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Progress report 1999–2007The International Federation’s volunteering development

Taking volunteers seriously

© International Federation of Red Crossand Red Crescent Societies

Any part of this document may be cited, copied, translat-ed into other languages or adapted to meet local needswithout prior permission from the International Federationof Red Cross and Red Crescent Societies, provided thatthe source is clearly stated.

The maps used do not imply the expression of any opin-ion on the part of the International Federation of Red Crossand Red Crescent Societies or National Societies con-cerning the legal status of a territory or of its authorities.

Cover photo: Tomas Bertelsen/Danish Red Cross

Production Team: Stefan Agerhem, Sébastien Calmus,Jenny Iao and Asta Ytre.

2007International Federation of Red Crossand Red Crescent Societies

P.O. Box 372CH-1211 Geneva 19SwitzerlandTelephone: +41 22 730 4222Telefax: +41 22 733 0395E-mail: [email protected] site: www.ifrc.org

The InternationalFederation’s GlobalAgenda (2006–2010)

Over the next five years, the collective focus ofthe Federation will be on achieving the followinggoals and priorities:

Our goalsGoal 1: Reduce the number of deaths, injuriesand impact from disasters.

Goal 2: Reduce the number of deaths, illnessesand impact from diseases and public healthemergencies.

Goal 3: Increase local community, civil societyand Red Cross Red Crescent capacity to addressthe most urgent situations of vulnerability.

Goal 4: Promote respect for diversity and humandignity, and reduce intolerance, discriminationand social exclusion.

Our prioritiesImproving our local, regional and internationalcapacity to respond to disasters and publichealth emergencies.

Scaling up our actions with vulnerable commu-nities in health promotion, disease preventionand disaster risk reduction.

Increasing significantly our HIV/AIDS pro-gramming and advocacy.

Renewing our advocacy on priority humanitari-an issues, especially fighting intolerance, stigmaand discrimination, and promoting disaster riskreduction.

ContentsAcknowledgements 2

Foreword 3

Executive summary 4

1. Looking back and adding up 6

2. International and regional decisions on volunteering 9

3. Pursuing a volunteer-friendly society 10

3.1. Legal environment 10

3.2. Sociocultural and economic environment 11

3.3. Strategic partnership 12

4. Establishing a volunteer-friendly National Society 13

4.1. Introduction 13

4.2. Diversity and recruitment 14

4.3. Retention and recognition 16

4.4. Training for volunteers and volunteer managers 17

4.5. Health and safety of volunteers 19

4.6. Involvement in programme management and decision-making 22

4.7. Reimbursement 23

4.8. New forms of volunteering through community empowerment 25

4.9. Networking and peer-to-peer support 27

5. Volunteering in emergencies 29

6. Volunteering in everyday programmes 31

7. Where do we go from here? 33

References 35

1Progress report 1999–2007The International Federation’s volunteering development

The International Federation of Red Cross and Red Crescent Societieswould like to express its gratitude to the following for supporting the globalvolunteering development activities in 1999 – 2007:

2Taking volunteers seriouslyInternational Federation of Red Cross and Red Crescent Societies

Swedish InternationalDevelopment Cooperation Agency

Million of volunteers who give theirtime to make a difference to the lives ofthe world’s most vulnerable people in thename of the Red Cross and Red Crescentplay an essential part in the support oftheir communities. However, althoughvolunteers give their time freely, with nodesire for gain, volunteerism is not forfree. Volunteer management and devel-opment also require resources. Since1999, we have seen a growing interestand increased efforts by National Soci-eties to better manage and support theirvaluable volunteers.

This report is the result of a collective ef-fort by the Governing Board’s workinggroup on volunteering and the Interna-tional Federation secretariat, which aimsto provide a picture of volunteering de-velopment since 1999. It provides a broadoutline of decision-making and commit-ments within the International Federa-tion and describes the situation inNational Societies. External trends andkey issues influencing volunteering arealso considered. There are still many gapsthat need to be addressed, but with thisreport, we have gained an important toolto help us identify and deal with theseshortcomings. When it comes to manag-ing volunteers in emergencies, experiencefrom recent years illustrates the significantdifference that preparation can make.

Achieving the aims of the InternationalFederation will not be possible withoutthe continued dedication and commit-ment of Red Cross and Red Crescentvolunteers, staff and leaders throughoutthe world, as well as the resources re-quired to support them in their work.One important conclusion is that Na-tional Societies are taking volunteeringdevelopment more seriously than everbefore, establishing good volunteer man-agement systems to suit the context oftheir own country.

We would like to thank and congratu-late everyone in the National Societiesand the International Federation whohas contributed to this progress report,making it an informative source for fu-ture volunteering development activities.Special thanks to the Governing Board’sworking group on volunteering and theSwedish Red Cross for supporting thedevelopment of the progress report.

We recommend that you read this reportand share it with colleagues as it high-lights the good work done and the needto increase efforts in the area of volun-teering development in the comingyears.


Foreword

Bengt WesterbergChairman of the working group onvolunteering and Vice-President of theInternational Federation of Red Crossand Red Crescent Societies

Markku NiskalaSecretary General of the InternationalFederation of Red Cross and Red CrescentSocieties

Red Cross and Red Crescent volunteersare at the heart of effective humanitarianassistance for millions of vulnerable peo-ple. Volunteers are our strength. Theyare what defines us and what makes us aunique humanitarian force in the world.As a federation of National Red Crossand Red Crescent Societies, one of ourfocuses is on supporting our volunteersand giving them the tools and resourcesthey need to meet the high demands andexpectations that we – and our support-ers – place on them.

Following the adoption of the Interna-tional Federation’s Volunteering Policyin 1999 and subsequent decisions andpledges by National Societies at inter-national and regional conferences, manyof the decisions have been implementedto a varying degree. Following up onthese will be essential in the comingyears. There have been serious and in-novative initiatives in all parts of theworld aimed at pursuing volunteer-friendliness. Increasingly, volunteermanagement is included in strategicplans, having been recognized as an im-portant area for the development of Na-tional Societies.

About half of the National Societies havea national volunteer policy, while slightlyfewer have a volunteer developmentplan. Many more have dedicated humanresources for volunteer management anddevelopment at national level.

How many volunteers do we have in theNational Societies? Finding one answerto this key question has proved to be achallenge. The existence of a range offigures makes it hard to provide a firmanswer as to the total number ofvolunteers. Estimates suggest there arearound 20 million active volunteersworldwide. In order to obtain anaccurate figure, however, precisereporting from National Societies isessential.

Volunteer management practices world-wide have improved, both in everydayand emergency situations. A number ofNational Societies are testing new ap-proaches to enhance the diversity and in-volvement of volunteers in decision-making and implementation. Reinforc-ing volunteering development in gen-eral, and volunteering in emergencies inparticular, optimizes the strengths of ourcore volunteer base.

A number of constantly changing exter-nal and internal factors influence themanagement of volunteers. This givesNational Societies a challenging scenarioto work with. Volunteering develop-ment is also cross-cutting and oftenopens up a Pandora’s Box, revealingwider organizational development issuesthat need to be addressed. However,more needs to be done to improve andestablish good volunteer managementsystems. Mobilizing volunteers to servevulnerable people must, therefore, beone of the key competencies of NationalSocieties. The ability of National Soci-eties to mobilize and retain volunteers isincreasingly being called into question.This report focuses on the main progressand challenges identified by NationalSocieties with regard to volunteering de-velopment following the adoption ofthe Federation Volunteering Policy. Theissues covered are diversity and recruit-ment, retention and recognition, train-ing, health and safety, involvement, newforms of volunteering, networking andpeer support.

Strategy 2010 and the Federation of theFuture process reaffirm volunteering asbeing fundamental to the organization’svision and values. Each National Societyshould aspire to be one of the leading or-ganizations in mobilizing and managingvolunteers to help vulnerable people inits country in everyday programmes andcrisis situations. While volunteering maybe free, volunteer management is not. If


Executive summary

National Societies are serious about de-veloping volunteering to better meetchanging needs, then long-term organi-zational commitment and resources areessential.

The Global Agenda goals reaffirm thecommitment of the International Feder-ation and its member National Societiesto support the achievement of theUN Millennium Development Goals(MDGs). The 2007 International Con-ference of the Red Cross and Red Cres-cent underpins four areas of challengethat the Movement must address:• environmental hazards, including cli-mate change

• migration• violence in communities• emergent and recurrent diseases, in-cluding HIV and AIDS

These challenges require all governmentsand other stakeholders to recognize thevaluable contribution of volunteers todevelopment work, as key links betweencommunities and national and local au-thorities.

The partnership between the Interna-tional Federation and United NationsVolunteers (UNV) has greatly con-tributed to the revalidation of volun-teering and to concerted efforts to fosteran environment that enables and opti-mizes the full potential of volunteering.Progress in this field has been positiveand more work is needed. The way thatgovernments and legislators act regard-ing volunteering and voluntary organi-zations clearly has a great impact on theirviability and effectiveness.Volunteering is undoubtedly a funda-mental way for National Societies tomeet the needs of vulnerable people.Volunteer management and develop-ment must therefore be integrated andclosely linked to National Societies’everyday programme and organizationaldevelopment.

The International Federation plans toaddress the existing and future chal-lenges highlighted in this report throughvolunteering development activities inthe next four years, 2008–2011. This ef-fort is designed to help National Soci-eties provide a favourable internal andexternal environment that encouragesand facilitates the work of volunteers,and that promotes volunteerism acrossall sectors of society.

In 2008–2011, the planned volunteer-ing development aims to:• ensure and support National Societiesto adopt volunteer management sys-tems, procedures and practices in orderto better support and manage volun-teers

• develop and spread knowledge aboutvolunteering in emergencies

• promote, celebrate and recognize theachievements of volunteers

• advocate and work to establish volun-teer-friendly environments

In a world of global challenges and in-creasing vulnerability to disasters anddiseases, this capacity is essential to ac-complish the International Federation’smission and the Global Agenda in em-powering vulnerable communities to re-spond to situations that compromisetheir lives and livelihoods. ■


1. Looking back and adding up

Added value of the volunteering policyWhen the Federation Volunteering Policy was adopted in 1999, one of the GeneralAssembly’s recommendations was that all National Societies should review their ex-isting policies and procedures. The policy encourages National Societies to adopttheir work policies at country level, and the Volunteer Policy Implementation Guide(2002) was developed to support this process. Since then, many steps have beentaken in the volunteering development of National Societies. The National SocietySelf-Assessment (NSSA) shows that National Societies that have adopted a volun-teering policy demonstrate better volunteer recruitment and retention. The secondround of the NSSA showed a significant increase in the percentage of National So-cieties with a volunteering policy; around half reported having a volunteering policy,while 43.5 per cent had a volunteer development plan. This shows that National So-cieties are taking serious steps to address the challenges of volunteer recruitment andretention.

The guide suggests that there is a need for systems to collect accurate statistics aboutthe activities and impact of National Society volunteers. Among the tools developedare the NSSA 2000–2003 and 2004–2005, and the Youth Global Consultation2005–2006. Although none of these can provide a full picture of volunteering in theRed Cross and Red Crescent, not all National Societies have replied, while many ofthe figures are estimates; it is, nevertheless, interesting to examine the results fromthese questionnaire-based tools.


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Answers from the NSSA showed that the two main volunteering issues facing Na-tional Societies are the lack of qualified volunteers and recruitment/retention in anincreasingly competitive volunteer sector.

The Red Cross and Red Crescent Movement is one of the largest humanitarian or-ganizations in the world, with 185 recognized National Societies and a cross-coun-try network of branches and groups in local communities. Our outreach is greaterthan that of any other organization, but we have difficulty demonstrating our value.Counting volunteers and volunteers’ hours does not give a complete picture, but itdoes provide a tangible way of demonstrating the Movement’s capacity.

