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Bureau of Justice Assistance U.S. Department of Justice
This project was supported by Grant No. 2008-DD-BX-0671 awarded by the Bureau of Justice Assistance. The Bureau of Justice Assistance is a component of the Office of Justice Programs, which also includes the Bureau of Justice Statistics, the National Institue of Justice, the Office of Juvenile Justice and Delinquency Prevention, and the Office for Victims of Crime. Points of view or opinions in this document are those of the author and do not represent the official position or policies of the United States Department of Justice.
Volunteer Programs
enhancing Public safety by leveraging resources
A Resource Guide for Law Enforcement Agencies
Volunteer Programs
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Enhancing Pulic Safety Table of Contents Acknowledgements Executive Summary
- Section 1: Introduction Part I: Establishing or Enhancing a Volunteer Program
- Section 2: The Current State of Volunteerism
- Section 3: Building Program Infrastructure
- Section 4: Recruitment
- Section: 5 Selection and Management
- Section 6: Training
- Section 7: Recognition
- Section 8: Assessment
- Section 9: Organizations and Resources
- Benicia, California, Police Department Part II: Profiles of Volunteer Programs
- Delray Beach, Florida, Police Department
- Richardson, TX, Police Department
- Denver, Colorado, Police Department
- Eugene, Orgeon, Police Department
- Pasadena, California, Police Department
- Long Beach, California, Police Department
- Anaheim, California, Police Department
- Los Angeles County, California, Sheriff’s Department
- Clearwater, Florida, Police Department
- Palm Beach, Florida, Police Department
- Independence, Missouri, Police Department
- Billings, Montana, Police Department
- Rochester, New York, Police Department
- Westerville, Ohio, Police Department
- York, Pennsylvania, Police Department
- Abington Township, Pennsylvania, Police Department
- Leesburg, Virginia, Police Department
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Executive Summary
The demands on law enforcement have never been greater than they are today. In the post-September 11 world, agencies are struggling to protect their communities from the threat of global terrorism. Law enforcement faces increasingly sophisticated challenges from computer crime, identity theft, narcotics trafficking, and other crimes. All these efforts take place against a backdrop of shrinking budgets and limited resources.
Yet there is one thing law enforcement agencies can do to leverage existing resources and at the same time enhance public safety. Volunteer programs allow agencies and officers to focus on policing and enforcement functions by providing supplemental and/or support services. At the same time, such programs create valuable ties between law enforcement and members of the community.
Volunteer Programs: Enhancing Public Safety by Leveraging Resources is a resource guide for chiefs of police, sheriffs, and other executives of state or local law enforcement agencies interested in establishing or enhanc- ing volunteer programs within their agencies. The guide is a product of the Volunteers in Police Service (VIPS) Program, which is managed and implemented by the International Association of Chiefs of Police (IACP) in partnership with, and on behalf of, Serve.gov and the Bureau of Justice Assistance, U.S. Department of Justice. VIPS is one of five Citizen Corps programs. Information about Citizen Corps appears in section 9 of this guide.
The materials in this guide are based on information gathered through the VIPS program Web site, site visits, surveys, and numerous conversations with law enforcement executives, volunteer coordinators, and volunteers throughout the United States.
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The guide is divided into two main parts.
Part I, Establishing or Enhancing a Volunteer Program, contains nine sections.
Section 1, Introduction, describes the benefits of using volunteers in law enforcement agencies and reviews the history and purpose of the VIPS Program. Section 2, The Current State of Volunteerism, examines the state of volunteerism in the United States, the value of volunteer time, and the results of a VIPS analysis about volunteerism in law enforcement. Section 3, Building Program Infrastructure, details the roles volunteers can perform within law enforcement agencies; the costs associated with establishing and maintaining a law enforcement volunteer program; budgeting, funding, and liability issues; and the development of relevant policies and procedures. Section 4, Recruitment , outlines ways to attract volunteers, including internal and external recruitment, mass media, the Internet, and existing volunteer resources within the community. Section 5, Selection and Management, provides information about volunteer screening, selection, and placement. This section also addresses volunteer supervision and management issues. Section 6, Training, contains information about orienting and training new volunteers, providing ongoing training, and integrating volunteers into an agency. Section 7, Recognition of Volunteers, addresses recognizing volunteer programs and individual volun teers. It contains information about federal, state, and local recognition opportunities. Section 8, Assessment, outlines different approaches for assessing a volunteer program and the benefits of each. This section also contains information about evaluating volunteer performance. Section 9, Organizations and Resources, profiles several organizations and programs referenced within the resource guide. It also contains a list of additional resources and a reading list.
