BRISBANECITY COUNCIL DISASTER MANAGEMENT PLAN

CHAPTER 5 – VOLUNTEER COORDINATION SUB-PLAN (V2.0)

BRISBANE CITY COUNCIL

DISASTER MANAGEMENT PLAN

2013

volunteer coordination SUB-plan

Page 1 of 24

BRISBANECITY COUNCIL DISASTER MANAGEMENT PLAN

CHAPTER 5 – VOLUNTEER COORDINATION SUB-PLAN (V2.0)

TABLE OF CONTENTS

1.0ADMINISTRATION AND GOVERNANCE

1.1Amendments and Review

1.2References

1.3Introduction

1.4Audience

1.5Approval

1.6Custodian

1.7Purpose

1.8Authority

1.9Activation

1.10Volunteer Coordination Stakeholders

1.11Structure of the Plan

1.12Definition of Volunteer Assistance

1.13Insurance of Volunteers

1.14Management of Complaints

2.0HOW TO USE THIS SUB-PLAN DURING OPERATIONS

2.1Council’s Strategic Approach To Volunteering

2.2Structures Supporting the Volunteer Coordination Sub-plan

2.3Volunteering Strategy

3.0SPONTANEOUS VOLUNTEERING

3.1Purpose

3.2Scope

3.3Principles

3.4Rationale

4.0MASS VOLUNTEERING EVENT(S)

4.1Purpose

4.2Initiation of Mass Volunteering

4.3Event Management Approach

4.4Plan Concept

4.5Roles and Responsibilities

4.6Key Strategies and Actions

4.7SOPs for Mass Volunteering Events

4.8Acknowledgement of Mass Volunteers

5.0CORPORATE VOLUNTEERING

5.1Purpose

5.2Scope

5.3Plan Concept

5.4Acknowledgement of Corporate Volunteers

6.0TEAM VOLUNTEERING

6.1Purpose

6.2Scope

6.3Plan Concept

6.4Acknowledgement of Team Volunteers

APPENDIX 1 – ACRONYMS AND ABBREVIATIONS

BRISBANECITY COUNCIL DISASTER MANAGEMENT PLAN

CHAPTER 5 – VOLUNTEER COORDINATION SUB-PLAN (V2.0)

The Volunteer Coordination Sub-plan is an operational plan of the Brisbane City Council Disaster Management Plan and has been endorsed by the Brisbane City Local Disaster Management Group (Brisbane LDMG).

1.0ADMINISTRATION AND GOVERNANCE

1.1Amendments and Review

This Volunteer Coordination Sub-plan will be reviewed, practiced and updated annually in accordance with the procedures mandated by the Brisbane LDMG.

It shall be reviewed at least once each year by a committee of appropriately qualified and experienced personnel. The committee shall, as a minimum, consist of the Manager, Inclusive Communities, a representative from Brisbane Lifestyle and a representative of Brisbane LDMG. Representatives from external agencies may also be included as needed.

  1. Proposed amendments to this sub-planare to be forwarded in writing to the Manager, Disaster Operations (MDO), who may approve minor amendments.
  1. Proposed amendments that affect the intent of this sub-plan, roles and responsibilities or external agencies must be endorsed by the Local Disaster Coordinator (LDC) and/or the MDO and may be forwarded to the Brisbane LDMG for approval if required. This type of amendment is referred to as a major amendment.
  2. Endorsed amendments are to be listed in the table below.
  3. Version control of this sub-plan is managed by Disaster Operations. Reissue of this sub-plan following amendment or review will be recorded in the table below and advice of reissue will be distributed throughout the disaster management network. Recipients should take all appropriate action to ensure they are in possession of the most recent version, and that previous versions in both hard copy and electronic forms are archived accordingly. Further information can be requested by contacting Disaster Operations.

Volunteer Coordination Sub-plan Version Control

Version / Date / Reviewed by / Endorsed by / Comments
1.0 / March 2012 / Manager, Disaster Operations / Chair, Brisbane LDMG
District Disaster Coordinator / 2012 official version
1.1 / December 2012 / Manager, Inclusive Communities
Coordinator, Disaster Operations / Manager, Disaster Operations / Revisions
2.0 / May 2013 / Manager, Disaster Operations / Chair, Brisbane LDMG
District Disaster Coordinator / 2013 official version
  1. This sub-plan is to be reviewed:
  • On activation of an event requiring the use of this sub-plan
  • On activation of similar disaster management plans in other states, territories or overseas where considered possible
  • Upon annual review of Council’s Disaster Management Plan in accordance with the Disaster Management Act 2003 (Qld)
  1. This sub-plan, together with its supporting standard operating procedures (SOPs), is to be tested annually. The MDO is to brief relevant stakeholders and the Brisbane LDMG on the results of testing this plan.
  2. In accordance with legislation, the Brisbane Local Disaster Management Plan and all its underpinning sub-plans will be approved by the Chair of the Brisbane LDMG annually.