How many volunteers and members do we have?This may seem a simple question, but getting one answer to this key question hasproved to be a challenge. A range of answers are given, depending on the setting andon the kind of question asked. Numbers can never provide a full picture of volun-teering in the Red Cross and Red Crescent, but they can help. It is, therefore, im-portant to carefully examine the results of the above-mentioned consultations.

A total of 161 National Societies have replied to at least one of the two NSSA rounds.An analysis of the latest replies shows a total of 71.9 million members and 11.5 mil-lion volunteers. In 41 of the National Societies, there is no clear definition to differ-entiate members from volunteers, so there may therefore be some overlap. In total,410,000 new volunteers were recruited in the year preceding the questionnaire.About half of the National Societies reported an increase in their volunteer numbersover the past three years, 20 per cent said the number of volunteers had remainedconstant and another 20 per cent said numbers had dropped.

The Youth Global Consultation analysisestimates that there are a total of around22 million, of whom at least 40 per centare youth volunteers, based on the an-swers from 92 National Societies.

The range of figures makes it hard to de-termine the exact number of volunteers.If we want to have reliable statistics, thenNational Societies must establish data-bases and registers on volunteers. Atpresent, only 59.6 per cent of NationalSocieties have a volunteering database,according to the NSSA. The Red CrossSociety of Côte d’Ivoire is one that hastaken a first step towards better volun-teer management by establishing a vol-unteer database.

Databases and statistics might not seemthe most efficient use of a volunteer or-ganization’s time. However, statistics canhelp measure programme efficiency andprovide simple tools to demonstrate thevalue of volunteer work.


Keymilestones1999–2007The timeline below explains the keymilestones in the story of volunteer-ing development in the Movement,with the adoption of the InternationalFederation’s Volunteering Policy asthe key turning-point in 1999. Thepast eight years have been markedby an increased focus on volunteerdevelopment and management sys-tems.

1999: Federation Volunteering Policyapproved by the General As-sembly; Federation Youth Pol-icy (1991) reconfirmed

1999: Federation pledge on volun-teering to the 27th Interna-tional Conference

2000–2001:International Federation workswithin the UN to influence andcreate support for UN resolu-tion 56/38, Recommendationson support for volunteering

2000: Federation president speakson volunteering at the UNGeneral Assembly during theinauguration of the Interna-tional Year of Volunteers, 2001

2000: Western European Network forthe Development of Volunteer-ing (WENDOV, later ENDOV)founded

2001: International Year of Volun-teers – partnerships estab-lished and InternationalVolunteer Day (5 December)celebrated for the first time

2001: The Federation plan, Volunteer2005, created

2001–2003:Africa volunteer developmentfunction based in Nairobi

2001: Volunteering profiled highly atthe General Assembly

2002: Volunteering Policy Implemen-tation Guide published

VIVA – measuring the value of volunteersIn any humanitarian organization, the best use of resources is necessary in order toreach as many vulnerable people as people as possible. Volunteer programmes must,therefore, be as efficient as possible. Even though volunteers work for free, a pro-gramme involving volunteers can be costly. A Volunteer Investment and Value Audit(VIVA) is one way of assessing the value of volunteers’ time in relation to the resourcesused to implement the programme. Several National Societies have started to use thissimple tool. Although it does not address the important issues of quality, the impactof the volunteer programme or the real value of the work done, it does provide ameans of measuring the return on money spent to develop volunteering. ■


VIVA measures programme efficiency

The Nepal Red Cross Society has used VIVA on two of its programmes: an HIV-preven-tion programme and an earthquake preparedness programme. The society implementsan HIV-prevention programme in a district chapter. The programme has more than 20,000beneficiaries and involves 774 volunteers. The total cost of the programme is 250,000Nepali rupees, and the volunteers put in more than 57,000 hours, valued at approximately2.25 million Nepali rupees. This gives a VIVA ratio of almost one to nine. In other words, forevery rupee invested the society gets nine rupees in return in the form of volunteer hours.The VIVA ratio for the disaster preparedness programme shows a much lower return. Thisis not surprising, as disaster preparedness programmes do not involve a lot of volunteerservice in normal circumstances, yet preparation is essential to relieve suffering when dis-asters strike.

The Nepal Red Cross Society will use the VIVA tool as a baseline for other volunteer pro-grammes; to open up an internal discussion on improving programme efficiency; and todemonstrate to the public and to donors the financial contribution of volunteers.

2002: Coalition for an Enabling VolunteerEnvironment, consisting of the In-ternational Federation, United Na-tions Volunteers and theInter-Parliamentary Union, formedto lobby governments on volun-teering

2002: Volunteer management included inFederation and ICRC leadershiptraining for National Societies

2002: Volunteering section created on theFederation web site

2004: South American Volunteer Networkestablished

2004: Voluntary Service – Volunteer Man-agement Cycle developed

2004: European Reference Centre on Vol-unteering established

2004: Volunteerism and legislation: aguidance note developed by theCoalition for an Enabling VolunteerEnvironment to facilitate discussion

2004: Ad hoc group on volunteering es-tablished

2005: General Assembly makes compre-hensive decision on volunteer de-velopment (Item 17)

2005: Asia Pacific volunteer developmentfunction based in Kuala Lumpur

2005: Permanent Working Group on Vol-unteering established by the Gen-eral Assembly

2005: Development initiative: volunteeringin emergencies

2005: Federation plan, Volunteer Plus,(2006–2007) created

2007: International Federation launches aglobal accident insurance schemefor National Society volunteers

2007: Volunteering becomes, for the firsttime, a mandatory item on the Gen-eral Assembly agenda

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Federation pledge tothe 27th International Conference(Geneva, 1999)

The General Assembly, recognizing theimportance of volunteers for NationalSocieties, and the focus on the devel-opment of volunteering in Strategy2010, confirms the following pledge:

Volunteers are the most importantstrength of any National Society; theyare “the power of humanity” and thechampions of Red Cross Red Crescenthumanitarian values. The InternationalFederation therefore pledges the fol-lowing:

• to review the current situation of vol-unteers and identify areas wherechange is needed to improve serv-ices to beneficiaries, the status of vol-unteers and their role in theorganization;

• to develop clear policies, guidelinesand best management practices forvolunteers which focus on human re-sources development

• to ensure equal opportunities for menand women of all ages as volunteersin service delivery and National Soci-ety leadership, to bring about greaterinvolvement of marginalized groups,and to provide the required supportby paid staff

• to cooperate with governments tobroaden the existing legal, fiscal andpolitical bases for volunteering, and tomobilize increased public support;

• to expand cooperation with other vol-unteer organizations at all levels, andplay a significant role in the Interna-tional Year of Volunteers in 2001

2. International andregional decisions on volunteering

In 1999, the 12th session of the Interna-tional Federation General Assembly ap-proved the Volunteering Policy, whichdefined volunteers and members and es-tablished a set of rights and responsibili-ties for volunteers.


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Through the policy, National Societiescommitted themselves and the Federa-tion secretariat to promote, recognize andvalue volunteering, and to support vol-unteer development.

Since 1999, volunteering has been dis-cussed at General Assemblies and manyregional conferences. A number of deci-sions and commitments have been made.

Among the decisions implemented werethe establishment of a permanent work-ing group on volunteering and the in-clusion of volunteering as a standarditem at the Governing Board, GeneralAssembly and regional conferences.Where do we stand on the others? ■

At global and regional level, commitmentshave been made within the following areas

Encourage regional initiative,develop communication and evaluation of impact

Review, further developand implement existing policies at National Society level

Develop guidelines, gather informationon best practice, monitor implementation

Ensure policy awareness and implementation to improvemanagement and create a volunteer-friendly environment

Be inclusive and open to all, promote volunteer service forall groups so that the volunteer base reflects the compositionof the population

Develop clear recruitment strategiesand manage volunteers more effectively

Ensure appropriate training opportunitiesand skills development for volunteers

Implement programmes to mobilize, developand strengthen the commitment of volunteers

Establish mechanisms to involveall volunteers in the decision-making process

Engage youth, volunteers and communitiesin programme design and implementation

Develop programmes and skills to mobilizecommunities and involve community volunteers

Strengthen volunteers to work better with communities

Examine the legal protection of volunteersand ensure adequate insurance is in place

Ensure reimbursement of direct costs associated with volunteering

Find creative, non-financial solutions to recognize,reward and motivate volunteers

Establish regional youth networkand support this network with resource mobilization

Volunteerism is an ancient and global phe-nomenon, and there is fairly broad agree-ment on the social and economic benefitsof volunteering. Nevertheless, issuesaround volunteering and volunteers havecome to be taken for granted. The Inter-national Year of Volunteers (IYV) 2001,the efforts of the United Nations Volun-teers (UNV) programme and the partner-ship between the International Federationand the UNV have greatly contributed tothe revalidation of volunteering and toconcerted efforts in fostering an environ-ment that enables and optimizes the fullpotential of volunteering.

Legal, sociocultural and economic condi-tions can also have a strong impact on thepursuit of a volunteer-friendly society.

3.1. LegalenvironmentWhether volunteering grows and be-comes an effective force for improvingthe lives of individuals depends largelyon the legal framework for volunteering.The IYV clarified the role of govern-ments in creating an enabling environ-ment for volunteering. For volunteers,this involves: ensuring that there is alegal right to and protection for carryingout voluntary work, and that the valueof volunteering is publicly recognizedand promoted.

For voluntary organizations this meanscreating an enabling environment to en-sure a suitable legal basis for their estab-lishment and operation, suitable fiscalarrangements, the removal of unneces-sary regulatory burdens, and infrastruc-ture support. However, a number ofgovernments have yet to understand thatvolunteerism is a delicate and challengedconcept.

At the International Conference of theRed Cross and Red Crescent in 1999,states committed to review and, where

necessary, introduce or update legislationso as to facilitate the efficient work of rel-evant voluntary organizations. In 2001,the Inter-Parliamentary Council adopteda resolution urging parliamentariansworldwide to identify and adopt policiesto encourage volunteerism and to estab-lish a legislative framework contributingto an enabling volunteer environment.

Since then, the International Federationhas called on governments, parliaments,business and the voluntary sector in manycountries to examine aspects of law andregulation that might influence the de-velopment of volunteerism. Red CrossRed Crescent advocates include the Na-tional Societies of Chile, Colombia, Mex-ico, Morocco, Nicaragua and Tunisia.Volunteerism and legislation: a guidancenote, which was jointly published by theInter-Parliamentary Union (IPU), the In-ternational Federation and UNV in2004, further emphasized the importanceof multi-stakeholder participation.

In addition, the International Federa-tion’s International Disaster ResponseLaws, Rules and Principles (IDRL) pro-gramme has been seeking to address gapsin the legal framework for internationaldisaster response. Studies have revealednumerous legal challenges for humani-tarian personnel – including volunteers –who are involved in international disas-ter response. Consequently, the IDRLprogramme has initiated the develop-ment of guidance for legislators seekingto strengthen or improve domestic lawsto anticipate and resolve these issues inadvance of disasters.

In recent years, a range of legislation, res-olutions and support for volunteeringhas emerged around the world. At na-tional level, more countries are movingbeyond publicly recognizing volunteer-ing to establish a legal environment forvolunteering through the development,revision and/or enactment of national


3. Pursuing a volunteer-friendly society

Colombia legislation

Volunteering law in Colombia was de-veloped in 2001, following the IYV. Itlegally recognizes volunteers in informalactivities. It provides a standard volun-teering policy for organizations that lacka policy of their own. It also requires amechanism to quantify volunteer con-tributions to GDP. Revisions to recog-nize foreign volunteers in the country,and the development of a policy imple-mentation guide are on the way.

