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Volunteering EnglandGeorgina Brewis & Anjelica FinneganPublished online: 31 Jan 2012.

To cite this article: Georgina Brewis & Anjelica Finnegan (2012) Volunteering England,Contemporary British History, 26:1, 119-128, DOI: 10.1080/13619462.2012.654967

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Archival Review

Volunteering EnglandGeorgina Brewis & Anjelica Finnegan

This article offers an introduction to the contents of the Volunteering England archive

housed at the London School of Economics and Political Science. The archive documents40 years of volunteering history in the UK from the Aves Commission (1966–1969) to the

Commission on the Future of Volunteering (2008). Volunteering England is the nationaldevelopment agency for volunteering and was created from a merger of threeorganisations in 2004: the Consortium on Opportunities for Volunteering, the National

Centre for Volunteering and Volunteer Development England. A fourth organisation,Student Volunteering England, merged with Volunteering England in 2007. The archive,

consisting of publications, reports and correspondence inherited from these mergers, offersunique insight into the development of volunteering in the UK and particularly into the

relationship between government and the voluntary sector, the professionalisation ofvolunteering and developments in volunteering infrastructure.

Keywords: Volunteers; Volunteering; Voluntary Sector; Third Sector; Students

Introduction

In March 2011, the charity Volunteering England was one of the 17 voluntary sectororganisations to receive a grant from the Office for Civil Society’s strategic partnershipprogramme. Although representing a sharp decline from the 2008 funding round, this

marked 40 years of UK government support for specialist volunteering infrastructure,since the establishment of the Voluntary Services Unit (VSU) at the Home Office during

the Heath government of 1970–1974. Although the previous Labour administrationhad a small coordinating unit for the voluntary sector based in the Cabinet Office, the

ISSN 1361-9462 (print)/ISSN 1743-7997 (online)/12/010119-10

q 2012 Taylor & Francis

http://dx.doi.org/10.1080/13619462.2012.654967

Georgina Brewis is a post-doctoral researcher at the Institute of Education, University of London. Anjelica

Finnegan is Post Graduate Research Student at the University of Southampton. Correspondence to: A. Finnegan,

Graduate Research Office, Building 58, University of Southampton, University Road, Southampton, SO17 1BJ,

UK. Email: a.s.finnegan@soton.ac.uk

Contemporary British History

Vol. 26, No. 1, March 2012, pp. 119–128

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appointment of Lord Windlesham as Minister of State in 1972 with responsibility for‘co-ordinating the government’s interests in the field of voluntary social services’ was an

important—if largely symbolic—step.1 The Voluntary Social Services Section, as it wascalled, had only a junior minister and no budget, but was able to administer Home

Office grants to help establish the Volunteer Centre and to develop the local volunteerbureaux network through the National Council for Social Service (now the National

Council for Voluntary Organisations). Both such schemes were recommendations ofthe report of the Aves Commission on the place of volunteers in the social services, and

both were key milestones for the development of a specialist volunteering infrastructurein the UK. The Voluntary Social Services Section was remodelled into the VSU with itsown budget and, for a brief moment, a cabinet minister, and the broad aim of helping

voluntary organisations operate more effectively.This relatively little-known history can now be explored through an archive recently

deposited at the London School of Economics—the Volunteering Englandcollection—the contents of which date from the establishment of the Aves

Commission in 1966. The archive includes materials relating to VolunteeringEngland’s predecessor organisations: the National Centre for Volunteering/Volunteer

Centre UK; the Consortium on Opportunities for Volunteering; VolunteerDevelopment England/National Association of Volunteer Bureaux (NAVB) andStudent Community Action Development Unit/Student Volunteering England.