1.2References

Volunteer Coordination Sub-plan Reference List

References
A. / Queensland Disaster Management Act 2003, Reprint 3D, effective 11 December 2012 (the Act)
B. / Queensland Local Disaster Management Guidelines September 2012
C. / Australian Red Cross (2010) Managing Spontaneous Volunteers in Emergencies.

1.3Introduction

The Volunteer Coordination Sub-plan is an operational level sub-plan that sits below the Emergency Human Services Plan in the Brisbane City Council Disaster Management Plan, prepared under the terms of the Disaster Management Act 2003 (Queensland).

It is supported by SOPs that outline the procedures to be followed when the Volunteer Coordination Sub-plan is activated. These SOPS are at Section 3 of this plan. The relationship between these plans and SOPs are shown in Figure 5.2.1.

The sub-plan is designed to be a guide for the management of volunteers by Brisbane City Council in a disaster event in Brisbane City.

The Brisbane City Community Recovery Coordination Committee (CRCC) is established by the Brisbane LDMG to oversee the recovery function of the Brisbane City Disaster Management Plan.

The CRCC reports to the Brisbane LDMG on the adequacy of the planning and operational arrangements for volunteers.

1.4Audience

This sub-plan has been prepared for Council, the Lord Mayor, Brisbane LDMG, Council Business Units and key external stakeholders.

Figure 5.2.1: Council recovery plans and procedures model

1.5Approval

This Volunteer Coordination Sub-plan is approved by Brisbane LDMG under the terms and conditions of the Disaster Management Act 2003 (Queensland).

1.6Custodian

The MDO, on behalf of Council, is the custodian of this plan. The custodian has the responsibility for implementing, evaluating, testing, reviewing and updating this plan. The custodian is also to ensure proper quality, security, integrity, consistency, privacy, confidentiality and accessibility of this plan.

The custodian’s contact details are:

Title: Manager, Disaster Operations

Contact: 07 3403 8888

GPO Box 1434 Brisbane QLD, 4001

1.7Purpose

The purpose of the Volunteer Coordination Sub-plan is to ensure appropriate coordination of volunteers in the response, transition and recovery phases of a disaster event.

1.8Authority

This plan forms a sub-plan of the Brisbane City Council Disaster Management Plan, and is developed under the authority of the Disaster Management Act 2003 (Queensland).

1.9Activation

This Volunteer Coordination Sub-plan will be activated by the Local Disaster Coordinator (LDC) where the nature of the disaster event will require deployment and management of volunteers.

1.10Volunteer Coordination Stakeholders

The volunteer coordination stakeholders consist of the following agencies:

Brisbane City Council – Disaster Operations (DISOPS)
Brisbane City Council – Community Lifestyle
Brisbane City Council – Brisbane Transport
Brisbane City Council – Library Services
Brisbane City Council – Contact Centre
Brisbane City Council – Corporate Communications (Crisis Communications)
Brisbane City Council – City Projects
Brisbane City Council – Strategic Procurement
BrisbaneCity Council – Volunteer Champions and various branches
Australian Red Cross
Department of Communities, Child Safety and Disability Services (DCCSDS)
Uniting Care Community: Lifeline
Volunteering Queensland
Queensland Police Service – District Disaster Management Group (DDMG)
Emergency Management Queensland (EMQ)
SES
Queensland Health
St John Ambulance
Surrounding local government authorities
Private sector and business organisations
Local disaster working groups
Brisbane community centres and neighbourhood centres
Majorchurch organisations
Clubs such as Surf Life Saving clubs, Lions clubs
Local schools
My Community Directory
Roles and responsibilities of these stakeholders in relation to volunteers can be found in the Volunteer Coordination SOP.

1.11Structure of the Plan

The Volunteer Coordination Sub-plan has six parts which are supported by SOPs.

  • Introduction: Part 1 introduces the sub-plan, explains its use and covers some important issues associated with the Council approach to volunteers in disaster events.
  • Governance: Part 2 describes Council’s approach to volunteer coordination and governance arrangements including the Volunteer Coordination Team and Volunteering Strategy for a particular disaster event.
  • Spontaneous volunteering: Part 3 describes how Council will provide clear and consistent messages considering the national framework for the Managing Spontaneous Volunteers in Emergencies drafted by Australian Red Cross.
  • Mass volunteering event(s): Part 4 describes how Council will coordinate volunteering events where individuals offering to help with disaster responses will be directed to registration centres, then deployed to particular areas or tasks under the direction of a Worksite Coordinator.
  • Corporate volunteering: Part 5 describes how Council will coordinate ‘high value’ offers of assistance from well organised corporate, business and government organisations offering skilled staff and equipment, with their own management structure in place, safety induction and capable of operating with a high level of autonomy. These will be deployed to a particular area or task suited to their skills and equipment, and asked to commit to staying there until the job is finished (potentially several days or weeks).
  • Team volunteering: Part 6 describes how Council will coordinate offers of assistance from residents, community organisations and businesses offering to deploy groups of volunteers, with their own supervision structure in place and possibly their own light plant and equipment, capable of operating with a significant level of autonomy. These groups will be deployed to a particular area or task suited to their skills and equipment, and asked to work under the direction of a local coordinator or council officer. Team-based volunteering may also include offers of small plant and equipment that may be matched with unskilled or skilled labour volunteers.