Part II, Profiles of Volunteer Programs, describes the specific components of 18 separate law enforcement volunteer programs. Many of these programs are multifaceted; the highlighted information is only one com- ponent of many within the programs. For more information, contact the person listed or consult the agency’s program description at www.policevolunteers.org.
Volunteer Programs: Enhancing Public Safety by Leveraging Resources provides practical information that can help law enforcement executives launch or expand volunteer programs. The key points of relevant sections are highlighted to provide quick reference points. It is hoped that this information will improve the ability of law enforcement agencies to meet future challenges while forging new alliances with the communities they serve.
Introduction
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Section 1: Introduction
Benefits of Using Volunteers
While law enforcement agencies are designed and staffed to maximize services to the community, there is always more to do. Consequently, and as a result of recent economic strife, agencies are experiencing an increased workload in a resource-constrained environment. More than ever volunteerism has become a need and not a luxury.
Maximizing Resources By providing supplemental and/or support services, volunteers allow law enforcement agencies and officers to focus on policing and enforcement functions. Investing in a volunteer program can help law enforcement agen- cies fulfill their primary functions and provide services that may not otherwise be offered. The financial return on investment of a volunteer program can be substantial, amounting to millions of dollars.
Enhancing Public Safety and Services Volunteers provide services that the public wants but that sworn or civilian staff may not have the time to fur- nish. These services may include fingerprinting children, patrolling shopping centers, checking on homebound residents, or checking the security of vacationing residents’ homes. Additionally, volunteers participating in non-hazardous, non-enforcement activities such as citizen patrols or Neighborhood Watch programs can func- tion as extra sets of eyes and ears.
Improving Community Buy-in Volunteers can also enhance law enforcement-community relations. A community member who volunteers with a local law enforcement agency will have a better understanding of that agency and law enforcement as a whole. Volunteers can serve as well informed ambassadors in your community and will have credibility within the community as they are supporting law enforcement without monetary compensation.
Origin of the Volunteers in Police Service (VIPS) Program
The VIPS Program has its roots in the USA Freedom Corps (USAFC) initiative which followed the September 11 attacks. Citizen Corps was created in 2002 to help coordinate volunteer activities to make communities safer, stronger, and better prepared to respond to any emergency situation. It provides opportunities for people to participate in a range of measures to make their families, their homes, and their communities safer from the threat of crime, terrorism, and disasters of all kinds.
Citizen Corps partner programs build on the successful efforts that are in place in many communities around the country to prevent crime and respond to emergencies. Volunteers in Police Service (VIPS) is one of five Citizen Corps partner programs. The International Association of Chiefs of Police (IACP) manages the VIPS Program in partnership with the Bureau of Justice Assistance, Office of Justice Programs, U.S. Department of Justice.
Refer to Section 9 for contact information and descriptions of these organizations.
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- Five educational videos covering such topics as program implementation and incorporating youth in law enforcement volunteerism;
- CD-ROM on Supporting Law Enforcement Volunteer Efforts: Resources to Enhance Public Safety;
- VIPS Info, a monthly electronic newsletter that provides news and lists events about law enforcement volunteer activities around the country;
- VIPS Stories, a section of the VIPS Web site recognizing VIPS law enforcement volunteer programs that have recently been in the news and cross-linking them to their respective program pages; and
- VIPS to VIPS, a moderated online discussion group for law enforcement volunteer program leaders to share information and ideas.
How to Get Involved With VIPS?
To register as a VIPS program, volunteers must work directly with a state, local, or tribal law enforcement agency through an in-house volunteer program or one operating in concert with a law enforcement agency, such as a Citizens Police Academy Alumni Association (CPAA) or a Retired and Senior Volunteer Program (RSVP). Register online at www.policevolunteers.org. As a registered VIPS program, your agency will be a part of more than 1,950 volunteer programs representing all 50 states with more than 224,000 volunteers.
The Current State of
Volunteerism
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Edward M. Kennedy Serve America Act
Signed by President Barack Obama on April 21, 2009, the Serve America Act reauthorizes and expands national service programs administered by the Corporation for National and Community Service. The Act will strengthen America’s civic infrastructure through social innovation, volunteer mobilization, and building nonprofit capacity. It will also provide opportunities for Americans for all ages to volunteer. The new law is designed to strengthen the management, cost-effectiveness and accountability of national service programs by increasing flexibility, consolidating funding streams, and introducing more competition.
2009 Analysis of Registered VIPS Programs
In spring 2009, an analysis of registered VIPS progrmas was conducted. The information below provides a snapshot of law enforcement volunteerism.
Experience with volunteers varied significantly:
- 72 percent of law enforcement agencies have had volunteers for more than seven years.