The Colombian Red Cross Societyplays an active role in this process andhas, amongst other things, contributedto the volunteer management cycle ofthis policy guide.

Furthermore, following large casualtiesamong rescue workers (including RedCross volunteers) in a disaster in 1999,the government has launched a na-tional insurance scheme for volunteers.

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legislation and policies. For example, Mozambique has passed laws dealing with therelationship between volunteers and volunteer-involving organizations. Argentina,Brazil, Colombia, Nicaragua and Peru have passed specific volunteering legislation.In Benin, a law on decentralization encourages the promotion of volunteerism andcommunity initiatives. In Australia, the government is seeking tax breaks for emer-gency service volunteers who are also part of the general workforce. In the run-up tothe 2008 Beijing Olympic Games and in an attempt to promote volunteering, Chinais also drafting a law to define volunteers’ rights and obligations.

Progress in this field has been positive but more work is needed. The way that gov-ernments and legislators act towards volunteering and voluntary organizations clearlyhas a great impact on their viability and effectiveness.

3.2. Sociocultural and economic environmentIn addition to legal and political factors, volunteerism is strongly influenced by so-ciocultural characteristics, economic structures and wealth distribution, the institu-tional divisions of labour, beliefs, values, traditions and other norms. In a world ofrapid change and new challenges, the nature of the sociocultural and economic en-vironment for volunteering is also evolving. Many of these changes represent new av-enues for voluntary organizations.

The International Federation pledged, at the 12th General Assembly in 1999, to re-view the current situation and status of volunteers and to identify areas where changeis needed to improve services to beneficiaries. The Federation secretariat has since leda series of volunteering reviews to assess the volunteering situation in various coun-tries and regions. The impact of any sociocultural and economic changes on volun-teering differs from one country to another. Each National Society needs to analyseits own context and respond accordingly.

Flexible volunteering optionsThe amount of time available for volunteering is limited due to volunteers’ mobilityand other socio-economic conditions. Young people tend to volunteer more hoursthan those with young families, middle-aged workers or those approaching retire-ment. In the developing world, the struggle to earn a living results in limited time forformal volunteering, although informal and episodic volunteering prevails in many ofthese societies. Flexible volunteering options that offer specific, time-limited tasks anda possibility for families and friends to volunteer together can be more successful inensuring diversity and recruitment. A rapidly developing concept is virtual volun-teering . This allows volunteers in the developed and developing world to completetasks online, and for volunteer managers to connect with worldwide resources. Recog-nition should be based on efficiency and performance rather than longevity.

Demographic changesAn ageing population and early retirement in most of the developed world hasprompted programme design to serve and engage retired people and senior citizens.At the same time, with a majority of the population (1.3 billion) in developing coun-tries aged under 25, the World Development Report 2007 claims there has neverbeen a better time to train young people more effectively to become active citizens.Similarly, organizations may find volunteers holding on to traditional roles or keyleadership positions. Volunteer management in many organizations now emphasizesways – such as the enforced rotation of board members – of enabling newer volun-teers to grow into their roles while allowing meaningful contribution from activeelderly volunteers.


New life phasesand demographic changes

The traditional phases that character-ized life in the 20th century – childhood,the adult years of responsibility andyears of old age – have taken on a newcontext in both developed and devel-oping countries. The graph belowshows that, for Swedes, the years of re-sponsibility have shrunk from 50 yearsto about 25 in just a few decades. Inpractice, Swedes get established in thelabour market at the same time as theystart their own family. The average re-tirement age is around 60, while thepopulation is getting older and healthier.

The first freedom phase in adult yearshas been expanded in recent decades,and starting a family and entering tradi-tional adulthood has been pushed for-ward. The years between 20 and 35consist of trying out different lifestyles,social circles and experiences. With so-ciety placing fewer demands on youngadults, long-term commitments in or-ganizations may also give way to in-volvement in shorter projects.

Nevertheless, many young people feela strong need to do something mean-ingful and to contribute to a betterworld. The future of Swedish NGOs isvery much dependent on their capacityto harness this desire.

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Taking volunteers seriouslyInternational Federation of Red Cross and Red Crescent Societies

Diversified populationVolunteerism can enhance social cohesion and reduce social exclusion. The chal-lenges faced by multicultural societies illustrate the need for the voluntary sector toaddress diversity in volunteer recruitment and management. Immigrants, indigenousgroups, refugees and other marginalized groups represent untapped volunteer sourcesin many societies. Diaspora volunteer programmes can help integration and social in-clusion for new or returning migrants and refugees.

Corporate volunteeringCompanies increasingly see themselves as having an active role in the community, notonly through their charitable activities but also by participating in community de-velopment and implementation. Today, many companies have a corporate social re-sponsibility policy and employee volunteer programmes linked to their businessstrategies. Thanks to this, employees can gain new skills and enhance their self-es-teem. Community cohesion and community services are also enhanced. The em-ployer benefits from increased employee retention and an improved public image. AUNV report shows that, while progress is positive, greater organizational support isneeded to link businesses and communities, and to facilitate mutual understanding.

3.3. Strategic partnershipThe success of a volunteer-friendly environment, which grows out of local culture andconditions, largely depends on joint efforts and commitments from all sections ofcivil society. The International Federation’s pledge at the 27th International Confer-ence in 1999 foreshadowed intensified partnership-building activities, with other or-ganizations sharing the same commitment renewed through the IYV. Thispartnership-building work has involved the Inter-Parliamentary Union. Since 1901,when the first Nobel Prize for Peace was awarded jointly to Henry Dunant andFrédéric Passy, the former the founder of the Red Cross and the latter one of thefounders of the IPU, this common historical path has set a tone for the two organi-zations to work together for peace and harmony among peoples, communities andnations. The International Federation has also developed a long and fruitful rela-tionship with UNV to mobilize the power of volunteers in areas of common concern.Moreover, the International Federation has established a link with the InternationalBusiness Leaders Forum (IBLF). This link reflects the growing interest of the busi-ness community in promoting volunteerism as an integral part of corporate social re-sponsibility. ■


4.1. IntroductionVoluntary action has been at the heart ofthe Movement since the very beginning.Although the volunteering environmentis evolving, the actions of volunteers atthe Battle of Solferino continue to in-spire and guide much of the Movement’swork to improve the lives of vulnerablepeople. Mobilizing volunteers to servevulnerable people must, therefore, beone of the key competencies of NationalSocieties. This ability is increasinglybeing called into question.

The chief executive of the British RedCross, Sir Nicholas Young, emphasized,at the 2001 General Assembly, the needfor National Societies to improve theirvolunteer management:

We cannot take it for granted thatvolunteers will join us simply be-cause we are the Red Cross, nor canwe expect them to stay just becausewe want them to. We have to showthem leadership and inspiration –like Henry Dunant at Solferino –plus the very best of modern man-agement and developmental tech-niques, to keep them with us andhelping those in need… Let’s get se-rious about volunteers!

Being volunteer-friendly means ensuringpolicies, programmes and paid staff pro-vide a positive, welcoming and reward-ing experience for existing and potentialvolunteers. National Societies must ac-tively develop and put in place propervolunteer management policies, and sys-tems that are widely shared and openlydiscussed by governance, paid staff andvolunteers.

Since the adoption of the InternationalFederation’s Volunteering Policy in1999, and subsequent decisions andpledges made by National Societies at in-ternational and regional conferences,

there have been serious and innovativeinitiatives in all parts of the world aimedat pursuing volunteer friendliness.

About half of the National Societies havea national volunteer policy, while slightlyfewer have a volunteer developmentplan. Many more have dedicated humanresources for volunteer management anddevelopment at national level. Red CrossRed Crescent Societies face wide-rang-ing potential, capacities and realities inpromoting volunteering around theworld as they mobilize volunteers to fillgaps in healthcare provision, fight cli-mate change, reach out to youth and theelderly, establish volunteer managementsystems, reshape organizations and theirpublic image, entice corporate volun-teers, prepare for emergencies, and ex-plore the new frontiers created bySecond Life on the internet.

The adoption of volunteering policiesby National Societies represents an im-portant step towards developing a co-herent understanding of the role andvalue of volunteers. However, this alonecannot change many of the realities andchallenges.

Reviews show that volunteer manage-ment practices, both in everyday and inemergency situations, have improved. Anumber of National Societies are testingnew approaches to enhance the diversityand involvement of volunteers at deci-sion-making and implementation levels.Some are also actively promoting volun-teering legislation with their govern-ments. Various forms of regionalnetworks and peer support among Na-tional Society volunteer managers haveenhanced the exchange of skills andknowledge.

On the other hand, some challengeshave been identified, including a lack ofanalysis of volunteer motivation, a lackof awareness and dissemination of vol-


4. Establishing a volunteer-friendlyNational Society

unteering policy, and financial constraints. Volunteering development is cross-cuttingand often opens up a Pandora’s Box, revealing wider organizational development is-sues. This reality sometimes deters the leadership of National Societies from a com-mitment to volunteering development. The potential for establishing cooperationand partnership with governments and other organizations for the effective use of re-sources and for greater impact is, also, often undermined.

Strategy 2010 and the Federation of the Future process reaffirm volunteering as beingfundamental to the organization’s vision and values. Each National Society should as-pire to be one of the leading organizations in mobilizing and managing volunteersto help vulnerable people in its country. While volunteering may be free, volunteermanagement is not. If National Societies are serious about developing volunteeringto better meet changing needs, then long-term organizational commitment and re-sources are essential.

The following sections examine various volunteering issues, with progress and chal-lenges as identified by National Societies.

4.2. Diversity and recruitmentNational Red Cross and Red Crescent Societies shall:• recruit volunteers for specific, explicitly described roles or tasks (Volunteering Pol-icy, 5.1.2)

• recruit volunteers on the basis of their commitment and potential (VolunteeringPolicy, 5.1.3)

• actively seek to recruit volunteers irrespective of their race, age, ethnicity, sex, reli-gion, beliefs, disability or age (Volunteering Policy, 5.1.4)


31%

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28%

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53%47%

28%

72%


58%

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65%


46%

54%

26%

74%


• ensure that there is appropriate participation of men and women in National So-ciety volunteer programmes for effective and gender-sensitive delivery of serviceand activities (Volunteering Policy, 5.1.5)

Using male and female volunteers from a range of age, ethnic and religious groupsreinforces the Fundamental Principles of the Red Cross and Red Crescent Move-ment as well as service delivery. The International Federation’s policy on refugees anddisplaced people also makes a clear reference to ensure the appropriate representationof refugees and displaced people among volunteers and staff. Research shows thatwhen a volunteer organization involves people from all sections of society, includingthose it seeks to serve, then it is more likely to succeed.

ProgressIn recent years, there has been increased awareness of diversity and creativity in volun-teer recruitment. National Societies have committed themselves to recruit more volun-teers, strengthening the volunteer base to reflect the composition of the population andincreasing the participation of volunteers from a diversity of backgrounds in the deci-sion-making process.

Volunteer recruitment is becoming more targeted, matching identified specific taskswith volunteers’ skills and interests. Thanks to an improved volunteer managementsystem, theTogolese Red Cross increased the number of volunteers from 210 in 2000to 5,600 in 2006. The Argentine Red Cross’s statutes and code of ethics provide clearguidance on volunteer recruitment and diversity. New advocacy activities for fairtrade and sustainable development have prompted more young people to volunteerwith the Swedish Red Cross.

Many National Societies use new recruitment approaches to address increasing com-petition and the changing expectations of volunteers. The volunteer base is beingbroadened with the use of modern technologies and closer links to corporate socialresponsibility. Numerous National Societies have launched cyber recruitment.

