditions and the nature of their volunteer duties, maintaining a high standard of personal appearance, hygiene and grooming at all times.

Volunteers are reliable and punctual. When expecting to be absent from a scheduled duty, volunteers inform their supervisor as far in advance as possible so that alternate arrangements may be made.

The reader may note that all of the original (i.e., not adapted from outside sources) policy examples in this chapter are written in this format.

Be certain to use the same tense throughout the policy document. When editing, be sure to look out for “wills”. They creep in.

It is not uncommon to find a host of “musts,” “shalls,” and “ought tos” peppering sets of policies. They should be avoided.

Be Directive

Policies should very clearly tell people what is expected. Although one would hope for complete compliance with all policies, it is obvious that compliance with some policies is much more important than compliance with others. It is appropriate, therefore, that some policies be more strongly worded and more authoritative than others. Here are some policies for which the imperative—a command—is entirely proper:

Volunteers do not give patients anything to eat or drink before patients’ surgery.

At all times volunteers act in a knowledgeable manner, consistent with their training, and in conformity with the volunteer code of conduct and these policies. The agency makes every effort through a variety of mechanisms to inform volunteers of policies and other provisions affecting their work. It is the volunteer's responsibility to seek clarification where needed. Failure to know about or understand a communicated rule is no excuse—ethically or legally —for noncompliance.

Volunteers reporting for duty are expected to be able to perform assigned duties safely and acceptably without any limitations due to the use or after-effects of alcohol, illicit drugs, nonprescription drugs, or prescribed medications or any other substance. This is a zero tolerance policy. Noncompliance is grounds for immediate dismissal.

In all cases, remember that policies are policies. They are not suggestions or guidelines. They must be directive and commanding.

Round the Edges

Without diminishing the importance of the three preceding principles, one must not lose sight of the fact that the way a policy is written can very much influence the degree to which compliance might be expected. That sometimes requires a longer and more sensitively constructed policy. For example, consider these two approaches to a workplace behavior policy:

Workplace Behavior

Workplace incivility, including aggression and bullying are strictly forbidden.

Respectful Workplace

The ___ [name of organization] is committed to providing a work environment that promotes excellence in service provision and mission attainment through working relationships based on courtesy, civility and respectful communication. This commitment calls for a workplace where the following beliefs are upheld:

Everyone at ___ [name of organization], without exception, has an important contribution to make toward the overall success of the organization's mission.

This mission is best achieved in an atmosphere where all staff—paid and unpaid—value each other and treat each other with respect. This is true even in situations of high pressure and urgency.

Managers, supervisors, and others in positions of authority should consider themselves as role models in the promotion of such an atmosphere, without in any way abdicating their responsibility to direct their workforce to perform effectively.

In the same spirit, paid staff and volunteers at all levels should be able to discuss issues of concern without fear that those discussions will result in retaliation of any sort (see also: Whistleblower policy).

In response to input from our personnel, we will make reasonable changes to improve the work environment and/or service quality. (Manitoba Civil Service Commission, 2008)

Keep in mind that the subject of policy development being discussed in this chapter is the work of volunteers. For this reason, it is suggested that the tone of many policies in the volunteer department be deliberately softened to be as palatable and inoffensive as possible. Note that does not mean that volunteers are subject to lower standards or granted more leeway toward noncompliance. The point is merely how the policy is written, not what it ultimately requires.

Here are some samples to illustrate how rounding some of the sharp edges of policies can make a big difference in tone.

Conflict of Interest

No person who has a conflict of interest with any activity or program of the agency, whether personal, philosophical, or financial, shall be accepted or serve as a volunteer with the agency.

An alternative might read something like this:

Volunteers are often busy people who can bring many valuable connections to the organization. They sometimes volunteer for more than one organization at the same time. It is, therefore, not unusual for volunteers to find themselves in a conflict of interest situation, regardless of whether they do administrative (board or committee) or direct service volunteering. There is nothing inherently unsavory about conflicts of interest, and they arise frequently. Any volunteer who suspects that he or she may have a conflict of interest notifies his/her immediate supervisor to discuss application of the conflict of interest procedure, a copy of which is available from. . .

