Volume 6, Issue 5 September - October, 2025 1
2 J Pages 8-11 uly 18, 2025, marked 30 years since the onset of volcanic activities in Montserrat. There have been no major explosive events since 2010, but the effects of volcanic events from 1995 to 1997 still dominate the lives of Montserratians. The northern-third of the island is the only permanently occupied area of the island. The Montserrat Volcano Observatory (MVO) marked the 30th anniversary with a week-long conference in Montserrat. It started on Monday, July 14 and ended on Friday, July 18, 2025. The MVO described the conference as we reproduce below: Soufrière Hills Volcano: 30 Years On marks a significant milestone in Montserrat’s modern history and in the global understanding of living and working with an active volcano. This five-day international conference, jointly hosted by the Montserrat Volcano Observatory (MVO) and the UWI Seismic Research Centre (SRC), brings together scientists, residents, emergency responders, policymakers, and artists to reflect on the past, engage with the present, and prepare for the future. SHV30 offers a multidisciplinary platform to explore the science, stories, and strategies that have shaped Montserrat over the past three decades. The programme features scientific presentations, keynote talks, panel discussions, field trips, and cultural events that highlight the wide-ranging impact of the Soufrière Hills Volcano — from geological and environmental shifts to community resilience, policy development, and regional collaboration. By connecting technical knowledge with lived experience, SHV 30 fosters meaningful dialogue about volcanic risk, memory, and recovery. It also provides a space to celebrate progress, examine challenges, and share lessons with other volcanic regions around the world. Pages 12-15 The messages from the Honourable Premier of Montserrat Reuben T. Meade and Chief Scientist Dr. Graham Ryan that we have included in this special edition of our Horizon Newsletter were extracted from the magazine for the SHV 30 conference. There were more than 70 presentations made during the week. Almost 100 scientists, Disaster Management and other professions from overseas attended the conference. Most of it was carried live online and broadcast on ZJB Radio Montserrat. CARICAD’s Supplementary Associate, Franklyn Michael, was one of the keynote speakers. Mr. Michael previously functioned as Head of Emergency Operations in Montserrat, and subsequently as the first Permanent Secretary of the then newly created Emergency Department for the first four years of the volcanic crisis. He spoke on the topic “A Retrospective Review of the Management, Teamwork, Leadership, Interagency Successes and Challenges of the Volcanic Crisis in Montserrat, 1995 – 1999”. The SHV 30 Conference was the motivation to CARICAD to present this special edition of the CARICAD Horizon Newsletter. It is dedicated to the courage, strength and resilience of the people of Montserrat and their diaspora. Pages 25-29
3 I n recalling that it has been 30 years since the onset of volcanic activities in Montserrat, I am reminded that time really does fly. It does not seem like so long ago that the news of those volcanic events dominated our consciousness in this region. Our collective hearts went out to the people of Montserrat. We all wanted them to be safe. Devon Rowe, Executive Director CARICAD The passage of time has dimmed some memories and erased some events from our consciousness. However, we should never lose sight of or empathy, for what the people of Montserrat endured at that time or in the 30 years since. I am mindful that in addition to the massive personal, family, community, infrastructure, economic and material losses that the public sector in Montserrat suffered greatly, Montserrat lost some of its most experienced public sector managers and leaders due to the enforced mass exodus between 1997 and 1999. This meant that the normal preparation through mentoring and on the job training that middle managers would have undergone was not an option. Persons were catapulted into positions of responsibility without the opportunity for succession planning. This was not an ideal arrangement. We applaud the efforts made by all concerned to make the most of an undesirable situation, but it does remind all of us how important Succession Planning is under all circumstances in the public sector. CARICAD is again leading in response to this issue in the region. It also reminds us of how important and relevant the CARICAD definition of Public Sector Transformation is: A continuous process of leading and managing change in the public service for innovative adaptation; to enable delivery of services and results in a resilient and sustainable manner. Further, the volcanic eruption in Montserrat reminds us that in the Caribbean we are vulnerable to a wide range of volcanic hazards. We tend to prepare for the hazards that show greatest frequency such as hurricanes and earthquakes, but the Montserrat volcano reminds us that we must also plan and prepare for those hazards that may be low in probability but have remarkably high impact when they occur. CARICAD salutes the people of Montserrat for their courage, resilience and determination. They remain a shining example of what overcoming the odds in life means. We will continue to stand shoulder to shoulder with Montserrat as they continue to rebuild the home of the soca anthem of the world, Hot, Hot, Hot; it is still the beautiful Emerald Isle of the Caribbean.