- The total number of volunteers ranged from two to more than 8,000.
- The total number of volunteer hours contributed in the previous year ranged from 1 to 70,000.
Agencies were asked about the structure and management of their volunteer programs:
- 97 percent said they have a volunteer program manager or coordinator. Of these agencies, 50 per cent said their managers were sworn employees.
- 55 percent said they coordinate Neighborhood Watch activities in their jurisdictions.
- 40 percent said they coordinated with an external program such as a Citizen Corps council, a Retired and Senior Volunteer Program, or a volunteer center to recruit volunteers.
Respondents were asked to rate the importance of various factors referred to below. The following percentages of respondents indicated that the described factor was “important” or “very important:”
- 94 percent cited value added to the department.
- 92 percent cited the ability for officers to respond to more pressing needs.
- 85 percent cited enhancing citizen understanding of the police.
- 90 percent cited the ability to provide additional services.
- 81 percent cited liability concerns.
- 81 percent cited confidentiality concerns.
- 66 percent cited turnover of volunteers.
- 63 percent cited cost to administer the volunteer program.
- 63 percent cited required training expenses.
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Also of note:
- 97 percent of agencies perform a records check on potential volunteers.
- 94 percent of agencies do not accept individuals with felony convictions.
- 89 percent of agencies require volunteers to undergo orientation and/or training.
- 88 percent have written rules and regulations governing volunteer activities.
- 88 percent require an interview before acceptance into the volunteer program.
- 88 percent require some or all of their volunteers to wear uniforms
- 56 percent provide some type of insurance coverage for volunteers.
- 30 percent formally evaluate volunteers.
- 26 percent provide volunteers with non-monetary benefits, services or incentives, such as training.
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Section 3: Building Program Infrastructure
KEY POINTS
- To begin the process of creating a volunteer program it is necessary to assess the needs of the agency.
- Before identifying the activities and/or functions that can be fulfilled by a volunteer it is crucial to involve labor groups as well as all sworn and civilian employees.
- While volunteer programs cost money to maintain, the return on investment can be substantial.
- The main sources of funding for law enforcement volunteer programs are grants, donations, and fundraising.
- Law enforcement agencies should contact their local government attorney to determine liability coverage for volunteers.
Agency and Community Characteristics
The characteristics of your agency and community will influence the need for, the acceptance of, and the avail- ability of volunteers. You may consider including community members or organizations in the program develop- ment process. Factors to consider include agency size, community size, citizen demographics, and the presence of higher education institutions, philanthropic organizations, and tourist destinations.
Building Staff Support
As discussed previously, your volunteer program will not reach its full potential without the support of paid employees, sworn and civilian. Support for the volunteer program begins with the top executive and filters down through the agency. This buy-in is absolutely essential to maintaining a successful program.
You may choose to have a program advisory or governing board that includes sworn and civilian employees. The agency employees should make volunteers feel welcome and appreciated. This process will not occur overnight. It will take time for the staff to fully respect, trust, and utilize the volunteers.
One of the challenges facing law enforcement agencies with volunteer programs is a misunderstanding of the purpose of a volunteer program. Often, employees are not aware of programs or of the ways volunteers can and do assist them. One way to address this challenge is to provide information about volunteer programs to cadets while they are still in the academy. The message can be reinforced through in-service training and roll call. In time, staff will learn to appreciate the contributions of agency volunteers.
Addressing Employee Concerns
Agencies must involve labor groups, officers, and civilian employees in the identification of activities and/or functions that can be performed by volunteers. Involving these groups from the beginning will help convey the message that volunteers are there to assist paid staff. It will also enable volunteers to better perform the duties for which they are trained.
The Las Vegas Metropolitan Police Department offers a volunteer-based
Visitor Information/Visitor Assistance
Program in frequently visited parts of the city.
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Needs Assessment
The first step in establishing a volunteer program is to assess the needs of the agency. These needs may include supplemental duties that sworn employees do not have the time or manpower to perform. Sample needs assessments appear in the VIPS resource library available at www.policevolunteers.org. The purpose of a law enforcement volunteer program is to supplement and support, not supplant current agency employees. If you replace a paid employee with a volunteer, as some agencies have in the past, you may end up with a staff that does not welcome volunteers and volunteers who do not feel valued. Another aspect of this assessment process is determining the mission, goals, and objectives of the volunteer program.
