THE CAREER/VOLUNTEER RELATIONSHIP
BY THOMAS M. SULLIVAN
We hear quite a lot about the wildland interface/intermix in the fire service; however, there is another interface/intermix that we hear very little about: the career/volunteer relationship. Let`s face it, in some fire departments, careers and volunteers hate each other. Of course, this is not always the case, but we rarely hear about the departments in which the two groups get along. I am sure such departments are out there, but when combination departments are formed, we usually only hear about the problems. Conflicts between career and volunteer firefighters are like dealing with an old, eccentric relative–everyone is aware of the situation but nobody wants to talk about it.
This article addresses the addition of full-time firefighters to previously all-volunteer departments in a way that will work. In traditional departments, this can be a painful process. But there are ways to make a newly formed combination department work. Analyzing and discussing this unique relationship of employees will help you learn from successful programs.
THE CHANGING DYNAMICS OF THE FIRE SERVICE
First, you must recognize that society has changed, and the fire service has changed with it. Volunteer firefighters have been providing one of our nation`s most important public services for more than 200 years. However, even the best volunteer companies are facing problems of attrition, daytime availability, training certification requirements, and a tremendous increase in nuisance-type calls.
Attempts to recruit new firefighters in many areas have been minimally successful. Many parents are struggling to make ends meet with both parents working, some with two jobs. Most people today struggle with competing interests, with precious little time to spend on community activities and hobbies. The amount of time available to devote to the fire service is very limited. Instead of denying that this is almost universally true, we should just acknowledge it and be grateful for the time that firefighters are able to give to our organizations.
THE SOLUTION: A COMBINATION DEPARTMENT
How can we help maintain the volunteer system? One way to relieve some of the burden on the volunteers is to hire a core of career firefighters who, if properly selected, trained, and managed, can provide a myriad of services to a volunteer fire company, including not only emergency response but support duties as well. Such an arrangement relieves the volunteer of time-consuming staff functions, leaving time for training and response to potentially serious, nonnuisance-type incidents.
Implementing such a system has its costs, of course. The investment that a community makes should be based on current and future levels of service offered, community development projections, available financial support, and–most importantly–community desires and expectations.
Where does this leave the volunteer and career firefighters? Sharing space, goals, and expectations and fighting for the nozzle.
As fire service managers, we are obli-gated to make a newly formed combination department work for the sake of our customers and our personnel. Changing to a combination department, even if the organization remains primarily a volunteer-type department, is a major change. Such a change can be threatening to people`s positions within the hierarchy and cause significant stress among those who prefer the status quo. It is essential that such change be preceded by careful, deliberate planning. It is important to identify key players, including informal leaders, who may affect the success or failure of a major change, and include them in the planning process. Don`t underestimate the ability of those who feel excluded to damage or delay a major organizational change.
The planning process takes time. It is imperative that carefully thought-out polices and procedures be developed. There must be an organizational agreement or philosophy that guides procedure development. A good place to start when questions arise is the mission statement. By insisting on using the mission statement as a roadmap, you can avoid individual agendas that may not be productive.
HAVE WRITTEN POLICIES AND PROCEDURES
Problems frequently arise in predominantly volunteer departments when duties, position descriptions, policies, and procedures are not spelled out in writing. Conflicts arise when it is unclear to whom career firefighters should report when not engaged in an emergency activity. As a result, line and administrative officers may try to exert authority over career staff. It is impossible to please multiple bosses. Also, following annual elections, a changing of the guard may occur. In some departments, a change in the quality of the leadership may decline, literally overnight. Without written policies and procedures, the career members are left in an intolerable position.
Reporting procedures. In addition to the printed documents necessary to effectively manage a combination department, many organizations have found that placing career firefighters under the jurisdiction of volunteer officers creates frustration, inefficiency, and low morale. Some jurisdictions avoid this by placing career members under the day-to-day control of a full-time municipal fire marshal. When an emergency occurs, they revert to the normal chain of command of the volunteer chief and line officers. This arrangement greatly improves the productivity and professionalism of the full-time members. These members are an extension of the fire marshal, conducting inspections and preparing preincident plans–a far more effective use of their time. Departments without such an arrangement often have their career members spend the day cleaning, washing, and shining. This is not the way to recruit and retain highly qualified firefighters.