The Value of the Archive

The opening of this important collection comes at a crucial time in our understandingof voluntary action. Although there has been a resurgence of interest in charity and

voluntary organisations since the 1980s, only recently have historians begun to lookseriously at volunteering as a phenomenon, as distinct to the ‘voluntary sector’.Brian Harrison identifies ‘the vitality of voluntarism’ as one of five recurring themes

cutting across his account of post-war British history.2 Furthermore, James McKay andMatthew Hilton argue for the study of what they call ‘NGOs’ and the volunteers and

activists they involve to be taken more seriously by historians of post-war Britishpolitics.3 Studies by a new generation of academics and PhD students are starting to

build up a picture of a more diverse, dynamic volunteering movement than has beenpreviously recognised.

The Growth of a ‘Volunteering Infrastructure’ in the UK: The Aves Commission

In 1966, an independent commission on the place of and scope for volunteers in the

social services in England and Wales was set up by the National Council of SocialService (NCSS) and the National Institute of Social Work Training (NISWT).

The commission, chaired by former UN advisor Geraldine Aves, represents a significantmoment in the development of a specialist infrastructure to support volunteers and

volunteering at both local and national level. The NCSS had since 1919 provided

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support and advice to voluntary workers—and the organisations which involvedthem—while the role of volunteers in relation to state welfare services had been the

subject of a number of reports and research studies, including William Beveridge’sVoluntary Action (1948) and the less well-known enquiry into voluntary service and the

health services sponsored by NCSS and the King Edward’s Hospital Fund (1952).4

Moreover, in order to better direct potential volunteers, in the early 1960s government

sponsored the publication of a guide to voluntary service at home and in 1962 createda new programme for graduate volunteers overseas.5 However, by the late 1960s,

demand was growing for a specialist national centre to promote and support theconcept of volunteering as well as for the creation of organisations to help recruit andplace volunteers at local level. The first section of the Volunteering England archive

includes evidence collected for the Aves commission, such as comprehensive surveys ofvolunteers in Manchester and Liverpool,6 completed questionnaires, draft versions of

the report, and papers of the NISWT.

The Volunteer Centre

The Aves Report, published in 1969, recommended the establishment of a new national,

independent membership organisation or ‘Volunteer Foundation’. Aves called for anysuch organisation to be funded by a ‘generous initial grant from public funds’.7 In 1971,

a promotional group was set up, under the Chairmanship of Lady Serota, to lobby forand negotiate with the Heath government and other charitable trusts for funding.

The establishment of the Volunteer Centre was announced at the end of 1972 and thenew centre’s governing body met for the first time in January 1973. Geraldine Avesbecame a founder member of its Board of Governors and, from 1974, its Vice-President.

The Centre’s work started in earnest in September 1973 with Mike Thomas as its firstDirector. Thomas resigned in September 1974 and was replaced by Ian Bruce, who was

responsible for putting the Volunteer Centre’s work on a firm footing. The archivedocuments such events in a full set of minutes from the Volunteer Centre along with

research findings, good practice guides and working papers.The collection allows new insights to be made into the troubled relationship between

government and the voluntary sector during a period of political and economic unrestin the 1970s. One of the first tasks of the Volunteer Centre was to prepare a series ofguidelines governing the relationship between paid workers and volunteers in welfare

state services.8 Volunteers had historically been viewed as potential threats to both levelsof pay and absolute number of jobs, especially during periods of economic stagnation.

This turbulent relationship was put under increasing strain by the growing number ofvolunteers in the health and personal social services and the subsequent expansion of a

new profession of voluntary service managers (up from 14 in 1967 to 200 in 1973), asrecommended by both the Aves and Seebohm Reports.9 Under the chairmanship of

Geoffrey Drain from the National Association of Local Government Officers,representatives of public sector unions and volunteer—involving organisations were

brought together to draw up an agreement on the use of volunteer labour during public

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service strikes. The Drain guidelines, issued in 1975, condemned the use of volunteers inindustrial disputes. The collection includes papers of the commission, including

correspondence between government and the Volunteer Centre regarding the use ofvolunteers as strike-breakers in the 1970s and 1980s.10 To illustrate, in response to the