National Societies are working to improve diversity in volunteer recruitment.The Bul-garian Red Cross brings volunteers from Roma and Turkish communities to work to-gether. The British Red Cross, partnering with the Bangladesh Red Crescent Society,is reaching out to the Bangladeshi community in Britain. The Norwegian Red Crossinvolves more diverse volunteer groups through urban community centres. In the Mid-dle East and North Africa (MENA), several National Societies have a quota system toensure gender and age balance in their governance. The Uganda Red Cross Society’snew constitution establishes nine seats for youth representatives on the governing board.

Screening measures are increasingly being used to improve risk management and toprotect beneficiaries, volunteers and National Societies. Examples are better designedprogrammes, recruitment strategies, police record checks, interviews, observation ofgroup dynamics in training, and testimonies from the community or branch.

ChallengesIdentified challenges include a public misconception of the Red Cross and Red Cres-cent, insufficient awareness of volunteerism, diversity and gender sensitivity, and lim-ited organizational capacity and resources.

Numerous National Societies in various regions are perceived by the public as gov-ernmental, elite, old-fashioned or response-focused organizations, restricting re-cruitment to certain segments of the society.


Internet recruitment

The Republic of Korea National RedCross has launched a volunteer pro-gramme that recruits volunteers via theinternet. The web page functions as adatabase containing users’ profiles,thereby making it easy to match volun-teer opportunities with available re-sources. Volunteers are interviewed bythe nearest branch. The society plansto enhance volunteers’ participation indecision-making, and to make someactivities and distance training coursesavailable online.

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Some National Societies have a limited capacity to absorb newcomers. Their open-ness to diverse groups varies. A lack of financial resources and recruitment strategies,weak or distant branch structures and, sometimes, stringent requirements for peoplewishing to become volunteers limit volunteer recruitment and diversity. Security sit-uations and cultural issues in some countries, such as Afghanistan, also deter femalevolunteers. In Africa, widespread poverty means that many volunteers are young andunemployed, and financial incentives becomes an issue.

Modern technology, the corporate workforce, local volunteering traditions and mar-ginalized populations remain a largely untapped resource. High female participationin programmes is in stark contrast to high male participation in the governance ofmany National Societies.

Evidently, greater effort is needed to address volunteer diversity and recruitment inall National Societies. Putting volunteer management systems into place and pro-moting the work of the Red Cross Red Crescent and the fundamental principles isessential. The public needs to know that we need volunteers, what we need themfor, and that we are open to everyone.

4.3. Retention and recognitionNational Red Cross and Red Crescent Societies shall reward and recognize volunteerswhenever possible and appropriate, and provide appropriate personal developmentopportunities. (Volunteering Policy, 5.1.8)

The retention of volunteers is closely linked to the way in which they are managedand supported. Volunteers stay when they have a sense of belonging to the organi-zation, when they feel satisfied and recognized, and when they learn new things orsee opportunities for growth. Volunteers leave when there are no meaningful activi-ties, when they feel unappreciated or unsupported. Other external factors that canplay a part include the mobility of volunteers for personal or professional reasons, andcompetition from other organizations.

Volunteers have different needs and expectations. It is important to understand whatmotivates them and what skills and experiences they bring. Recognition is one ofthe key motivators and should, therefore, be an ongoing process. As well as tangibleforms of recognition, other informal, everyday forms of recognition, such as a “thankyou”, affect volunteers’ job satisfaction and performance.

ProgressMost National Societies have identified retention and recruitment as priority volun-teering issues, and have made increasing efforts to improve. Greater emphasis is puton proper volunteer placement.

In South America, retention has been identified as a problem and several NationalSocieties are conducting retention studies. The British Red Cross is also making asimilar review to modernize its systems.

Providing training opportunities is an effective way to attract and retain volunteers.In southern Africa, volunteers are attracted to the Red Cross because of the trainingopportunities. They see the potential of using new skills for their career develop-ment. In Trinidad and Tobago, the National Society shares training resources withother organizations and tries new approaches to retain volunteers. Many National So-cieties are also exploring new kinds of training, such as e-learning, in order to meetthe changing profiles and expectations of volunteers.


Risk management: screening

According to Canada’s legal principle of‘duty of care’, all organizations are re-sponsible for screening their volunteers.The Canadian Red Cross Society has avolunteer screening policy. Sexualabuse is one of the identified risks andpolice record checks are part of the riskmanagement cycle in volunteer recruit-ment.

The Sudanese Red Crescent uses tes-timonies from the local community orbranches to screen volunteers.

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More National Societies recognize the link between volunteer retention and organi-zational culture. Volunteers are increasingly encouraged to voice their opinion, takemore responsibility and engage in decision-making.

National Societies practise both formal and informal means of recognizing volunteers.These actions vary from one society to the other and can vary between branches.Awards and certificates for volunteers for their service are common. Other examplesinclude letters of thanks, uniforms, representation at regional or international events,employment opportunities, nomination to the governing board and life member-ship for distinguished contribution during emergencies.

Some National Societies have recognition policies or standards to ensure proper co-ordination and coherence among branches. The newly adopted statutes of the RedCross of Serbia and the Red Cross of Montenegro also assume the subsequent de-velopment of recognition systems.

A number of National Societies are exploring methods, such as the Volunteer In-vestment and Value Audit, to value and recognize volunteering inputs and outputsas a means of improving programme efficiency, increasing the recognition, recruit-ment and retention of volunteers, and attracting funding.

ChallengesApart from financial challenges, poor volunteer management capacity, training andplanning, a lack of awareness of what motivates volunteers and slow implementa-tion of volunteering policies are common challenges for volunteer retention andrecognition. Many National Societies do not have a clear work or training plan forvolunteers. Volunteers leave because they do not feel properly recognized or involvedin their National Society.

Recognition is often based on hours rather than performance and efficiency. Coher-ent and coordinated recording and monitoring systems are needed to ensure equitableopportunities for volunteers. This is when a good volunteer database at all levelsproves useful.

National Societies dependent on external resources for financial incentives also facethe challenge of sustainability. Recruitment and retention strategies need to beregularly reviewed to respond to competition and the changing expectations ofvolunteers.

4.4. Training for volunteersand volunteer managersNational Societies shall provide appropriate training that will enable a volunteer tomeet his or her responsibilities towards the Movement, the specific task or role theywere recruited to carry out, and for any emergency response activity they may beasked to carry out. (Volunteering Policy, 5.1.6)

Most volunteers require some form of training. This may be an induction into the RedCross Red Crescent, and to specific tasks and procedures, or technical training in firstaid, community mobilization, assessment, counselling etc. As a legal and moral dutyto volunteers and beneficiaries, National Societies need to identify the skills requiredbefore recruiting volunteers, plan for the training and secure the funding.


Retention

The Philippine National Red Cross La-guna chapter recognizes that building agood staff–volunteer relationship is crit-ical to retain their volunteers. Volunteersreceive basic training in first aid andhave regular opportunities to meet paidstaff in dedicated venues. They are alsoencouraged in every way to say whatthey think and to engage in decision-making. This has greatly boosted theirmorale and motivation.

When Typhoon Millennium struck thearea in 2006, the chapter volunteers re-sponded in record time.

Recognition

The Palestine Red Crescent Societyrecognizes distinguished volunteersthrough its volunteers’ magazine,Hisadouna (Our Harvest). The magazinealso gives volunteers the opportunity topublish their ideas and thoughts. At theend of 2006, the National Societyprinted a poster with the photos of dis-tinguished volunteers from that year anddistributed copies to all the branches.

The Guyana Red Cross Society presentsawards at volunteers’ workplaces. Thisunexpected act, in the presence of staffand customers, was appreciated by asalon that offers hair cuts to childrenfrom a Red Cross residential home.

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Volunteer managers play a critical role, with responsibility to recruit, interview, se-lect, place, orient, train, supervise, evaluate, recognize and transition volunteers. Theyshould understand and appreciate the Movement. They should also be experiencedin human resources management, know how to work with diverse individuals andgroups, be trained in programme management and competent in basic marketingprinciples. Clearly, volunteer managers themselves need appropriate training.

ProgressVolunteer training has been encouraged through policies and guidelines at GeneralAssemblies and regional conferences. National Societies provide induction courses,first-aid training and peer education. Various other courses are run regularly. Somealso run refresher courses for volunteers. In many National Societies, volunteers meetregularly and go on various courses. Training for volunteer managers is more sporadicand often non-existent.

Basic training courses for new volunteers are often extensive, covering a range of is-sues. National Societies in the Americas region are looking to standardize their in-duction training. Regional training of trainers is being developed to increase NationalSocieties’ capacities. In North Africa, the International Federation secretariat sup-ports National Societies in developing training modules that focus on building apool of in-country trainers for a more lasting impact.

Generally, there are more and more training opportunities for volunteers. In south-east Europe there are also an increasing number of manuals for training trainers, aswell as a greater streamlining of training. One example is the Red Cross of Serbia,where a modular training system is currently under way with a four-hour session forbeginners followed by specialized training. Training manuals are also increasinglybeing shared by National Societies, regionally and cross-regionally.

Many National Societies have training departments and guidelines for trainingvolunteers. The Colombian Red Cross Society and the Bulgarian Red Cross bothhave systematic approaches to ensure similar curricula across the National Societies.National Societies also find ways of involving their current volunteers in trainingnew ones. The Armenian Red Cross Society’s induction training gives existingvolunteers a practical role by sharing their experiences and lessons learnt withnewcomers.

While volunteer training is common, courses for volunteer managers are still new inmost regions. Following the adoption of the Volunteering Policy and the volunteermanagement cycle, greater effort has been made. Yet most National Societies do noteven have volunteer managers to train. Many simultaneous needs are placed on Na-tional Societies; they need to engage volunteers while developing structures tostrengthen volunteer management.

National Societies are asking the Federation secretariat for more volunteer manage-ment training. In southern Africa, the last regional training of volunteer managerstook place in 2002. In the Asia Pacific region, standard sessions have been developedto help National Societies deal with the complexities of a volunteer-based organiza-tion. In the Caribbean, a greater focus on training volunteer managers was accom-panied by the development of a volunteer management toolkit in 2005, which wasbased on the volunteer management cycle. Many National Societies in the region re-port more management training since then, but would like training on how best touse the kit. The volunteer management cycle also provided the basis of the volunteermanagement training of the British Red Cross, developed a few years ago.


E-learningfor volunteer managers

The European Reference Centre onVolunteering has piloted an e-learningcourse on volunteer management in as-sociation with the Open University ofCatalonia in Spain. The course, first de-veloped in Spanish, has been well re-ceived by participants and is seen asrelevant to their work. The English ver-sion will be piloted in 2007.

Improvingvolunteer management

After the Caribbean volunteer manage-ment toolkit was developed, the Cu-raçao branch of the Netherlands RedCross used it to train all volunteers andto identify potential volunteer managers.The branch sees the process – drivenby the new structure and a strong willto bring skilled volunteers into manage-ment – as the biggest change in thebranch in 40 years.

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ChallengesThe most obvious challenge concerning training is the establishment of regular vol-unteer management training programmes and well-functioning volunteer manage-ment systems in all regions. Linked to this is the need to have proper structures inplace at national and branch level in terms of human resources (volunteer managers),as well as policies and strategies to improve volunteer management. Financial con-straints also limit training activities. It is difficult to find funding and, in some cases,volunteers have to pay for their own training.

In some National Societies, the rigidity of training systems also limits volunteer re-cruitment and development. Many National Societies need new volunteers but time-consuming training curricula sometimes discourage volunteers. National Societiesneed to be more flexible when involving professionals and community members.

