Beyond the volcanic crisis: co-governance of risk in Montserrat

Abstract

Disaster risk governance is concerned with how institutions change in response to perturbations or, conversely, are able to remain static for long periods of time. In Montserrat, the volcanic eruption in 1995 produced unprecedented challenges for both local government authorities and the UK Government. The sharp and sustained rise in the level of volcanic risk combined with an inadequate response from UK and local authorities prompted a shift in governance arrangements, and when levels of risk declined these new configurations did not go back to their pre-crisis state. This paper focuses on one aspect of this governance transition: the relationship between the local Montserratian government and the UK government. Before the eruption Montserrat enjoyed high levels of political and fiscal independence from the UK in disaster risk management and other investment decisions, but the volcanic crisis highlighted low levels of capacity and the inherent instability in this system. A new co-governance regime was established after the crisis, characterised by greater UK intervention in local investment decisions and some loss of political sovereignty. On the other hand, Montserrat has become more integrated in regional and international disaster risk governance systems, and today the division of local and central responsibilities for different aspects of disaster risk management is much clearer than before the volcanic crisis. This paper demonstrates how disasters can create spaces for existing risk governance systems to be questioned and modified. The volcanic crisis led to a reconsideration of responsibilities and risk management practices by both Montserratian and UK authorities, and initiated a process of transformation in land-use and development planning that has substantially reduced levels of volcanic risk on the island. However, these benefits have to be weighed against loss of livelihoods for a significant proportion of the population and considerable social upheaval. Critical to the success of this new development model is the need for vertical coherence and dialogue between different stakeholders. Montserrat and UK risk governance systems are more integrated now, but unless communities are engaged in risk management decisions, Montserrat's low-risk development model could come unstuck. Small islands with large risks can learn a lot from the Montserrat experience.

Livelihoods, Wellbeing and the Risk to Life During Volcanic Eruptions

“…We selected these eruptions because we have detailed information on the evacuations over time, supplemented by interviews, survey and focus groups that uncover attitudes, motivations and views from across several demographic groups. Chiefly this involves those who would be or were evacuated in response to heightened, but not necessarily paroxysmal, activity (Armijos and Few, 2015;Hicks and Few, 2015;Wilkinson, 2015;Armijos and Few, 2016;Few et al, 2017). The detailed evacuation pattern for two of these eruptions is illustrated in Figure 2, along with data from another recent evacuation (Merapi, 2010;Mei et al, 2013) to demonstrate that patterns of duration, and variability are not specific to the Caribbean.…”

Risk communication films: Process, product and potential for improving preparedness and behaviour change

“…This underpinning data included: (i) historical analyses of previous eruptions in St Vincent (Pyle, Barclay and Armijos 2017); (ii) group discussion data from earlier STREVA 'forensic' 6 workshops held in St Vincent and Colombia in 2014 ; (iii) interview data with project partners and communities (Armijos and Few 2016, Wilkinson et al 2016, and (iv) learning from other volcanic settings (e.g. Montserrat and Ecuador) (Hicks and Few 2015, Wilkinson 2015, Stone et al 2014, Hicks et al 2014, Few, Armijos and Barclay 2017. The breadth and depth of data, as well as our strong relationships with communities in both settings, was essential to position the films within each specific socio-cultural context and to ensure the aims of the films were both relevant to, and met the needs of the audience.…”

The Dilemmas of Risk-Sensitive Development on a Small Volcanic Island

“…Relocation schemes have often been used to minimise exposure to volcanic hazards. In Montserrat, the UK government and local authorities endorsed the permanent relocation of communities from areas affected by the 1995-1997 eruption and imposed an exclusion zone to discourage people from returning [39]. Yet such initiatives have often increased people's exposure to hurricanes and other hazards.…”

“…Yet such initiatives have often increased people's exposure to hurricanes and other hazards. It is not uncommon for relocated people to return to the hazardous evacuated areas when their tolerance of volcanic risk increases relative to other risks, or in search of better livelihood options [38,39].…”