Prime Minister’s broadcast in February 1979 on volunteers as strike-breakers, theDirector of the Volunteer Centre noted:

Generalised calls for volunteers even from the Prime Minister are not helpful tovoluntary organisations and those responsible for organising volunteers . . . the keyissue is to know when volunteers can actively help patients rather than through theirvoluntary service inadvertently escalate an already tense situation. These questions canonly be answered locally by those directly involved such as health service management,the voluntary service organisers employed by the NHS and local voluntaryorganisations who have already been given guidance by their national HQ.11

Letters in the archive from MPs including Ian Lloyd and Nicholas Ridley highlight theresponse of the Conservative government to the Volunteer Centre’s continued

circulation and support of the Drain guidelines. Particular issue was taken withguidelines numbers 7 and 8. Guideline 7 instructed that ‘volunteers in the situation of

industrial action should undertake no more voluntary work than they would do inthe normal situation’, and number 8 advised volunteers not to cross picket lines in the

event of trade union non-cooperation.12 Iain Lloyd MP noted that ‘everyone has theright to cross a picket line . . . and this applies equally to volunteers’.13 Ridley suggested:

It would seem to me that you should circulate Members of Parliament with anamended leaflet suggesting to volunteers what their rights are and asking them toexercise them rather than being a pawn of union power.14

Despite government discontent, the guidelines were well received amongst voluntaryservice co-ordinators during the 1979 industrial strikes, when 80% reported that they

found them helpful.15 The early 1980s saw continued tensions between trade unionsand volunteers, as government encouraged volunteers to replace unskilled workers in

the public services. Revised in 1990, the influence of the Drain guidelines on successivegovernments is hard to detect, but they informed volunteering practice until 2006,

when Volunteering England worked to update and replace them, in cooperation withthe Trade Union Congress (TUC), Local Government Association and NHSEmployers’ Confederation. The collection is, therefore, well placed to enable

researchers to contribute to a current historical project of ‘reassessing’ the 1970s.16

Another example of the diverse work of the Volunteer Centre is contained within

the papers of its Media Project, established in 1976 ‘to develop the social usefulness ofbroadcasting by being a link between voluntary bodies and broadcasters’.17 It did so by

publishing research papers, encouraging policy debates and delivering training.The project was run by the Volunteer Centre and jointly funded by the BBC and the

Independent Broadcasting Agency (IBA). In addition to advertising volunteeropportunities through public service announcements, the Volunteer Centre worked to

facilitate a ‘fruitful’ partnership between social welfare agencies and broadcasters in

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order to portray social issues through television and radio. Also included in thissection of the archive are details of various television programmes supported by the

project including: Reports Action, Grapevine, Open Space and Help!18 Doreen Stephens,Chair of the ‘steering committee towards an association for broadcasters, voluntary

and statutory organisations involved in social action’, saw the Volunteer Centre as apioneering body bringing the VSU, BBC, IBA and voluntary/statutory bodies together

to meet the challenge for social action and voluntary work in the 1980s.

Volunteer Bureaux

The Aves Report also praised local efforts in the 1960s to establish ‘volunteer bureaux’

to help members of the public find volunteering opportunities. The primary purposeof such bureaux was to locate the need and opportunities for voluntary service in local

communities and to be the place volunteers could go to learn about theseopportunities and receive advice and support.19 The earliest bureaux were funded by

trusts and small statutory grants. One of the first, established in 1967, was CamdenVolunteer Bureaux. Aves concluded ‘we have been impressed by the value of volunteerbureaux in the comparatively few places where they are to be found at present; and we

believe that there is need and demand for a network of such centres to cover the wholecountry’.20 Such initiatives were likewise commended by other commentators such as