Turning Volunteers Away

The agency reserves the right to decline involvement in its volunteer program by anyone it assesses to be unsuitable. The decision of the agency is final in these matters.

Versus:

While the agency may need to decline offers of involvement by prospective volunteer applicants, every care is taken in turning such applicants away, leaving intact he applicant's sense of self-confidence and dignity. In the process, emphasis is placed on the absence of a match between the gifts that the volunteer has to offer and what the position requires at the time. Alternate placement opportunities or referral to the Voluntary Action Center will be offered wherever possible.

The next series of policy statements regarding volunteer placement also conveys a deep respect for the rights and dignity of volunteers:

In determining suitable placements for volunteers, equal attention is given to the interests and goals of the volunteer and to the requirements of the agency and of the position(s) in question.

No volunteer is placed in a position for which s/he is not fully qualified or for which the organization is not able to provide adequate training.

Volunteers are fully and honestly informed of the expectations and responsibilities of their volunteer position along with any risks or liabilities the position might entail.

Volunteers are made to feel comfortable in declining a suggested placement or in requesting changes to position expectations at any point in their involvement with the organization.

These examples illustrate that many policies can be written in a positive, supportive, respectful manner while still being clear and directive. These are the artistic touches that set excellent policies apart.

Emphasize the Positives

Whenever possible, policies should enable, motivate, and inspire. They should articulate outside limits, leaving as much room as possible for flexibility and creativity. The presence of supportive and enabling policies can provide the encouragement and recognition that volunteers require to maximize their potential. Policies can demonstrate just how important the work is and the very real consequence of error when standards are not attained or guidelines are not followed. As Rick Lynch (1983) points out, we should never be surprised at the lack of results we get from volunteers if we never give them results to achieve.

Consider these examples.

Volunteers have the right to expect work that is meaningful and satisfying to them.

No position is too high in the organizational structure or too skilled for a volunteer, assuming the volunteer possesses appropriate skills, background, and time commitment.

No position should be considered too tedious or unskilled as long as volunteers are given a clear understanding of the nature and importance of the work to be performed.

Illustrate

Do not hesitate to draw pictures, illustrate steps and sequences, or sketch methods or techniques. Diagrams and other graphic additions make the manual more pleasing to read, but, more to the point, convey specific details that words sometimes cannot.

If the preferred style of policy presentation is formal and structured like that portrayed in Exhibit 7.3, it is still possible to append graphics and illustrations after the formal statement.

Be cautious about the frivolous use of graphics and clip art. These can tend to diminish the significance of the product.

Which Policies? Which Ones First?

Policy development for volunteer programs can seem completely overwhelming, particularly for those who are starting with few or no policies. The panicky question “Oh dear! Where do I start?” is both typical and understandable in the early stages of policy development.

The first step is to outline the range of possible policy topics and then be certain that the most urgent are developed first. Following is a simple, two-step process that is equally useful to directors of volunteer resource management who are just getting started and to those who already have many policies in place.

Which Policies?

Developing a list of possible policy topics is the first task. Using the policy checklist from Exhibit 7.4, the director of volunteer resource management can begin the process by listing all the items that he or she can think of. Here are some suggestions to help build the initial list.

Contact other organizations—sister or parent organizations, or other organizations that work with volunteers in ways that parallel the work of your volunteers or that operate services similar to those of your organization. Ask them to share their volunteer policies or their volunteer policy manual if they have one; if they are reluctant, perhaps they might at least share the table of contents, which gives a good start to outlining what needs to be considered. Offer to share back with them a copy of your final product.

Do an Internet search. With a bit of patience, you can find samples on a wide range of policy topics, some of which pertain directly to volunteers and many others that can be adapted from the paid staff setting.