1.12Definition of Volunteer Assistance

Volunteers are a vital resource during the response and recovery phases of disasters. Council supports the use of volunteers who are defined as unpaid offers of assistance from residents, businesses, community and other government sectors to Council.

The minimum age of volunteers will be 14 years. Volunteers aged between 14 and 17 will have to be under the supervision of a parent or guardian who is aged 18 or over.

1.13Insurance of Volunteers

Volunteers that are deployed by Council through any of the procedures outlined in this plan will be insured by Council. Corporate Risk Branch will be advised of the volunteer strategies adopted for each disaster event.

The community-led volunteering arrangements undertaken during the recovery phase will require insurance to be covered by the funded community organisation that has been engaged to act on behalf of Council.

Information on Council insurance for volunteers can be found in Volunteer Coordination SOP.

1.14Management of Complaints

Deployment of volunteers may result in complaints made by residents who have been impacted by the disaster event or residents and stakeholders who have participated in volunteering activities.

All complaints will be investigated and responded to through Council’s normal CMX system and reported to the Chairman of the Community Recovery Coordination Committee as required.

2.0
HOW TO USE THIS SUB-PLAN DURING OPERATIONS

This Volunteer Coordination Sub-plan should be utilised to guide the deployment and management of volunteers in a disaster event and should be used in conjunction with the Volunteer Coordination SOP, which is an internal document available on Council’s Disaster Management intranet.

This sub-plan has been developed as an operational guide with pre-determined strategies able to be adapted to the specific circumstances of the event.

Other relevant Plans and SOPs to be used in conjunction with this sub-plan:

  • BrisbaneCity Council Disaster Management Plan
  • Emergency Human Services Sub-plan
  • Donations Sub-plan and SOP
  • Community Support Sub-plan (Isolated Communities) and SOP.

2.1Council’s Strategic Approach To Volunteering

Council’s strategic approach to volunteering is modelled in Figure 5.2.2 Brisbane City Council Volunteer and Donations Management Process in a Disaster.

Response Phase (Up to 1 week)

  • Communication messages to manage spontaneous volunteering
  • Corporate Volunteering Strategy to mobilise high value offers of assistance
  • Mass Volunteering Event(s) to direct spontaneous volunteering and public offers of assistance
  • Receipt, storage and distribution of donations useful in the response and recovery efforts

Transition Phase (Weeks 1–4)

  • Team-based volunteering directed through a process of matching offers of labour, small scale plant and equipment with requests for assistance.

Recovery Phase (4 weeks and beyond)

  • Community-led recovery where Council works to build the capacity of community-based organisations leading the recovery in affected communities: directing offers of help, community development activities and donations through these organisations.

2.2Structures Supporting the Volunteer Coordination Sub-plan

The Volunteer Coordination Team is the part of Emergency Human Services Operational Team (EHSOT) tasked with managing and deploying volunteers during a disaster event. (Figure 5.2.3)

Figure 5.2.3 EHSOT structure

The Volunteer Coordination Team will be led by an officer fromCommunity Lifestyle and will include staff from:

  • Community Lifestyle
  • Customer Services
  • Corporate Communications.

Officers from across Council will be called in if the Volunteering Strategy includes:

  1. Mass Volunteering Event(s)
  • Libraries
  • Brisbane Transport
  • Other branches in the Brisbane Lifestyle or City Planning and Sustainability divisions
  1. Corporate Volunteering
  • City Projects

The procedure for activation of the Volunteer Coordination Team and roles within the team can be found in Volunteer Coordination SOP.

2.3Volunteering Strategy

On activation, the Volunteer Coordination Team will develop a Volunteering Strategy tailored to the size, scope and nature of the particular disaster event that is occurring, for approval by Brisbane LDMG.

The Strategy will be guided by the level of interest from the community – as indicated by Disaster Intelligence as well as numbers contacting the Contact Centre and Volunteering Queensland.

Significant changes to the Volunteering Strategy over the course of the disaster will be approved by Brisbane LDMG.

A template Volunteering Strategy can be found in Volunteer Coordination SOP.