Labour MP Richard Crossman in his 1973 Sidney Ball lecture on the ‘Role of theVolunteer in the Modern Social Service’.21 VSU funding enabled rapid growth of this

network from 23 in 1969 to 295 in 1984.22

Figure 1 illustrates the increase in the overall numbers of bureaux, but does not show

changes in the opening hours and levels of staffing of bureaux within the network,which fluctuated over time with the vagaries of local and national funding streams. In

the 1980s, the Volunteer Centre helped to establish an independent organisation tobetter support this expanding network. Known as the NAVB, it began work in 1988.The collection, comprised of newsletters and other pamphlets, provides a useful insight

into the state of volunteering in the UK in the 1980s and 1990s. For instance, the firstNAVB News from 1996 offers an overview of the ‘UK Voluntary Sector in the 1990s’.23

Volunteer Management

The Volunteering England collection also enables new insights into the

professionalisation of the voluntary sector since the 1960s. The Aves CommissionReport made a case for better co-ordination and support of volunteers, reflecting ‘at

some stage, wherever voluntary help is being used, it will be necessary for some personor persons to undertake the work of “organization” or “management”’ as opposed to

this task falling to a social worker.24 During the 1960s, a new profession of voluntaryhelp organiser began to take root in the health and social services. In 1968, a new

National Association of Voluntary Help Organisers (NAVHO) was created with theintention of providing support, information and training to organisers who were

struggling to define their roles within the NHS. The archive tells the story of this new

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body and the support it received from health charity the King’s Fund and the

Volunteer Centre. NAVHO’s development was strongly supported in its early days by

the Fund which organised training days and appointed a development officer. In 1975,

NAHVO established a working party with financial support from the Volunteer

Centre, again chaired by Geraldine Aves, to examine the nature of volunteer

management. Although the subsequent report People Involved in Volunteer

Organisations and Tasks (PIVOT) recommended that a new group should be

established to widen membership beyond health organisations, this body was never

created.25 Indeed stakeholders and members of the NAVHO management committee

were divided on what type of organisation would best represent the needs of the

300

250

200

150

100

50

0

Time

1963

1969

1974

1978

1982

1984

1970 1975 1980 19851965

No.

of

burb

aux

Figure 1 Graph Showing the Rapid Increase in the Number of Volunteer Bureaux in theUK From 1963 to 1984.Source: Volunteer Centre, Volunteer Bureaux Projects, 1.

124 G. Brewis and A. Finnegan

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voluntary help organisers. For example, the Hon. Secretary of the NAVHO stated that‘the advantages of creating a new organisation such as PIVOT are not significant

enough to outweigh such things as the loss of recognition which NAVHO has alreadyachieved with statutory, and other, bodies.’26 In contrast, a co-ordinator of voluntary

services from the Surrey Area Health Authority stated:

I am most enthusiastically in favour of the proposals contained in the report ‘Pivot’and my contact through the social services, health service and voluntaryorganisations have helped me to realise how valuable a widely based organisationof volunteer organisers would be.27

The archive thus highlights the challenges of cultivating new professions within anincreasingly diverse voluntary sector in the 1970s, a challenge that persists today.

For example the Commission on the Future of Volunteering, which reported in 2008,called for greater investment in volunteer management. Although recent efforts have

been made to refocus the attention of the volunteering sector and policy makers onvolunteer support and management, the profession remains undervalued and

under-funded in third sector organisations.28 In 1994, NAVHO changed its name toNational Association of Voluntary Service Managers in order to reflect the improving

status of volunteer managers.

Student Volunteering

The 1970s also saw the emergence of a parallel volunteering infrastructure to support

higher education students volunteering in their local communities. Part of a late-1960stransition from traditional social service to more politicised understandings of

community action, the movement grew rapidly across universities and polytechnics.29

By 1978, there were 100 Student Community Action groups with further 100 students’

unions involved in related work.30 The local groups were supported by a programmebased at the National Union of Students from 1970 until 1978 and afterwards by two

independent groups both of which received VSU funding: the Student CommunityAction Resources Programme (1978–80) and the Student Community ActionDevelopment Unit (1981–2007). Since the 1990s, there has been a shift away from

student-led community engagement towards university or students’ union-basedbrokerage as well as a growing trend of embedding volunteering into the curriculum.