Recent emergency responses also highlight two training issues: that the volunteermanagement cycle needs to be adaptable to emergency situations to ensure the effi-cient and recorded recruitment, training and placement of volunteers; and that in-ternational delegates need to develop a supportive and sensitive attitude towardsvolunteers’ training needs.

4.5. Health and safety of volunteersNational Societies shall provide appropriate:• training that will enable a volunteer to meet his or her responsibilities towards theMovement, the specific task or role they were recruited to carry out, and for anyemergency response activity they may be asked to carry out(Volunteering Policy, 5.1.6)

• equipment for the task or role they are asked to carry out(Volunteering Policy, 5.1.7)

• insurance protection for volunteers (Volunteering Policy, 5.1.11)

Volunteers work in situations where they are vulnerable. Every year, volunteers areinjured, traumatized or killed. In addition, volunteers can harm people and property,especially if they have not been properly trained, equipped or managed.

It is, therefore, important that National Societies have appropriate insurance policies.This was emphasized at the Federation General Assembly in 2005, where NationalSocieties were encouraged to ensure adequate accident insurance for volunteers.

In addition, volunteers must be appropriately trained and have the right equipmentto do their work, and have access to psychosocial support.

ProgressWhilst appropriate training and equipment for volunteers is ensured across most Na-tional Societies, volunteer skills are maintained through simulation exercises and reg-ular training, and the issue of psychosocial support is becoming more common,volunteer insurance is proving to be more of a challenge. In the Middle East andNorth Africa region, the issue of insurance was discussed during the 2005 regionalconference and National Societies agreed to work on this. Insurance is still lacking,but the issue is now being discussed and followed up. A large group of National So-cieties have no insurance or very limited coverage. In all regions, National Societiesexpressed interest in the Federation volunteer accident insurance scheme, to whichthe Zambia Red Cross Society was among first to sign up.


Peer support

The Austrian Red Cross launched peersupport for volunteers and staff in1998. The National Society currentlyhas 1,187 trained peers.

Peers are trained together with mentalhealth professionals. They performweekly one-on-one interventions at allbranches, while group interventionstake place 30 to 40 times a year withineach branch. The volunteers are satis-fied with the system. New forms of psy-chosocial intervention for volunteersand staff that have been exposed totraumatic events are being developed.

The Mozambique Red Cross Society has an agreement with local authorities and hascreated group insurance for a certain number of volunteers. In the Caribbean, in-surance is lacking, not only for volunteers but sometimes also for staff. However, theissue of insurance is gaining in importance, partly because national laws are chang-ing. In Trinidad and Tobago, health and safety legislation enacted in 2006 made or-ganizations liable for their associates. As a result, insurance has become moreimportant to the National Society.

Many National Societies provide activity-based insurance cover for their volunteers.They provide the insurance company with a list of volunteers to be insured for theduration of a particular activity. The Croatian Red Cross and the Red Cross of theFormer Yugoslav Republic of Macedonia both have contracts with insurance agen-cies covering up to 100 volunteers a day, in addition to separate agreements for eventsinvolving a larger number of volunteers. The Venezuelan Red Cross also has a cer-tain number of volunteers insured. Most South American National Societies need adatabase to have insurance. The Bolivian Red Cross has an online database which isupdated by its branches, while other societies have yet to develop one.

Some National Societies have high-risk activity insurance. For example, the Bulgar-ian Red Cross has insurance specifically for volunteers involved in high-risk activi-ties such as mountain rescue teams. The Red Cross of Serbia and the Red Cross ofMontenegro are also developing volunteer insurance, using the project budget tocover the cost.

ChallengesThe challenges regarding health and safety, particularly as it relates to volunteer in-surance, are mainly financial constraints, a lack of knowledge and appreciation ofthese issues, and a lack of proper risk management. These challenges are related, asa poor understanding of the need for insurance results in few efforts to raise fundsfor this purpose. Resource mobilization is a problem in most regions, although tovarying degrees. In southern Africa, this is the overarching problem. Asia and theAmericas also face challenges in securing funds for insurance. In many cases, Na-tional Societies also lack appropriate security rules for working in conflict zones anddangerous situations.


The Masambo Fund:taking care of volunteers

Conscious of the unprecedented chal-lenges that HIV and AIDS pose to or-ganizational continuity and survival, theInternational Federation has created theMasambo Fund. Named after a long-serving volunteer of the Zimbabwe RedCross Society, who did not have ac-cess to anti-retroviral drugs (ARV), theMasambo Fund provides access toARV for Red Cross and Red Crescentstaff and volunteers living with HIV. TheMasambo Fund is financed throughvoluntary contributions from all NationalSocieties and from private donations.

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Scaling up actions with vulnerable com-munities in health promotion, diseaseprevention and disaster risk reduction,as well as reducing the impact of disas-ters and public health emergencies, iscentral to the International Federation’sGlobal Agenda. Volunteers play a crucialrole here. What volunteers see and ex-perience in difficult situations may affectthem, and many National Societies areincreasingly ready and willing to offersupport to their volunteers. Althoughemergencies are often the entry point forvolunteer recruitment and involvement,little is known about their needs duringand after disasters, and the long-termeffects on their health and psychosocialwell-being. Understanding this issuewould enable better volunteer care andimprove volunteer retention.

Are volunteers at risk?The Indian Ocean tsunami in 2004 high-lighted gaps in policies and procedures.One recommendation is to reinforcepsychosocial support in the recoveryphase and for the increasing number ofvolunteers exposed to emergency work.

While research shows that 20–30 percent of women and 8–13 per cent ofmen exposed to traumatic events willdevelop post-traumatic stress disorderor a major depressive disorder and/orsubstance abuse problems, the vastmajority of people exposed to potentiallytraumatic events do not go on to de-velop these disorders. Many actually re-port post-traumatic growth, whichoccurs when an individual attains, andmaintains, at least one perceived posi-tive change directly attributable to a trau-matic event, and feels that the event hasgiven them increased strength to faceother challenges in life. Humanitarianwork involves the prospect of growingby helping vulnerable people. We would,therefore, expect many Red Cross RedCrescent volunteers to experience post-traumatic growth. To date, no study hasexamined this issue.

It is vital to acknowledge the broaderrange of volunteer work and the positiveaspects of volunteering in a disaster sit-uation without overlooking the reality ofmental health problems that may persistin a minority of volunteers.

Taking a step forwardThe Federation Volunteering Policy canbe improved by emphasizing volunteers’physical and mental health. However,policy alone does not change reality.Section 5.1.15 of the policy mentionsthe “development of best practices”. Agood way is to quantify evidencethrough research. The policy states thatthe Federation secretariat should iden-tify and support research projects thatwill help strengthen National Society ac-tivities and promote volunteering. Oneway of improving volunteer promotionand recruitment is to understand whatcontributes to volunteer well-being.

The Centre for Psychological Trauma atthe University of Amsterdam, in cooper-ation with the Indonesian Red Cross So-ciety, is leading a research project toidentify factors contributing to volun-teers’ health, well-being and post-trau-matic growth. The project is supportedby the Federation secretariat and theRed Cross Societies of Austria, Franceand Iceland.

Expected outcomesOne key aim is to develop guidelines onhow to recruit, select, train, support andreward volunteers to foster their re-silience, post-traumatic growth, healthand psychosocial well-being, and to un-derstand the factors that help preventadverse effects. This will be a valuablestep towards improving volunteer man-agement in the Movement.

By Sirry B Thormar,nurse and psychologist


Psychosocial needs and post-traumatic growth of volunteers

4.6. Involvement in programme managementand decision-makingNational Societies shall ensure that volunteers’ views and ideas are actively sought andacted upon at all stages of programme design, development, implementation andevaluation. (Volunteering Policy, Section 5.1.9)

Volunteers know their clients and beneficiaries best. It is important that volunteersare consulted in programme design and that they are included in the decision-mak-ing process. It is also a way of recognizing volunteers, thereby ensuring volunteer re-tention, and of facilitating volunteer ownership of decisions.

Two organizational paradigms exist in the Movement when examining member andvolunteer involvement. In the membership model, members gather around an idea,form branches and elect leaders. Active members are led or self-managed. The con-cept of volunteers in this model can be weak. In the service delivery model, volun-teers are recruited to perform explicitly defined tasks. Local branches deliver servicesrather than organize members. National Societies need to determine which model isappropriate for their context.

ProgressTwo kinds of volunteer participation are examined here: in programme managementand decision-making. Regional and international decisions, including the 2005 Gen-eral Assembly decisions on youth and volunteering, have stressed the importance ofinvolvement. In most National Societies, volunteers are to some degree involved inprogramme management, although less so in disaster-driven situations. Volunteerinvolvement in decision-making is low, particularly at national level.

Staff often manage national programmes, while community programmes are, to alarger extent, managed by volunteers. Most National Societies see the need to in-volve volunteers in the planning when working with their communities and, in-creasingly, also in programme design at national level. The British Red Cross is givingvolunteers more responsibility for staff-designed programmes. In the Middle Eastand North Africa, volunteers are playing an increasingly important role in planning.Smaller National Societies, with few paid staff members, generally involved volun-teers more. Volunteers identify needs, implement programmes and are sometimestransformed into project staff.

Volunteer involvement in decision-making is often low at national level. Many Na-tional Societies report positive outcomes in involving volunteers, both in terms ofprogramme influence and volunteer encouragement. However, although governancemembers generally carry out their work on a voluntary basis, programme volunteersare often not heard at decision-making forums. Since the adoption of the Volun-teering Policy, volunteer involvement has been on the agenda and volunteers are in-creasingly being elected by their peers onto governance. The Afghanistan RedCrescent is one of many National Societies taking steps to include volunteers in pro-gramme planning and decision-making.

In all regions, local and branch decision-making forums have better volunteer in-volvement than national ones. In southern Africa, as in other regions, volunteerswho become involved in decision-making at this level continue to do their normalvolunteer work. Branch-level volunteers can, therefore, be involved in governancewhilst planning and implementing programmes.


Increasing volunteerinvolvement

Under the new constitution and humanresources policy of the Argentine RedCross, volunteers are recognized asassociates to the National Society inassemblies. Previously, only those whopaid a membership fee were classedas associates. Now, by contributing aminimum of 100 hours per year, volun-teers are given the same voting andelection rights as paying members.Only one election has been held so far,but the results can already be seen inyounger branch presidents and gov-erning board members. Similarly, theLebanese Red Cross has carried outreforms in its legal base and has givenvolunteers the right to vote and beelected to all levels.

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Furthermore, not all volunteers are equally involved. Very often, youth volunteers areexcluded from some processes as they are deemed to be lacking the necessary skillsto contribute. Many National Societies are now working to improve the situationby including young people in governing bodies and by establishing youth boardsand committees. The Australian Red Cross has adopted a more serious attitude to-wards youth involvement and is developing appropriate structures and policies.

Volunteer involvement is not just about National Societies allowing participation; itis also about volunteer awareness. In North Africa, through various activities, vol-unteers have become aware of their right to be involved in decision-making. As a re-sult, more and more believe they can influence the National Society.

ChallengesThere is a general need for more volunteer involvement, especially at national leveland in disaster-driven situations. Volunteers are often implementers with little say inthe processes that affect their work. In some cases, they may not wish to be involved,but there are a number of other barriers. Young and unemployed volunteers may notbe perceived as adding value to processes. In some National Societies, governancepositions are prestigious and volunteers from local communities might not be ac-cepted. Volunteers are sometimes not included because of a lack of structures and ca-pacity to accommodate new points of view. In some cases, leadership and staff mayconsider volunteer involvement to be a threat because volunteers will ask questionsand demand change. Local branch structures and leadership training may facilitatethis. Another challenge is linked to unclear definitions of volunteers and members,and overlapping roles between governance and management.