Make contact with your local Association of Volunteer Administration (it may be called a DOVIA [Directors of Volunteers in Agencies] group, Association of Volunteer Coordinators, etc.). Attend its meetings and talk to others in your profession who may have models they would be willing to share.

Consult the table of contents of the author's By Definition: Policies for Volunteer Programs (Graff, 1997). That volume lists over 70 generic volunteer program policy topics.

The brainstorming process can be prompted at this point by segmenting the policy checklist into separate sections for risk management policies, values and belief statement policies, policies as rules, and policies that will enhance the program's effectiveness.

Since this is a brainstorming exercise, no possibility should be ruled out at this point. It is also appropriate to include on this list those policies that are already in place. As possible policy topics arise, list them in the left-hand column of the policy checklist. Complete the other columns for each topic as appropriate, indicating whether the policy exists, is in progress, or needs to be developed.

There are two ways to think about developing a list of policy topics.

Who Needs Policy Guidance?

First, recognize that, in essence, typically two completely distinct sets of policies are required: a set of policies to guide the management of the volunteer program and a set of policies to guide volunteers.

A few typical topics that would fall into the first set—policies about volunteer program management—are listed next. Note this is not a complete list.

Position design

Preparing the volunteer worksite

Program infrastructure and systems (e.g., budgeting, information collection, reporting and accountability, risk management, insurance and liability reduction, program evaluation, etc.)

Recruitment

Screening

Orientation

Training

Placement

Supervision

Performance evaluation

Recognition

Corrective action

Volunteer/paid staff relations

These are policies written to guide the work of the director of volunteer resource management. The Volunteer Involvement Cycle (discussed in Graff, 2005) can be a helpful aid as it sets out the range of managerial and administrative functions typically in operation in volunteer programs. Most will require policy support. Additionally, the author's 2005 book specifically identifies many topics on which program management policies may be needed, as do her other two books, Beyond Police Checks (Graff, 1999), which includes many references to policies related to volunteer screening, and Better Safe. . . (Graff, 2003), which identifies dozens of policy topics related to risk management.

A second set of policies is required to guide volunteers themselves, their performance, and their behavior. A few typical topics that would fall in this policy range are listed next. Note that this is not a complete list.

Code of conduct

Boundaries and ethics

Provision of service

Representation of the organization

Identification

Use of organizational affiliation

Confidentiality

Conflict of interest

Dress code

Recording of volunteer time

Staff/volunteer family members as volunteers

Clients as volunteers

Reimbursement

Reliability and absenteeism

Substitution

Harassment

Drugs and alcohol

Acceptance of gifts and honoraria

Reimbursement of expenses

Access to agency property and materials

Relationships with clients

Financial transactions with clients

Acceptance of direction and supervision

Resignation

Policies Required to Support the Volunteer Involvement Cycle

The other way to approach the identification of policy development topics is to think about policies required to support the main systems that typify most volunteer program administration. Here is a starter list of topics and examples of some of the policies that might fall in each category.

System Sample Policy Topics

Policy about policy Drafting, approval, review, communication, compliance, etc.

Program infrastructure Vision, philosophy of volunteer involvement, values that underpin volunteer involvement, budget, definition of volunteer, information collection, communications and reporting, evaluation, etc.

Program management Position design, recruitment, screening, orientation, etc. (as above)

Volunteer performance and behavior As above

Information technology Use of agency equipment, Internet use, use of own computers, taking confidential information offsite, photographs, use of cell phones with cameras, blogging or other posts and social networking about one's volunteer involvement and agency business, etc.

Risk management Risk assessment, home visits, driving, financial transactions with clients, boundaries, incident reporting, etc.

Health and safety Safe working environment, safety training, communicable disease, working alone, emergency procedures, evacuation, crisis communication, disaster plan (extreme weather, pandemic, etc.), incident reporting, etc.

Note that thus far the discussion has focused on general topics for policy development. Some topics may require only one policy statement—for example, dress code—while other topics, such as screening, may require a lengthy series of policy statements.