3.0 SPONTANEOUS VOLUNTEERING

3.1Purpose

The purpose is to provide public communications that direct, contain and channel spontaneous volunteering in a disaster.

3.2Scope

To provide consistency with external partner organisations, Council will use the framework for Managing Spontaneous Volunteers in Emergencies by the Australian Red Cross (2010). The framework recognises that:

  • ‘Spontaneous volunteers’ are those who seek to contribute on impulse—people who offer assistance following a disaster and who are not previously affiliated with recognised volunteer agencies and may or may not have relevant training, skills or experience (Drabek and McEntire 2003).
  • Spontaneous volunteering is a phenomenon that is increasingly part of the disaster landscape. It needs to be carefully managed in a way that does not have a negative impact on the response to an event, or the recovery from an event.
  • All spontaneous volunteers who contact Council will be directed to register their interest with Volunteering Queensland and to listen for further public announcements about volunteering opportunities.

3.3Principles

The Managing Spontaneous Volunteers in Emergencies framework is based on the following principles:

  • The people affected by any emergency are the first priority.
  • Spontaneous volunteering is valuable and aids community recovery.
  • Everybody has a right to offer their assistance and to feel that their offer has been valued.
  • Jurisdictions and agencies will take considered policy positions on whether they will use spontaneous volunteers; this framework is intended to support them with processes and tools regardless of whether they decide to use spontaneous volunteers.
  • Normal volunteer management processes apply in times of emergency.
  • Effective management recognises that processes need to be in place to ensure that agencies are not overwhelmed with offers of support.
  • Spontaneous volunteers are not always required and may not be encouraged in circumstances where existing resources are sufficient or the situation is unsafe for untrained people or only skilled labour is helpful.
  • Communication messages must commence at the point of impact or shortly after an emergency occurs, and be embedded in the emergency response communications arrangements.
  • Arrangements for managing spontaneous volunteers should be recognised in, and (where required) embedded within, existing emergency management plans or operating guidelines.
  • The time when spontaneous volunteers are needed may not coincide with when offers are being made. Volunteers may be needed days, weeks or months later. Communication on this is critical at each decision point.

3.4
Rationale

The success of the emergency response can depend on people understanding their roles, responsibilities and chain of command. Spontaneous volunteers often arrive without the necessary equipment to perform a role or to keep themselves and others safe: they can be a distraction to agencies involved in response and recovery efforts.

Their credentials cannot be proven and they may lack the necessary training and experience to perform the roles they aspire to. For these reasons they may not be used and this leaves them dissatisfied, disappointed and angry with disaster managers.

Communication released during a disaster event will inform the community on the role that spontaneous volunteers could play.

A communication strategy providing key messages for the effective management of spontaneous volunteers at different stages of a disaster can be found in the Volunteer Coordination SOP.

4.0
MASS VOLUNTEERING EVENT(S)

4.1Purpose

The purpose of mass volunteering events is to provide a channel for Brisbane residents and spontaneous volunteers who want to help out following an emergency to volunteer in a way that contains their impact on the affected area, directs their energy to the best use, and acknowledges their contribution.

4.2Initiation of Mass Volunteering

Mass volunteering will be included in the Volunteering Strategy and initiated by Brisbane LDMG when it is clear that the nature of the disaster and extent of the damage means that:

  • it is necessary to supplement the SES, RIMT and other operational response teams already on the ground but only with skilled volunteers.
  • there is a groundswell of community support for a mass volunteering effort
  • largely unskilled volunteers can make a real difference
  • it is safe to deploy to the affected area.

4.3Event Management Approach

Mass volunteering will be undertaken through an event management approach that involves:

  • Identifying mass volunteering opportunities and designing events that suit the circumstances
  • Identifying registration centres where volunteers can gather to be deployed
  • Promoting the nature of the mass volunteering opportunity, times and location of registration centres
  • Organising staffing for registration centres
  • Preparing registration centres
  • Registering, inducting and deploying volunteers and issuing them an identifying wristband
  • Transporting volunteers to and from the work sites in the impacted area
  • Organising volunteers into teams with a team leader (identified by a vinyl sticker attached to their shirtfront) responsible for liaison between the volunteers and any home owner whose property they enter
  • Tasking volunteers at worksites
  • Coordinating work and equipment across worksites
  • Deploying plant and equipment to worksites
  • Working with Queensland Police Service to ensure the security of residents’ dwellings and possessions during volunteer clean-up activities
  • Looking after returning volunteers
  • Providing health and safety instructions and information
  • Providing minimum personal protective equipment, basic amenities, food and water
  • Providing access to first aid
  • Providing health services relevant to the task e.g. immunisation against communicable diseases.

A template Mass Volunteering Event Plan can be found in Volunteer Coordination SOP.

4.4Plan Concept