Financial constraints limit volunteer involvement because not all National Societiescan afford to reimburse costs for volunteers to participate in assemblies and plan-ning processes. Finally, low awareness of the Volunteering Policy and the benefits ofvolunteer involvement may hold some National Societies back in these processes.

4.7. ReimbursementNational Societies shall reimburse reasonable expenses incurred by volunteers in thecourse of carrying out approved volunteering tasks. (Volunteering Policy, 5.1.10)National Societies shall ensure that, when people need to be paid to perform a taskof work, they are recognized as employees, contract workers or casual labour. As such,they should be covered and protected by any relevant employment legislation appli-cable, such as minimum wages, contract protection and other legal rights and re-sponsibilities. (Volunteering Policy, 5.1.13)

Volunteers should neither gain nor lose out financially as a result of their voluntary ac-tivity. When a National Society covers volunteer costs, this should be done in a clearmanner that cannot be mistaken for the payment of a salary. According to the Inter-national Federation’s definition, volunteering is not a paid activity. When paid, peo-ple should be considered staff – not volunteers – and be employed on a fully legalbasis. Paid workers called volunteers are one of the barriers to volunteer development.

ProgressThe reimbursement of expenses and payment of volunteers represents more of a chal-lenge in some regions and National Societies than in others. While reimbursementmostly relies on internal finances and practices, the payment of volunteers is affectedby the practices of other humanitarian actors. Systems that allow harmony and con-sistency are equally important to both.


Many National Societies reimburse volunteers’ expenses or provide an adequate al-lowance to cover costs related to their work. The practice varies among and withinNational Societies, and from region to region, as well as from programme to pro-gramme. The general agreement should be that reasonable expenses incurred by vol-unteers should be reimbursed.

In 2005, the Middle East and North Africa Regional Conference recommended animprovement in practices in the region, where currently some volunteers arereimbursed adequately, others excessively and some not at all. This issue is also beingdiscussed more in all the other regions, particularly within the context ofemergencies. The Kiribati Red Cross Society is one of many National Societies thatnotes that volunteers are more willing to perform a task if they know their costswill be reimbursed.

Many National Societies have policies or guidance notes to establish the rules of re-imbursement. One example is the new regulations for youth volunteers of the RedCross of Serbia, which specifies reimbursement practices.

There is no clear distinction between reimbursement and the payment of allowancesfor volunteers. In some regions, it is clear that a volunteer is always unpaid and is onlyreimbursed to cover costs. In other cases, volunteers are given allowances that arehigher than their actual costs, or are paid and work almost as staff.

In southern Africa, the payment of volunteers has become common in some pro-grammes, changing the spirit of volunteering. Volunteers contribute several hours aday, and are paid monthly allowances.

The creation of policies and laws has, in many cases, made payment and stipends forvolunteers easier to handle. In East Africa, many National Societies have developedpolicies and guidelines to distinguish between employees and volunteers. The statutesand guidelines of the Argentine Red Cross also establish the difference between thetwo, in accordance with national legislation and Federation policies.

ChallengesA major issue is the need to make a clear distinction between reimbursement and thepayment of a salary. The challenge relating to the reimbursement and pay of volun-teers is financial. Other challenges relate to the practices of other organizations, dif-ferences between programmes, and definitions of volunteering.

Many National Societies cannot afford to reimburse all volunteer costs and are, there-fore, hesitant to establish a system that they will not be able to sustain financially andadministratively. Sometimes, stipends are used to compensate selected volunteers in-stead of general reimbursement. The lack of funds also affects the practice of payingvolunteers. Eastern and southern African National Societies, which cannot afford toestablish salaried posts, have a tendency to hire and pay volunteers to do staff work.This leads to a second concern, that many see volunteering simply as a step on theladder to becoming staff.

Reimbursement and pay can vary from one programme to another, particularly whensome projects are funded by Movement partners and external donors. Volunteersprefer to work on better-funded projects. This makes volunteers reluctant to staywith or go back to non-funded projects or unpaid positions. In cases where somevolunteers are paid and others are not, unpaid volunteers sometimes react by with-drawing from the programmes. When core programmes are funded and new proj-


Clear system

In Afghanistan, volunteers who areasked to participate in youth camps,training and workshops, the celebrationof international days and similar events,have their food, travel and accommo-dation costs reimbursed. Payment ismade in a clear and transparent man-ner, so that volunteers do not mistakethis for a salary or wages.

Competitionwith other organizations

In southern Africa, poverty and compe-tition with other organizations lead to asituation where National Societies haveto pay allowances to recruit and retainvolunteers, as financial incentives aresometimes used to attract volunteersfrom other organizations.

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ects are not, this limits volunteer initiatives to develop new community programmes.Some National Societies try to ensure that donors allow project funds to benefit allvolunteers, for example, by providing free training or uniforms to all the volunteersand not just to those working on the funded project.

When definitions of volunteers and volunteering vary, it is hard to establish clearpractices. The principle of volunteering is, sometimes, also limiting, as the reim-bursement of costs is seen as ‘gain’. Often, volunteers themselves do not mind cov-ering their costs and see this as a contribution to the Movement. The challenge comeswith volunteers who cannot afford to contribute financially; in these cases, the lackof reimbursement limits volunteer recruitment.

4.8. New forms of volunteeringthrough community empowermentThe member National Red Cross and Red Crescent Societies of the InternationalFederation and the Federation secretariat:• are committed to promoting volunteering as a significant and positive contributionto improving the lives of vulnerable people, and to strengthening communities andcivil society (Volunteering Policy, 4.1.1)

• are aware and value informal volunteering in communities, outside the formal or-ganization of National Society programmes and activities (Volunteering Policy,4.1.4)

Volunteers are part of the community and bridge communities and organizations.Volunteering at community level leads to community ownership of solutions to theircommon problems. It empowers people and builds civil society.

ProgressStrategy 2010 places the unique global network of Red Cross and Red Crescent vol-unteers at the forefront to meet the emerging humanitarian challenges. Many Na-tional Society strategic plans have since become more responsive and focused on localvulnerabilities and capacity. Thanks to their complementary role to government andtheir unique position in being able to access communities that others may have dif-ficulty reaching, most National Societies are scaling up community outreach.

Community programming tools, such as vulnerability and capacity assessment andparticipatory community development, have greatly enhanced community partici-pation in the analysis, design and implementation of programmes. Three typicalcommunity approaches have been identified, depending on the National Society’smandate and capacities:• Red Cross Red Crescent coming into communities to deliver services• Red Cross Red Crescent involving the public in community activities• Red Cross Red Crescent supporting activities organized by the community

As National Societies work with community health volunteers, home-based carersand village leaders on a day-to-day basis, these tools and approaches have the po-tential to develop volunteer/member groups, promote bottom-up branch develop-ment and build volunteer management capacity. In Ecuador, one of the localcommunities supporting the Red Cross response to a previous volcanic eruption ap-proached the National Society, asking it to set up a local branch in the community.In Morocco, addressing the emerging migration issues in the region, the National So-ciety is working on a rural community project to raise awareness and to help re-turning migrants reintegrate into the community. The Moroccan Red Crescent


The Red Cross Red Crescent’scommunity approaches

Red Cross Red Crescent coming intothe communities to deliver service.


Red Cross Red Crescent involvingthe public in community activities.


Red Cross Red Crescent supportingactivities organized by the community.

recognizes the need for strong volunteer management capacity before implementingthe project on a larger scale. Similar realities emerge in other parts of the world amidstefforts to optimize community resources and traditional volunteering values.

Community volunteers may have their own views of their Movement identity. InSamoa, the Red Cross is a leading organization in community-based first-aid train-ing. Even when involved in activities run by other organizations, community vol-unteers see themselves as Red Cross volunteers and mobilize as a Red Cross responseunit when disasters hit. In Britain, the strong identity of other community organi-zations means that its members do not assume their Red Cross role as easily. Na-tional Societies face increasing competition, and they see the potential to increaseimpact through partnerships with other organizations.

ChallengesThe Federation Volunteering Policy defines volunteering as an activity that is organ-ized by recognized representatives of a National Society. This institutionalized form ofvolunteering appears to deter volunteering development in some communities. Ques-tions arise as to whether we should recognize community volunteers as Red Cross RedCrescent volunteers. In South America, the volunteering policies of some NationalSocieties place specific requirements on community volunteers in terms of hours ofservice or training before they can qualify as Red Cross volunteers. Failure to complymay mean limited access to proper equipment, reimbursement and insurance.

Another notable challenge is that many National Societies are of the mind-set thatthey are working for rather than working with communities when implementingprogrammes. More could be done to enhance the involvement of refugees and dis-placed people. It has been observed that National Society branches in some better-developed countries tend to be closer to communities, while those in less-developedcountries tend to locate their branches far from rural communities. This underlinesthe need to consider branch structure and capacity when developing communityprogrammes to address potential volunteering issues.

The definition of Red Cross Red Crescent volunteers varies in different contexts.Nevertheless, one reality remains: few humanitarian organizations have the same out-reach as the International Federation to make such a significant difference.


Community empowerment

The Egyptian Red Crescent Societyhas been working for years on housingprojects in the two slum areas of Zen-hom and Nahda. To complement theirweak local structures and resources,the National Society established part-nerships with local associations. Com-munity volunteers play an importantpart in the sustainability and successof the projects. Today, the communi-ties not only have nice apartments buta smarter neighbourhood, a healthierand safer environment, and schools fortheir children.

Promoting branchesand volunteering

With no branches across the country tohelp it realize its mission, the KiribatiRed Cross Society has opted for vul-nerability and capacity assessment(VCA) to develop its network. Based onvolunteers’ VCAs, the National Societyhas developed health projects togetherwith the community. As more commu-nity volunteers join in, volunteering is-sues and incoherent practices becomeapparent. Other Pacific region NationalSocieties are learning from the society’sexperience in order to develop theirown volunteer management approach.

4.9. Networking and peer-to-peer supportThe Federation secretariat shall seek to promote cooperation and partnerships withorganizations in civil society and public and private sectors that encourage volun-teering. (Volunteering Policy, 5.4.3)

In each region, the Federation secretariat encourages National Societies to organizevolunteer development networks, run by the participants themselves according totheir needs. The purpose of the networks is to share knowledge and experience andsupport one another in promoting good volunteer systems and management. In ad-dition, cooperation among National Societies should be facilitated to offer volunteersand volunteer managers more opportunities to meet and exchange experiences.

ProgressNetworking and peer-to-peer support in the area of volunteer development is, tosome extent, taking place in all regions, whether formally or informally. Since theadoption of the Volunteering Policy and added focus on networking at internationallevel, several functional volunteer and organizational development networks and peersupport mechanisms have been established.

Currently, there are two regional volunteer networks in the Movement. The first, theEuropean Network for the Development of Volunteering (ENDOV, originally West-ern ENDOV), was established in 2000. A European Red Cross Reference Centre onVolunteering has been created to keep the momentum going between network meet-ings. The centre offers online support through a web site. The European Youth Net-work also works to develop volunteering in the region.

The second of these two networks, the South American Volunteer Network, was es-tablished in 2004. Members share information by e-mail, by telephone and at meet-ings. The Federation secretariat facilitates network activities. The Argentine RedCross CD-ROM for volunteer development and the Bolivian Red Cross volunteerdatabase are examples of shared good practice.

Other networks, such as the Caribbean Regional Organizational Development Net-work (RODNET), also take responsibility for volunteer development. One outcomeof RODNET was the volunteer management toolkit. In the Africa, Asia Pacific, andMiddle East and North Africa regions, no formal volunteer networks have been es-tablished but several meetings have been arranged at regional and sub-regional level.Other networks, like the Gender and Youth Networks in MENA, include volunteerdevelopment among their objectives.