It is suggested that the director of volunteer resource management begin this process of policy topic identification. The checklist in Exhibit 7.4 is a useful tool to record the growing list. Several pages may be required. When the director has listed all that he or she can think of for the moment, the checklist can be circulated so that others—staff, volunteers, clients, supervisor, board members, colleagues, outside consultants—may add to the list. They use the bottom portion of the checklist, and since they are less likely to know what does and does not already exist, they do not need the additional columns. The right-hand column allows registration of opinions on the applicability of any policy topic(s) already on the list.

Which Ones First?

Should this process generate an enormous list, there is no reason to panic. The policies do not all have to be written at once. The next step is to prioritize policy topics so that the most urgent and/or most important policies are being developed at any given time. Items on the risk list need to be ranked on a scale of urgency, from which can follow a reordering of the list in order of greatest-to-least urgency.

Exhibit 7.5 can be used to facilitate the process and record the results. To use this tool, transfer the policy topics that were itemized in Exhibit 7.4 to the left-hand column of Exhibit 7.5.

Instructions

Transfer policy topics from completed Policy Development Checklist (Exhibit 7.4).

Rate on a scale of urgency: 1= can wait to 5 = urgent, needs development immediately.

Use the “Other” column to assign urgency bonus points.

Add urgency ratings across for each row.

Work on policies with the highest ratings first.

See Exhibit 7.6 for detailed instructions applied to one policy topic.

Exhibit 7.6 Screening Policy Development Prioritization

This is an illustration of the use of Exhibit 7.3 applied to the topic of volunteer screening. Ask the next questions about the urgency of need for policy statements.

Risk Management

Are there risks associated with volunteer screening?

Do we expose ourselves, our clients, or the organization to liability by not having a volunteer screening policy?

Are our screening policies and procedures sufficiently thorough?

Are our screening policies and procedures so extensive that they infringe on the privacy and/or the legal rights of prospective volunteers?

How great are any of those risks?

Allowing for some variation depending on the nature of the work done by volunteers, the vulnerability of clients, and so on, it is likely that the risks surrounding volunteer screening will be quite high because of the need to strike a proper balance between agency responsibilities and the rights of volunteers. Consider the implications of a violent offender or a pedophile being recruited into a day care center because “He was such a nice man!” or the ramifications of accepting a fraudster as the treasurer for the board of directors. Consider as well the indignation of a well-meaning candidate when confronted with unnecessarily probing questions.

To complete the priority scale for the policy on volunteer screening, the score under the heading “level of risk” would be 5 for most programs.

Values and Belief Statements

Do we have values or beliefs about volunteer screening that need to be articulated?

There are always certain beliefs and positions held by organizations about volunteer screening that may seem self-evident to those in the field but are completely unknown to the general public. For example, some people still may believe that seeking to do good unto others is the only criterion one must meet to become a volunteer. Being refused would be a shocking offense. It is therefore important for the agency to be clear about its beliefs about volunteer screening, including messages about the agency's right to decline offers of involvement, the belief that the screening interview is an opportunity for mutual information exchange and assessment, and that antidiscrimination and affirmative action principles will guide assessments of suitability. The score for volunteer screening in the “Need Value Statement” column would also be high: 4 or 5.

Rules

Does the organization need to identify rules around the volunteer screening process?

Rules regarding background checks, police checks, and reference checks are very important. Are certain findings automatic disqualifiers? If a volunteer claims a specific skill or qualification, does the organization routinely verify the claim, either through a performance assessment or contact with the granter of the license or qualification? Additionally, rules (policies) are required about information gathered in the screening process (e.g., what is gathered, who can gain access to it, how is it stored, for how long, when and how it is destroyed). Since it is not uncommon to uncover and retain personal information about volunteers in the course of screening, the score in this column, headed “need rule,” would be 5 for most programs.

Program Improvement Tools

Are there ways that we could improve our screening process or its results?