Disciplinary procedures. Having the career members report to one person, also a full-time fire official, helps avoid the pitfalls of unfair or inappropriate discipline. While it is important to set a standard where all firefighters are treated as equals, discipline and punishment must be handled extremely carefully. Violations of written procedures by volunteer and career members should result in progressive disciplinary steps. However, depriving an individual of livelihood is a far more serious punishment than temporarily depriving a person of volunteerism. Volunteers will sometimes argue that receiving a suspension for a violation when a full-time member may not is unfair. However, it is unfair to subject a person (and his family) to losing income without a great deal of thought. Again, this is why written standards are important. Protecting all members against the whim of everchanging officers and boards is an important management function.
As an element of the written procedures manual, we distribute a description of the proper standard of conduct. Describe positive ways to comply with the standard. This is more productive than a long laundry list of negative statements. There is a need to specify what conduct will and will not be tolerated and what the results of noncompliance will be. Equal enforcement of the rule is important, but the actual penalty may have to be adjusted depending on a member`s employment status within the organization.
Training. Team cohesiveness is an essential element of an effective combination department. An avenue to successful team building is regularly scheduled joint training sessions. This may mean encouraging volunteers to meet their training requirements during the daytime when the career staff drills. Using standard evaluations, drilling together develops mutual respect, teamwork, and improved performance. Of course, the training program must be a quality program based on performance standards.
Occasional realistic scenario-based training also improves performance in critical skills and enhances the job satisfaction of all members. Such exercises require a great deal of preparation. Using career staff to handle the logistics of setting up the scenario-based training makes good sense and relieves the volunteer training officers of the pressure of planning quality drills week after week.
Communication. Finally, no newly converted combination department will work to its optimum potential without effective communication. Information must flow in all directions within the organizational structure. Organizations undergoing significant changes can be subject to rumors and misinformation. Just as on the fire scene, issuing progress reports, both verbal and written, helps to clarify and inform everyone involved. Surprises are not helpful. Each organization must develop its own format for disseminating information.
Initially, during the planning and implementation phase, the information should consist of what will take place, the projected timetable, and the impact organizational change will have on the members. Reassure personnel of their positions and value. Discuss how the changes will help the organization as it seeks to fulfill its mission to the community. Post progress reports on the bulletin board immediately following planning meetings.
Once the organization is functioning as a combination department, the nature of the data needs to change. The communications become less philosophical and more specific. It becomes a challenge to develop or receive information and make sure the data are provided to those who need to know. A core of career personnel can almost become an essential information resource for the volunteers.
My department struggled with this issue. Volunteer officers needed to know in advance when the career staff would be taking days off so they could make alternate plans. Also, information on the scheduling of apparatus to be taken out of service, hose tests, and so on, needed to be passed on. We developed a “roll call” form that lists on a weekly and daily basis who will be working and what activities are planned. In addition, all streets closed, hydrants out of service, training sessions, and even the weather forecast are listed. This form is faxed to the fire marshal, both stations, and any line officer who requests it. The form is posted in the radio room, and officers can also call in for information. This has proven to be one successful method for assisting in the daily planning process.
MAKING IT WORK
Although no one can look into a crystal ball to determine the future of the fire service, it is obvious that the volunteer fire service is an economic necessity and hopefully will continue to be a significant part of our communities` safety. However, in many sections of the country, it may never be the way it was. A core of career personnel may be needed to supplement daytime protection and to handle a myriad of other services the public expects.
If your community decides the time has come to provide some career personnel to assist the volunteer force, it is important to plan and implement such a change carefully, include major players, monitor progress, and do not be afraid to make adjustments. To advance as an institution and a profession, we need to constantly strive to find ways to improve the service we provide to our communities. With an open mind, written procedures, training, flexible discipline, and open communication, combination departments can work. n
THOMAS M. SULLIVAN, CFPS, CEM, is the director of emergency services/chief fire officer of Upper Moreland Township, Pennsylvania. He has an M.S. in public safety from Saint Joseph`s University and is a graduate of the National Fire Academy`s Executive Fire Officer Program. Sullivan is also an adjunct faculty member at the Montgomery County Community College.