National Societies are generally interested in mutual support and information ex-changes. Programme exchanges are the most common. They also contribute to vol-unteer development. The HIV and AIDS programme in southern Africa is oneexample where National Societies have developed volunteer management throughjoint activity training.

In East Africa, peer-supported capacity-building is the preferred method for volun-teer development. In the Asia Pacific region, case studies have facilitated the exchangeof experiences. In the Middle East and North Africa region, volunteer managementsystems and programmes have been developed through peer support. The LebaneseRed Cross and the Palestine Red Crescent Society have helped the Iraqi Red Cres-cent Society strengthen its new volunteer department. The Palestine Red Crescent So-ciety and the Red Crescent Society of the United Arab Emirates have helped the


Network support

The Bulgarian Red Cross has devel-oped a volunteering policy, supportedby the Spanish Red Cross and the Fed-eration secretariat. The National Soci-ety became an ENDOV member in2006 and has participated in a numberof other international meetings. Cur-rently, the policy is being implementedin ten branches. The aim is for the Na-tional Society to take a sub-regionallead on volunteer development.

Overseas branches

The Caribbean has 16 overseasbranches belonging to European Na-tional Societies. Being far away fromheadquarters and independent actors inthe region, these societies are often littleinformed about or involved in work goingon outside their territory, and know littleabout their National Society, the regionand the Federation. The Curaçao branchof the Netherlands Red Cross is nowmuch better informed, thanks to its par-ticipation in RODNET. This has also in-creased the understanding of issuesrelated to development.

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Saudi Arabian Red Crescent Society establish a volunteer department and manage-ment procedures.

ChallengesNetworking cannot be consolidated overnight. Volunteering networks, like networksin general, take time, effort and resources to function as planned. Some of the chal-lenges identified include a lack of formalized structures, a lack of resources, and a lackof initiative, interest and understanding from members.

In all regions, there is a need to develop new structures and strengthen existing onesfor better networking and peer support. In many cases, networks function on a per-sonal basis, meaning that the success of the network relies on individuals. The pur-pose, structures and functionality of networks need to be reviewed in order to achievea clearer direction.

A lack of time, money and the appropriate tools creates obvious constraints. Finan-cial constraints limit the number of meetings and peer support visits, human re-sources and communication channels. The Caribbean RODNET is one example.At one point, the members identified all the skills that were available in the regionand created a regional resource roster. Unfortunately, no funds have been availableto organize exchanges. Similarly, in ENDOV, it is difficult for new members to par-ticipate in the meetings without financial support.

In some cases, a National Society’s low awareness of the Volunteering Policy, the vol-unteer management cycle and other basic documents and systems prevents it fromtaking full advantage of networks and peer support mechanisms. Even in cases wherevolunteer networks exist, most of the information is redistributed through the Fed-eration secretariat. Although this allows useful practices and documents to be dis-seminated, better understanding could facilitate more direct exchange. Improvedmechanisms within National Societies for sharing knowledge acquired at interna-tional meetings could bring about this understanding. ■


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The member National Red Cross andRed Crescent Societies of the Federationand the Federation secretariat recognizeand value volunteering as a means of cre-ating and supporting a network of peo-ple who are available to work for aNational Society in an emergency. (Vol-unteering Policy, 4.1.2)

Red Cross and Red Crescent volunteersare at the heart of effective humanitarianassistance for millions made vulnerableby natural catastrophes, conflicts and‘silent’ crises, such as poverty and dis-ease. This unique global network oftrained and dedicated volunteers hasmade the Red Cross and Red Crescent aleading organization and the preferredpartner in disaster response. Volunteer-ing during emergencies continues, nev-ertheless, to challenge the managementand coordination capacity of NationalSocieties.

Most sudden onset disasters attract aninflux of people, from the neighbour-hood or abroad, volunteering their time,energy and knowledge. They may be vic-tims themselves. Spontaneous acts cansave, and cost, lives. As the World Dis-asters Report 2001 points out, sponta-neous help may not always be helpful,but ignoring it can lead to greater con-fusion and chaos.

In the Indian Ocean tsunami, the SouthAsia earthquake, Hurricanes Ivan andKatrina, the flooding in Britain in 2007,and numerous other sudden onset disas-ters around the world, thousands of vol-unteers came forward, eager to help.According to the International Federa-tion’s baseline survey, where 105 Na-tional Societies replied, around 1.3million volunteers participated in deliv-ering disaster preparedness and responseprogrammes and services in their coun-tries in 2005. In 2006, over 35,000 vol-unteers were directly engaged insupporting 430 emergency operations.They provided food, shelter, clean water,medical care and psychosocial support tosome 4.8 million people affected byfloods, earthquakes, storms, populationmovement, food insecurity, heatwavesand other types of emergency. These sto-ries of volunteer response are certainlynot without their challenges.

In order to manage volunteers during anemergency, it is necessary to be preparedand to ensure that all elements of thevolunteer management cycle are prop-erly observed before, during and after anemergency response.


5. Volunteering in emergencies

Following the adoption of the VolunteerPolicy in 1999, there have been a num-ber of initiatives and discussions aimedat getting the issue of volunteering inemergencies onto the agenda of Na-tional Society policy-makers and volun-teer managers. According to theWell-prepared National Society Self-As-sessment Report 2002–2004, 78 per centof National Societies recruit volunteersinto disaster preparedness and disasterresponse programmes, while 62 per centregularly test their volunteers. Recentdisaster response experiences haveshown improved practices in volunteermanagement. More needs to be done toeffectively manage volunteers as a po-tential resource during disasters. Recentreviews draw the attention of all Na-tional Societies to the close link betweenthe quality of emergency response andthe volunteering management systemsbefore, during and after a disaster. In ad-dition, developing and maintaining awell-functioning volunteering capacityrequires close cooperation and coordi-nation between various departmentsand partner organizations. Based on therecommendations of the report and theoutcomes of recent regional and globalvolunteering forums, a new compre-hensive volunteer management cycle foremergencies has been proposed.

Reinforcing volunteering developmentin general, and volunteering in emer-gencies in particular, optimizes thestrengths of our core volunteer base. Ina world of global challenges and in-creasing vulnerability to disasters anddiseases, this capacity is essential if weare to accomplish the International Fed-eration’s mission of empowering vulner-able communities to respond tosituations that compromise their livesand livelihoods. ■


What to do with the influxof walk-in volunteers?

In Pakistan, immediately after the 2005earthquake, the National Society was over-whelmed by spontaneous volunteers. Astaff member from the blood bank at theheadquarters had to assume the task ofmanaging newcomer volunteers. The soci-ety also had to draw on expertise from theBangladesh Red Crescent Society, giventhe lack of experienced volunteer man-agers in the disaster-affected area.

The American Red Cross disaster responsemechanism includes a volunteer recruit-ment system. In the event of a disaster, avolunteer intake centre will be set upquickly to handle spontaneous helpers. Thecentre is responsible for interviewing, plac-ing and training volunteers. The ArmenianRed Cross Society has a similar measureas part of its range of response tools.

How to avoid volunteer burn-out?

In Indonesia, Satgana – the Indonesian RedCross Society’s rapid response teams – areusually deployed for a maximum of tendays. Any extension has to be agreedbetween the volunteer and the NationalSociety. This makes it easier for volunteersto be released by their employers. Onelesson learnt from the Indian Oceantsunami was the need to providepsychological support to volunteers as wellas to survivors. This did not take placeduring the response, not even after weeksof collecting dead and decaying bodies. Insubsequent relief operations, IndonesianRed Cross volunteers are able to attenddebriefing sessions and are given long-term psychological support, as required.

What to do with volunteerswhen the emergency is over?

The Philippine National Red Cross presentsall volunteers with a certification letter con-firming their experience, skills, performanceand number of hours worked. At the end ofa recent cyclone response, the National So-ciety identified some volunteers to be ab-sorbed into a longer-term disaster-responsepreparedness project. The Sri Lanka RedCross Society’s new volunteer managementmanual also includes a section on volunteerretention and discontinuation after theemergency phase of a disaster.

Reimbursement, compensationor something else?

Reimbursement to volunteers rarely goesbeyond the ‘out-of-pocket’ expenses inoperations implemented by individualNational Societies. A high-profile operationwith massive external funding, however,may see this practice being changed andrisk undermining the true spirit ofvolunteerism. The initial per diem for SouthAsia earthquake volunteers was tripledduring the relief phase, and was latermulti-rated during the recovery phase.Many were salaried by Partner NationalSocieties but were still called volunteers.

Should affected volunteersbe treated as ordinarybeneficiaries?

National Societies in the Caribbean do notalways give their volunteers the same typeof support as others affected by disasters.This is to avoid being seen as self-supporting or abusing resources. Whilevolunteers subscribe to the volunteeringprinciple of no personal gain, they generallysee the need for coherent assistance whenthey are affected.

In Papua New Guinea, Red Crossvolunteers affected by disasters are treatedas ordinary beneficiaries.

The member National Red Cross andRed Crescent Societies of the Federationand the Federation secretariat are com-mitted to promoting volunteering as asignificant and positive contribution toimproving the lives of vulnerable peopleand to strengthening communities andcivil society. (Volunteering Policy, 4.1)

Strategy 2010 and the Federation of theFuture process recognize volunteering asan important contribution to the devel-opment of communities and NationalSocieties, and as fundamental to the In-ternational Federation’s own existence.The International Federation has re-sponded to humanitarian challenges inrecent years with a number of specificpolicies within the Strategy 2010 pro-gramming framework, all of which placepeople and volunteer action at the cen-tre. In addition to youth and gender,these policies apply across a range of hu-manitarian activities relevant to disasterpreparedness and response, recovery andrehabilitation, emergency health and de-velopment programmes such as com-munity health, HIV and AIDS, andsocial welfare projects.

Goal 3 of the Global Agenda is to increaselocal community, civil society and RedCross Red Crescent capacity to address themost urgent situations of vulnerability.This requires coordinated planning andcapacity-building efforts among all Move-ment components, and a network of localbranches and support structures to makethe most of the volunteers. Effective volun-teer and programme management enablesNational Societies to listen to the voices ofvolunteers and staff, harness their experi-ence and make them feel welcomed and in-volved at all levels of the InternationalFederation.

The Global Agenda goals reaffirm theInternational Federation’s commitmentto support the achievement of the UNMillennium Development Goals. TheInternational Conference of the RedCross and Red Crescent in 2007 under-pins four areas of challenge that theMovement must address:• environmental hazards, including cli-mate change

• migration• violence in communities• emergent and recurrent diseases, in-cluding HIV and AIDS

These challenges demand all govern-ments and other stakeholders to recog-nize the valuable contribution ofvolunteers in development work, as keybridges between communities, nationaland local authorities.

Clearly, volunteering is fundamental tomeeting the needs of vulnerable people.Volunteer management and develop-ment must, therefore, be integrated andclosely linked to National Societies’everyday programme and organizationaldevelopment.

Although Goal 3 of the Global Agenda isdirectly related to volunteer develop-ment, volunteering is also instrumentalin achieving the other three goals and infulfilling the International Federation’smission. ■


6. Volunteering in everyday programmes

The Federation strives, through volun-tary action, for a world of empoweredcommunities, better able to addresshuman suffering and crises with hope,respect for dignity and a concern forequity.

Fundamental to this is the idea that theFederation works with and not for vul-nerable communities. Our volunteers –our people – are our strength.

Goal 1: Reduce the number of deaths,injuries and impact from disasters.