Organizations often let the screening process drag out longer than needed, and they lose volunteers whose initial interest wanes due to the delay. A policy that commits the organization to speedy contact with the volunteer as soon as initial interest is expressed and an efficient screening process that is conducted without delay can serve to decrease quite dramatically the loss of prospective volunteers through the screening process. How well the screening program is currently functioning will be a major determinant of how high the score will be in this column for screening policy.

To summarize, screening would rate high to very high in all four columns. It is a policy topic that requires thorough attention. To illustrate, by contrast, the range in urgency scores that various policy topics might receive, the policy on whether volunteers should or should not pay for their own coffee while on duty would rate fairly low on the urgency scale.

Use of the fifth column on the priority scale, “other,” is discretionary. Special reasons may justify immediate work on a specific policy (e.g., the organization just had a serious incident in an area where policy could prevent reoccurrence; the funder is insisting that all its member agencies implement a specific philosophy of service; the manager's supervisor just came back from a course on safety in the workplace and is requiring immediate policy development on sexual harassment). Urgency “bonus points” can be assigned in this column.

To complete the priority scale, rate each policy topic in each of the five columns, add across each row to obtain a total score for each topic, and place that total in the right-hand column. Those topics with the highest scores need to be dealt with first. Those with lower scores can wait. Transfer the list of policy topics to a separate list in order from highest to lowest score, and consider this the policy to-do list for the foreseeable future

Tracking Drafts and Input

Once the policy development agenda has been established, the director actually can begin the process of researching, drafting, and revising policies. Some policies will be relatively easy to write; others will be extremely complex. Some will demand input from outside experts; others will involve lengthy processing and values clarification. Work on a wide range of policies can proceed simultaneously, particularly if a policy development team, including a collection of (pro bono) consultants/resource persons, is assembled to assist with the task. Depending on the number of policies required and the number in progress at any given time, tracking where each policy is in its development may become cumbersome.

Exhibit 7.7 can be used as a tool to track the progress of policies as they are being researched, drafted, revised, and approved. Use one of these forms for each policy. Track development by indicating who needs to be involved and/or consulted and who is responsible for each stage of the policy's evolution.

The form allows the director to note due dates and completion dates for various activities. Use the blank rows at the bottom to add other policy development activities that may need to be accomplished, such as external reading and editing; vetting by head office, staff, or union; and so on.

Editing Policies

Careful review of policies after they have been drafted is a critical step that is often overlooked. It is recommended that at least four people read newly drafted policies—at least the complex or multipart policies. Readers and editors from both within and outside of the field of volunteer program management will round out the editing team. Different readers can be asked to attend to different aspects of policies. For example, legal counselors or insurance advisors can be asked to review from their professional points of view. Other readers may be asked to concentrate on meaning; others may attend to mechanics and sequencing or terminology and grammar.

Regular Revision

The flexible nature of volunteering means that circumstances can change much more quickly than with paid staff, so it makes sense to review the policy every year to adapt or improve it (Volunteering England, 2002). Input from volunteers and paid staff should be invited, helping to evaluate policy relevance and usefulness. Outside expertise may also be needed in areas such as personnel management legislation and standards, legal and risk management precedents, and insurance, since volunteer activities and outside regulations change over time. Engaging a range of people in the review process helps to keep the policy a living document—even if very little is revised, the act of looking through it underlines its importance within the organization (Volunteering England, 2002). A comprehensive review at least annually is recommended, though there may be need to revise various policies between the formally scheduled annual review dates.

Exhibit 7.8 is a tool to help manage the review process. Depending on the size and complexity of the volunteer program, many policies may be in place. Reviewing them all at one time may be arduous. It may be more practical to divide the policy manual into manageable chunks, which are reviewed at different points throughout the year. Exhibit 7.8 is a tracking document based on four chunks, each arising for review in its own season, spreading the review process evenly across the year. This tool could be revised into only two parts or into 12 parts with a different set of policies coming due for review each month.

Compliance

A great deal of time and resources can be wasted on policy development if policies are not understood and followed. Although there is nothing one can do to guarantee absolute compliance, there is a good deal that can be done to increase the likelihood of compliance. Here are some suggestions.