The collection includes original newsletters that detail the evolution of this movementfrom its roots in 1970s student radicalism to the professionalised volunteering culture of

the early 2000s. The Student Community Action (SCA) Newsletter of 1971 concluded:

A change is coming over Student Community Action. More and more SCA groupsare realising that social service, though often valuable, is not facing up squarely tothe large-scale questions of our society. A number of groups have begun to ask deepquestions about the problems of housing, social services, education and industry intheir localities.31

This part of the collection invites researchers to adopt a more critical perspective on

what ‘volunteering’ is or should be through examination of newsletters and SCA

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handbooks, of which the archive houses a multitude from 78 Higher EducationInstitutions across the period 1979–2008.32

Opportunities for Volunteers

Opportunities for Volunteers was a volunteer-support programme set up in 1982 with£4 million of funding from the Department of Health and Social Security (DHSS).

According to Jos Sheard, the origins of the scheme lay in the riots that took place inBritish cities in the summer of 1981.33 The scheme was administered by a consortium

of major voluntary organisations which funded a number of new volunteering projectsin health and social services throughout the 1980s, including the expansion of the

Volunteer Bureaux network. This included the opening of 26 new bureaux and theextension of opening hours to a further 40.34 Much work focused on finding

volunteering opportunities for the unemployed. However, the apparent willingness ofsome organisations to embrace what many saw as a misguided Conservative vision ofvolunteering in the ‘Opps for Vols’ scheme in order to secure additional funding was

strongly criticised by other groups within the voluntary sector.35 These tensions arereflected in such documents in the collection as the Volunteer Centre’s Response to the

DHSS Consultation Paper about the future of the scheme.36 The collection contains anumber of other pamphlets and reports about the working of the programme that will

enable new insights into the Thatcher government’s controversial policies to supportthe unemployed to volunteer.

Information for Researchers

The Volunteering England collection can be consulted at the Archives located in theLibrary of the London School of Economics and Political Science (LSE), 10 Portugal

Street, London WC2A 2HD. The collection complements existing LSE holdings suchas the William Beveridge Papers and Returned Volunteers Association in addition to

documents included in the Violet Markham (MARKHAM/2/1), Baroness Serota(SEROTA/7/8) and Baroness Rhys Williams collections (RHYS WILLIAMS J/24/2).

An agreement between the LSE and Volunteering England is in place to ensure that

documents which otherwise would be lost will become part of the archive in time.The Volunteering England collection is listed in the LSE’s online catalogue.

The archives are open Monday–Thursday 10 am–8 pm, Friday 10 am–5 pm andare open to the general public, although visitors will need to present identification to

gain admission to the library. For full details of the admission procedure, pleaseconsult the library and archives pages of the LSE website at http://www2.lse.ac.uk/

library/archive/Home.aspx.

Notes

[1] See Brenton, Voluntary Sector, 46–8; Willmott, A Singular Woman, 159–64 for more history ofthe Volunteer Centre, UK.

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[2] Harrison, Seeking a Role, xx.[3] McKay and Hilton, ‘Introduction’.[4] Voluntary Service and the State.[5] Hobman, Guide to Voluntary Service; On government schemes for volunteering see Brewis

‘Youth in action?; Zimmeck, ‘Government and Volunteering’.[6] Manchester Survey, LSE/VolunteeringEngland/1/1; Liverpool Survey, LSE/VolunteeringEngland/

1/2.[7] Aves, Voluntary Worker, 193.[8] Sheard, ‘From Lady Bountiful to Active Citizen’, 118.[9] Davis Smith, ‘Volunteers and Trade Unions’, 34.

[10] Such correspondence can be found in LSE/VolunteeringEngand/6/4 and LSE/VolunteeringEng-land/6/5.

