Get the book: "Volunteer Administration: Professional Practice" Editor: Keith Seel (Chapter 6 outlines a concrete plan--including "Developing a Plan for Volunteer Participation")
I would start with: mission, needs assessment, expectations and job descriptions.
I was amazed on the first day of my first volunteer management class when they asked if we knew our organization's mission. I knew the mission statement, but never thought of applying it! It makes so much sense to start there. Now, really, I use it almost every day to drive most decisions--it really helps focus and ground me.
Before you have volunteers, you need to know your needs so that you can develop job descriptions. It's hard to ask people to commit to your cause if you can't tell them what they are going to be doing and why. Clear job descriptions and expectations at the beginning save you a lot of grief later.
Recruiting, training, tracking hours, recognition--that stuff will follow, but I think the foundation is in the mission and what you need to further that mission.