Sensitive Wording

The way in which policies are worded can significantly enhance compliance. As noted earlier, rounding sharp edges of policies can make them both more understandable and more palatable to volunteers who might otherwise be hurt or offended by apparent absence of trust or appreciation.

State the Why

Including in the policy statement the reason for its existence reminds volunteers that policies do not exist just to make volunteering more bureaucratic for those engaged in it. This is not to say that agencies must justify every policy they write or that the rationale for every policy statement must be an integral part of the policy itself. However, the rationale for some policies may not be immediately apparent to volunteers. In such cases, reference to reasons such as the well-being of clients, the importance of efficient expenditure of precious resources, the furthering of the mission of the agency, or the safety of volunteer workers will clarify purpose and reinforce the importance of volunteers’ compliance. Here is an excellent example:

Volunteers in this program are considered as nonpaid, part-time staff, and it is expected that volunteer relationships with clients will have the same boundaries as those of paid staff. Our role is therapeutic in nature. It is not appropriate to become friends with clients. This is not to say that volunteers cannot be friendly, caring or supportive. On the contrary. The reason that relationships with clients should not lead to friendships is because the relationship is not equal. Volunteers are privileged to more power by virtue of their position with the organization. Hence, clients are in a more vulnerable role. It is normal for clients to want to establish friendships with volunteers. They perceive volunteers to be caring individuals who pay attention.

The procedure that accompanies this policy is:

When “turning a client down” in terms of a friendship role, volunteers will do this in a supportive manner giving the basis of this policy as a reason.

Volunteers will notify the Director of Volunteer Resource Management whenever the nature of the friendship with a client is in question. (Psychiatric Day Programme, 1992, quoted in Graff, 1997)

This policy clearly outlines the “why.” It is unlikely that a shorter version of the same policy that reads “Volunteers are prohibited from developing social or friendship relationships with clients” would engender the same level of compliance, simply because it does not communicate sound reasons for doing so.

Make Compliance Easy

The preceding sections notwithstanding, the shorter, more concise, more clear, and more straightforward that policies are, the greater the likelihood of compliance. Policy writers need to strike a balance between policies that are short and to the point and policies that are more involved and detailed. The lesson: Write as many and as much as you need to ensure understanding and compliance, and no more.

Make Policies Accessible

Produce policies in a format that makes them easily accessible to volunteers. For example, produce a complete manual of policies and procedures for the volunteer program for administrative reference. Volunteers are, of course, welcome to consult it at any point. Extract the most critical of all policies—those that pertain to the day-to-day functioning of volunteers—and publish them in smaller handbook. If the volunteer program is diverse, it might make sense to develop a separate handbook for each type of volunteer position or for volunteers in different departments, work sites, or countries. Print a subset of the most critical policies in a pocket- or purse-size summary for day-to-day use. Distill these even further and print the policies about emergency situations on a card the size of a credit card, have it laminated, and ask volunteers to post it near the phone or the exit at each work site and carry it in their wallets and/or in the glove compartments of their automobiles. Put the most critical rules and emergency response information on the back of volunteers’ name tags since they will have that information on hand whenever they are on duty.

Communicate Policies at Every Opportunity

Create and seize every opportunity to communicate with, and remind volunteers about, policies and procedures.

Refer to policies in volunteer recruitment publicity by mentioning agency efforts to make volunteering safe and satisfying.

Notify volunteers at the initial screening interview that there are policies, rules, beliefs, and ways of doing things that are essential to volunteering with your agency.

Include detailed coverage of agency policies and procedures in volunteer training and ongoing training sessions.

Be certain to assess compliance with policies and procedures as a regular component of volunteer supervision and evaluation sessions.

Post relevant policies and procedures as reminders around the work site.

Write articles about policies and procedures in newsletters and other communication vehicles, giving background, rationale, and implications.