[11] Bruce, Volunteer Centre statement in response to part of the Prime Minister’s broadcast onpanorama, LSE/VolunteeringEngland/6/4.

[12] Drain, Guidelines for Relations between Volunteers and Paid Workers, LSE/VolunteeringEng-land/6/4.

[13] Letter from Ian Lloyd (MP) to Ian Bruce, LSE/VolunteeringEngland/6/1.[14] Letter from Nicholas Ridley (MP) to Ian Bruce, LSE/VolunteeringEngland/6/1.[15] Davis Smith, Volunteers and Trade Unions, 37.[16] Black and Pemberton, ‘Reassessing the 1970s: The Benighted Decade’, 15–17.[17] Hodgkinson and Ware, A Discussion on the Proposal for linking Social, Industrial and

Educational Agencies with the Media, LSE/VolunteeringEngland/6/16.[18] Found in LSE/VolunteeringEngland/3/40.[19] Aves, Voluntary Worker, 104.[20] Aves, Voluntary Worker, 189.[21] Aves, Voluntary Worker, 189; Crossman, ‘The Role of the Volunteer in the Modern Social

Service’, 282.[22] Mocroft, ‘Volunteers Through Volunteer Bureaux’, 14–23.[23] LSE/VolunteeringEngland/5/11.[24] Aves, Voluntary Worker, 106.[25] NAVHO, Current Problems—1976, LSE/VolunteeringEngland/4/4.[26] Letter from the Hon Secretary if the NAVHO, LSE/VolunteeringEngland/4/1.[27] Letter from the Co-Ordinator of Voluntary Services for the Surrey Area Health Authority,

LSE/VolunteeringEngland/4/1.[28] Brewis, Hill and Stevens, Valuing Volunteer Management Skills, 15.[29] Brewis, ‘From Service to Action?’[30] Student Community Action Resources Programme, Annual Report 1978–1979.[31] Student Community Action Newsletter, December 1971, 3.[32] See LSE/VolunteeringEngland/7/2.[33] Sheard, Politics of Volunteering, 32–34.[34] Volunteer Centre, Opportunities for Volunteering, 5.[35] Sheard, Politics of Volunteering, 34.[36] Volunteer Centre, Opportunities for Volunteering, 5.

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14 (2009): 15–17.Brenton, M. The Voluntary Sector in British Social Services. London: Longman, 1985.

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Brewis, G. ‘Youth in Action? British Young People and Voluntary Service 1958–1970’. InBeveridge andVoluntary Action in Britain and the Wider British World, edited by M. Oppenheimer andN. Deakin. Manchester: Manchester University Press, 2011.

———. ‘From Service to Action? Students, Volunteering and Community Action in Mid-TwentiethCentury Britain’. British Journal of Educational Studies 58, no. 4 (2010): 439–49.

Brewis, G., M. Hill, and D. Stevens. Valuing Volunteer Management Skills. London: Skills ThirdSector, 2010.

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Crossman, R. ‘The Role of the Volunteer in the Modern Social Service’. In Traditions of Social Policy:Essays in Honour of Violet Butler, edited by A. H. Halsey. Oxford: Basil Blackwell, 1976.

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J. D. Smith, C. Rochester and R. Hedley. London: Routledge, 1995.Student Community Action Resources Programme, Annual Report 1978–9.Student Community Action Newsletter, December 1971, 3.Voluntary Service and the State: A Study of the Needs of the Hospital Service. London: NCSS and

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Berkhamsted: Volunteer Centre, 1985.Volunteer Centre, Volunteer Bureaux Projects. Berkhamsted: Volunteer Centre, 1984.Willmott, P. A Singular Woman: The Life of Geraldine Aves 1898–1986. London: Whiting and Birch,

1986, 1992.Zimmeck, M. ‘Government and Volunteering: Towards a History of Policy and Practice’.

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