Disaster preparedness and responseExtreme weather conditions bring more frequent and intense disasters. The poor, theelderly and the disabled are the most vulnerable. Disasters can destroy years of de-velopment work at a single stroke. Good preparedness, based on sustainable de-velopment at community level, does more to diminish the impact of disasters thanany response and recovery efforts. The priority here is to improve local, regional andinternational capacity to respond to disasters and public health emergencies.

In the Bangladesh Red Crescent Society’s cyclone preparedness programme itsnetwork of 33,000 trained volunteers advocates awareness of cyclone prepared-ness, disseminates warning signals and assists vulnerable communities in evacua-tion, first aid and relief. Climate change has prompted many National Societiesworldwide to focus on early warning systems, resistant housing, tree-planting andevacuation plans. There is also increasing cooperation and partnership with gov-ernments and other stakeholders in advocating for neglected humanitarian crisesat different levels.

Goal 2: Reduce the number of deaths, illnesses and impactfrom diseases and public health emergencies.

Health and careNo single element threatens a community’s sustainability more than the impact of dis-ease. The HIV epidemic and avian influenza are among a number of global healthcrises. The priority is to scale up actions with vulnerable communities in health pro-motion, disease prevention and disaster risk reduction. A global network of com-munity volunteers represents our added-value to address vulnerabilities throughauxiliary partnerships with health ministries and other agencies. The InternationalFederation’s global health and care strategy guides National Societies in recruitingand training volunteers to carry out simple but live-saving activities in the commu-nity, such as conveying health messages. For example, the Red Cross of Viet Nam’savian influenza prevention and preparedness initiatives have enabled its volunteersto distribute messages to 2.3 million people in the country. The International Feder-ation has recently initiated a new partnership with Professor Jeffrey Sachs, directorof The Earth Institute at Columbia University, and the UN Millennium Project, whichfocuses on community volunteers in addressing the village-level health gap in Africa.

Goal 4: Promote respect for diversity and human dignity,and reduce intolerance, discrimination and social exclusion.

Promoting the Fundamental Principles and humanitarian valuesIn a world with increasing isolation, tension and recourse to violence, it is clear thatNational Societies must champion the individual and community values, which en-courage respect for other human beings and a willingness to work together to findsolutions to community problems. The priority here is to renew advocacy on prior-ity humanitarian issues, especially when it comes to fighting intolerance, stigma anddiscrimination, and to promote disaster risk reduction. In this respect, southernAfrican Red Cross Societies have developed an intensive programme, using com-munity resources, volunteers and government support. It brings together preven-tion, community-based care for people living with HIV, and an advocacy campaignagainst stigma and discrimination. The programme aims to provide an environmentwhere even their children and family members can be supported and protected, andrealize their rights.


The management of volunteers is an es-sential issue for the International RedCross and Red Crescent Movement. TheFederation Volunteering Policy wasadopted in 1999. Since then, many stepshave been taken in the volunteering de-velopment efforts of National Societies.Volunteer management is increasinglybeing included in strategic plans, a recog-nition of the fact that it is seen as an im-portant area for the development ofNational Societies. Nevertheless, moreneeds to be done to improve and establishgood volunteer management systems.Furthermore, in order to have a completepicture of the current state of volunteer-ing within the Red Cross Red Crescent,there is an urgent need to collect solid sta-tiscal data on the number of volunteers.

A number of constantly changing exter-nal and internal factors influence themanagement of volunteers. This givesNational Societies a challenging scenarioto work with. A good volunteer manage-ment system in a National Society con-tributes to the effective implementationof programmes, better risk managementand better use of resources. The face ofvolunteerism is constantly evolving andvolunteering legislation is becoming in-creasingly important. Establishing vol-unteer-friendly environments both insideand outside National Societies con-tributes to the improved implementationof activities – thereby benefiting vulner-able people.

The InternationalFederation’s GlobalVolunteering DevelopmentThe International Federation plans to ad-dress the existing and future challengeshighlighted in this report through volun-teering development activities in the nextfour years, 2008–2011. This effort is de-signed to help National Societies providea favourable internal and external envi-ronment that encourages and facilitates

the work of volunteers, and that promotesvolunteerism across all sectors of society.

With this in mind, volunteering devel-opment may be considered a means ofproviding people with the possibility tomake a difference to their communityand to improve the lives of the most vul-nerable.

In 2008–2011, the planned volunteeringdevelopment aims to:• ensure and support National Societiesto adopt volunteer management sys-tems, procedures and practices in orderto better support and manage volun-teers

• develop and spread knowledge aboutvolunteering in emergencies

• promote, celebrate and recognize theachievements of volunteers

• advocate and work to establish volun-teer-friendly environments

Establishing good volunteermanagement systems inNational SocietiesMany National Societies have madeprogress to ensure good volunteer man-agement systems, procedures and prac-tices in order to better support andmanage volunteers. However, some Na-tional Societies still face challenges andneed support.

Knowledge-sharing and peer-to-peer sup-port – that is, an experienced volunteerdevelopment practitioner in one NationalSociety helping and supporting a col-league in another National Society – isone practical approach to support volun-teering development. The European Ref-erence Centre on Volunteering is anotherexample of regional knowledge-sharing.

The International Federation supportsvarious volunteering development initia-tives – connecting, training and support-ing people and National Societies with


7. Where do we go from here?

the same goals and challenges. Scaled-up support began in the Asia Pacific region,and experiences are now ready to be used elsewhere. Next to follow are Africa, and thenother regions.

Volunteering in emergenciesIn recent decades, many National Societies have developed their technical know-how in managing disaster responses. In the 2006 baseline survey, where 105 Na-tional Societies replied, around 1.3 million volunteers annually participated indelivering disaster preparedness and response programmes in their countries.

The management of volunteers before, during and after emergencies is a fundamentaltask for every National Society. The International Federation has begun work onsupporting the development and dissemination of good practice on how to achievethis, linking it to regular volunteer management practice.

Recognizing and celebratingthe achievements of volunteersThere are many untold volunteer stories. The achievements of volunteers are, veryoften, not recognized by people other than those who meet the volunteers as theycarry out their work. The Federation secretariat is supporting National Societies tospeak out and tell these stories, identifying and valuing the contribution of volun-teers. The Federation General Assembly Global Volunteer Award recognizes volun-teers. Another initiative is profiling volunteers on web sites. Increasingly, NationalSocieties are also developing their own awards and profiles.

We are just a few years away from the tenth anniversary of the 2001 InternationalYear of Volunteers, when it will be time to celebrate together with other organizationsand partners. The International Federation has already started preparing for this im-portant event.

Establishing volunteer-friendly environments in countriesVolunteering is an essential part of every society. Volunteering enables citizens to sig-nificantly contribute to the development of their local community. There is an in-creased awareness among governments about the importance of the legal frameworkin promoting and enabling volunteering, as a factor which impacts volunteering.Some countries have launched legislative reform initiatives.

The International Federation is working with partners such as United Nations Vol-unteers to encourage and support National Societies to work for the establishmentand adoption of legal frameworks that promote volunteerism. ■


Ellis, Susan J. ‘Tracking Volunteer Trends’ in Association Management, Volume 57,Issue 1, pp 72–75, January 2005.

Hadzi-Miceva, Katerina. ‘Comparative Analysis of the European Legal Systems andPractices Regarding Volunteering’ in The International Journal of Not-for-Profit Law,Volume 9, Issue 3. The International Center for Not-for-Profit Law, July 2007.

Institute for Volunteering Research. Volunteering for All? Exploring the link betweenvolunteering and social exclusion. Research Bulletin. Institute for Volunteering Re-search.

International Federation. Mid-term Review: Strategy 2010. Geneva: InternationalFederation, 2005.

International Federation. Report of the Volunteering in Emergencies Workshop inKuala Lumpur. International Federation, 2007.

International Federation. Report on volunteer management assessment in southernAfrica. International Federation, 2007.

International Federation. Strategy 2010. Geneva: International Federation, 1999.

International Federation. The Federation of the Future: Working together for a bettertomorrow. Geneva: International Federation, 2006.

International Federation. Volunteering project: status report. (First draft). Interna-tional Federation, 2000.

International Federation. Voluntary Service: Volunteer Management Cycle. Interna-tional Federation, 2004.

International Federation. Volunteer Investment and Value Audit. New Delhi:International Federation, 2005.

International Federation. Volunteering in Emergencies: a review of four emergency op-erations in Asia and Pacific. Kuala Lumpur: International Federation, 2007.

International Federation. Volunteering in South Asia and South East Asia. Interna-tional Federation, 2004.

International Federation.Volunteering Policy. International Federation, 1999.

International Federation. Volunteering Policy Implementation Guide. InternationalFederation, 2002.

International Federation. Well-prepared National Society Self-Assessment Report2002–2004. International Federation, 2005.

International Federation. Women volunteers in South Asia. New Delhi:International Federation, 2006.

International Federation.World Disasters Report 2001: focus on recovery. Geneva: In-ternational Federation, 2001.

International Federation, IPU, UNV. Volunteerism and legislation: a guidance note.International Federation, IPU, UNV, 2004.


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Merrill Associates. Five emerging patterns of volunteerism. 2005. Available athttp://www.merrillassociates.com/topic/2005/09/five-emerging-patterns-of-volunteerism

Merrill, Mary V. ‘Global Trends and the Challenges for Volunteering’in The Inter-national Journal of Volunteer Administration, Volume 24, Number 1, pp. 9–14, July2006.

Nelson, Taryn. A Comparative Look at National Volunteerism Legislation. Inter-Amer-ican Development Bank, 2005.

Patel, Leila, Perold, Helene, Mohamed, Salah Elzein and Carapinha, René. Five-Country Study on Service and Volunteering in Southern Africa. St. Louis, Missouri,USA: Center for Social Development, Washington University in St. Louis, 2007.

SIDA Civil Society Center. Future Leadership in Swedish Civil Society. Stockholm:Swedish International Development Cooperation Agency (SIDA), 2006.

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The FundamentalPrinciplesof the InternationalRed Cross and RedCrescent MovementHumanityThe International Red Cross and Red Crescent Movement, born ofa desire to bring assistance without discrimination to the woundedon the battlefield, endeavours, in its international and nationalcapacity, to prevent and alleviate human suffering wherever it maybe found. Its purpose is to protect life and health and to ensurerespect for the human being. It promotes mutual understanding,friendship, cooperation and lasting peace amongst all peoples.

ImpartialityIt makes no discrimination as to nationality, race, religious beliefs,class or political opinions. It endeavours to relieve the suffering ofindividuals, being guided solely by their needs, and to give priorityto the most urgent cases of distress.

NeutralityIn order to enjoy the confidence of all, the Movement may not takesides in hostilities or engage at any time in controversies of apolitical, racial, religious or ideological nature.

IndependenceThe Movement is independent. The National Societies, whileauxiliaries in the humanitarian services of their governments andsubject to the laws of their respective countries, must alwaysmaintain their autonomy so that they may be able at all times to actin accordance with the principles of the Movement.

Voluntary serviceIt is a voluntary relief movement not prompted in any manner bydesire for gain.

UnityThere can be only one Red Cross or Red Crescent Society in anyone country. It must be open to all. It must carry on itshumanitarian work throughout its territory.

UniversalityThe International Red Cross and Red Crescent Movement, inwhich all societies have equal status and share equal responsibilitiesand duties in helping each other, is worldwide.

The International Federationof Red Cross and Red CrescentSocieties promotes the humanitarianactivities of National Societies amongvulnerable people.

By coordinating internationaldisaster relief and encouragingdevelopment support it seeksto prevent and alleviatehuman suffering.

The International Federation,the National Societies andthe International Committeeof the Red Cross together constitutethe International Red Cross andRed Crescent Movement.

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