Signed Agreement

As part of their acceptance into service with the organization, volunteers can be asked to sign an agreement or memorandum of understanding. This type of document requires volunteers to sign their commitment to following policies and procedures, lending greater significance to a volunteer's promise of compliance. Typically, the commitment to compliance with agency policies and procedures is one of several items included in an initial volunteer/agency agreement. A sample (Graff, 2003, Appendix G) includes mutual commitments by both the volunteer and the agency.

It is suggested that a paragraph such as this one be included in the signed agreement:

I, ___ [name of volunteer], affirm that I have read, understood, and agree to comply with the policies and procedures of the ___[name of organization] as they are outlined. . . (in the attached job description and/or the volunteer handbook/policy manual).

An optional paragraph such as this one may be added:

I understand that compliance with these policies and procedures is important to preserve the quality of service offered to our clients, and critical to the safety and well-being of ___ [name of organization] volunteers, clients, staff, and the general public]. Further, I understand that any breach of agency policy or procedure will be taken seriously, and could be cause for discipline, suspension, or even dismissal.

Follow Through

Consistently monitor compliance. Here are some suggestions:

Ensure that compliance monitoring is a routine aspect of the volunteer performance review system.

Offer speedy reinforcement, including awards for superior performance.

Write newsletter articles about positive outcomes that have resulted from volunteers following policies and procedures.

Act quickly when policies are breached.

Clarify what the consequences of failure to comply will be (e.g., reminders, verbal or written warnings, suspension, dismissal, immediate dismissal).

Do not hesitate to follow through on implementation of consequences.

Getting Started—Introducing the Policy

Once policies are written, it is critical that they become a living document used regularly for reference by volunteers and volunteer program management staff throughout the organization. Everyone needs to know the policies exist and understand their purpose. Ideally, policies become part of the everyday life of the organization.

Volunteering England (2002) recommends introducing the policies with a meeting, which gives a chance to talk people through the policies and explain their importance. The group suggests giving copies of the relevant policies to all paid staff and volunteers, including those paid staff who do not work regularly with volunteers. Integrating policies into the orientation process for both new paid staff and new volunteers guarantees that everyone receives a copy of the policies that pertain to them.

If new policies are introduced after volunteers are recruited, additional attention may be required to help existing volunteers feel comfortable with the “new rules.” How policies are introduced and explained to existing volunteers is probably the most important variable in how they will be accepted. Here are some strategies:

Meet/speak with volunteers individually.

Explain the rationale for the policy.

Ensure that volunteers know that the policy is applied equally to all volunteers in similar roles.

Offer support, training, and so on if needed to help volunteers come into compliance.

Create an implementation delay of a few weeks or months to allow volunteers to get used to the new ideas.

Where volunteers object strenuously, offer alternate assignments that are not subjected to the new policies.

Help volunteers find work-arounds—alternate ways of doing things that are in compliance with the new policies but that make them less intrusive, obvious, or objectionable.

Whatever adjustment strategies you offer to existing volunteers to help them come into compliance with new policies, the time ultimately will come when compliance is required. Despite time, support, and creative problem solving, some volunteers may not be able to adjust. They may need help to find another place to volunteer.

Conclusion

Now is the time to engage in policy development for volunteer programs. Because expectations of volunteers have become more complex and more demanding, volunteering in a wide range of settings now involves more risks and creates greater exposure to liabilities both for volunteers and for the voluntary agencies through which they volunteer. Policy development is a crucial risk management tool. Policies help volunteer programs to communicate values and beliefs, guide action, articulate rules, and ultimately enhance service effectiveness.

The development of a comprehensive set of policies for a volunteer program can be a serious undertaking. It is not unusual for directors of volunteer resource management to feel overwhelmed by the magnitude of the task or by the fear that crucial policies will be missed. This chapter has outlined useful practical techniques for segmenting the policy development process into a manageable plan, including guidelines for determining which policies are required. Concrete suggestions have been offered regarding how to write policies and how to increase compliance with policies. Readers are urged to overcome resistance to policy development since further delays can mean only increased risks and dangers for volunteers, clients, paid staff, and the organization as a whole.