Position Descriptions
Comprehensive position descriptions detailing the duties and expectations of specific volunteer positions are necessary for the operation of a successful program. Such descriptions can be helpful in screening potential volunteers, as those not suited for certain positions may self-select out of the process or seek more appropri- ate roles within the agency. Position descriptions are also valuable during volunteers’ evaluation processes, since they can be used to determine whether volunteers are meeting department expectations. Like policies and planning documents, the position descriptions should be periodically reviewed to ensure that they are accurate. Sample position descriptions are available in the VIPS resource library available at www.policevolunteers.org.
Volunteer Activities
The VIPS Program defines a volunteer as someone who performs service for the department without promise, expectation, or receipt of compensation for services rendered. Volunteers may include unpaid chaplains, unpaid reserve officers, interns, persons providing administrative support, and youth involved in a Law Enforcement Explorer Post. If your agency has at least one person who fits this description, the VIPS Program considers you to have a volunteer program. Volunteers in law enforcement agencies perform a wide array of functions. A partial list follows.
Administrative Duties
- Enter data
- Type reports, file, answer phones, and perform other office tasks
- Help front counter personnel by answering citizen inquiries, directing visitors, and performing routine administrative tasks
- Help telephone reporting units take reports of minor and “no suspect” crimes
Citizen Patrols
- Read parking meters
- Provide bike patrols in community parks
- Patrol shopping centers during the holiday season to assist stranded motorists or lost children
- Write citations for violations of handicapped parking restrictions
- Participate in marine patrols
- Provide home vacation checks
- Provide visual deterrent
- Conduct traffic surveys
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Volunteers with special skills can serve in numerous ways:
- Counselors can provide support to victims of crime and assist with crisis intervention
- Mechanics can help maintain police vehicles
- Faith leaders can become involved in chaplain programs
- Public health officials can develop public safety plans and train for biohazard management
- Architects, landscapers, and building engineers can suggest ways community centers can improve or modify buildings and landscape designs to prevent or reduce crime
- Security specialists can conduct free security reviews for local schools, after-school programs, or places of worship
- Public relations professionals can design public safety campaigns and supporting materials
- Bilingual volunteers can assist with translation services
- Computer programmers can help develop or improve Web sites and record management systems
- Persons with state approved training can become reserve or auxiliary officers
Developing Program Policies and Procedures Before establishing a volunteer program, you must develop operational guidelines and policies about the gover- nance and function of the program. Having a set of policies provides the structure to manage the program equitably and can prevent future problems.
Specific policies to consider include the following:
- Confidentiality
- Time requirements
- Training requirements
- Use of equipment
- Uniforms
- Background checks
- Termination
Agencies also need to make volunteers aware of agency policies and procedures they must follow. For example, volunteers should be instructed on how to deal with representatives of the media while on duty.
The National Law Enforcement Policy Center, a collaborative project between the IACP and BJA, offers a model policy on volunteers. The model policy and other sample policies are available in the VIPS resource library at www.policevolunteers.org.
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Liability Liability concerns are common when implementing a volunteer program in a law enforcement agency. The applicable liability laws vary by state. Many state legislatures have passed “Good Samaritan laws” or other legislation that defines in what instances organizations and volunteers are legally protected from liability is- sues. A collection of state liability laws developed by the Nonprofit Risk Management Center can be downloaded from the VIPS resource library, and the organization’s contact information is available in section 9.
Consult with your local government attorney or state point of contact to determine what coverage may be pro- vided. Other departments within the government (e.g., parks and recreation) may use volunteers, and a policy may already exist. Some agencies classify their volunteers as unpaid employees or pay their volunteers $1 a year in order to provide coverage.
Agencies unable to provide liability insurance typically require their volunteers to sign a waiver. Again, consult your local government attorney when drafting such a waiver. Volunteers must be made aware of their personal liability and worker’s compensation coverage and eligibility.
Liability coverage is available for Law Enforcement Explorers under the Learning for Life Program. More infor- mation can be found at www.learningforlife.org/exploring/index.html.
Some agencies have partnered with their local RSVP Program, since participants are eligible for accident and liability coverage through their RSVP-sponsoring agency at no cost. Additional information about the RSVP Program appears in sections 4 and 9.
Reducing Liability Concerns Clearly outlining your department’s policy on volunteers is a fundamental step toward reducing your risk. Furthermore, volunteers need to be aware of any risks involved and what coverage, if any, they should expect. Having written volunteer job descriptions will also assist with communicating expectations and give volunteers an idea of what level of risk their jobs may entail.
The screening process is critical to identifying qualified volunteers. The level of screening will depend on the type of activity performed. The VIPS Web site includes a resource library of sample forms, policies, and proce- dures, including several sample liability and medical waiver forms. Refer to section 5 for more information on screening.
Incorporating a regular review of policy and procedures helps to pinpoint areas that may or may not be working well, and allows for policies to be updated in a timely manner.