4 Office of the Premier P.O. Box 292, Government Headquarters, Brades, Montserrat Tel: (664) 491 3378/3463/2066/2557, Fax: (664) 491 6780/4632 Email: op@gov.ms Opening Remarks by the Honourable Premier of Montserrat commemorating the 30ᵗʰ Anniversary of the Soufrière Hills Volcano T The Honourable Reuben T Meade, Premier of Montserrat hirty years ago today, the mountain we now call simply The Volcano first made itself known in a plume of steam that curled into the July sky. In the months that followed, Soufrière Hills reminded us, sometimes gently, sometimes with terrifying force, that Montserrat is, and always has been, part of a living earth. The mountain’s ash reshaped our skyline; its pyroclastic flows erased streets we knew by heart; and on a dark day in June 1997, it took the lives of friends, neighbours, and loved ones whose memories we carry still. Yet as we gather on this solemn anniversary, we do so not in despair, but in gratitude and hope. For if the past three decades have proven anything, it is that the spirit of Montserrat cannot be buried in ash. We are a people who stand on the shoulders of our ancestors, African, Irish, Kalinago, and who draw strength from every trial we have faced, from colonization to hurricanes, to this restless mountain we now monitor day and night. Resilience is not a slogan for us. It is a way of life. So how do we honour this loss, but still celebrate life? Let us first pause to honour those we lost. Their absence is felt in every empty chair at family gatherings, every hush that falls when the old sights of Plymouth appear in photographs. To the families who carry that pain, I say: your grief is a sacred trust for our entire nation. We will keep telling their stories. We will keep their names stitched into the fabric of our island’s history. But memory alone is not enough. We also celebrate the lives that persisted: the farmers who coaxed crops from scorched earth, the nurses who set up clinics in borrowed halls, the teachers who themselves were evacuated, but still held classes under mango trees so that no child would lose a single day of learning. We celebrate the Christians who knelt in alabaster ash and thanked God for breath in their lungs, the scientists from around the world, and the volunteers, in particular the Royal Montserrat Defence Force and Police Officers who answered our call in our hour of need. Each of them is a verse in the anthem of Montserratian resilience. • Continues on next page
5 Office of the Premier P.O. Box 292, Government Headquarters, Brades, Montserrat Tel: (664) 491 3378/3463/2066/2557, Fax: (664) 491 6780/4632 Email: op@gov.ms • Continued from previous page Being Montserratian means believing that green can indeed rise from grey. It means seeing beauty in the outline of a mountain that once threatened us, and possibility in the rumble that still echoes beneath our feet. It is the quiet pride of watching Little Bay grow where Plymouth fell, proof that endings can become beginnings when guided by courage and vision. Being Montserratian is also to look outward. Nearly two‑thirds of our people were dispersed after the eruption, carrying our culture to London, Boston, Toronto, and beyond. They sent back remittances, expertise, and perhaps most importantly, hope. Today, our diaspora is not a wound; it is a worldwide network of Montserratian ambassadors whose love for home fuels new investment, new music, new ideas. Lessons learned, horizons ahead From the volcano we learned to listen to science and to prepare for uncertainty. Our state-of-the-art monitoring network is now admired across the Caribbean. From relocation we learned that home is more than a postcode; it is a promise we make to one another. From rebuilding we learned that progress is not measured only in concrete and steel but in the dignity with which every citizen can pursue opportunity. So where do we go from here? We will continue to develop the northern areas with infrastructure that respects both our environment and our cultural heritage. Little Bay will become a climate‑smart town and a beacon for sustainable tourism. The Montserrat Volcano Observatory has already placed our island on the global scientific map. We will expand research partnerships, inviting universities and tech firms to use Montserrat as a living laboratory for geothermal energy, disaster‑resilient construction, and biodiversity studies. Our music, our language, our festival traditions survived exile; now they deserve a renaissance. The Cultural Centre in Little Bay will continue to host national activities, giving artists a stage and historians an archive worthy of our story. A call to unity My fellow Montserratians, the volcano is quiet today, but history tells us it may speak again. If and when it does, may future generations find that we did not waste these calm years, that we strengthened our homes, diversified our economy, and deepened our sense of community. May they say that in 2025, on the thirtieth anniversary, we looked backward only long enough to draw wisdom, and forward long enough to chart a fearless course. Let us pledge, then, to remain faithful to our God, grateful for our blessings, and ever resilient as one people. Let us show the world that a small island can teach mighty lessons about endurance, ingenuity and grace. Montserrat will rise, not once, but always. Thank you, and may God bless each of you, every Montserratian everywhere, by birth or adoption, by affiliation or purposeful acclaim. Honourable Reuben T Meade, Premier of Montserrat
6 REMARKS FROM THE CHIEF SCIENTIST DR. GRAHAM RYAN I t has been the natural tempo of the Soufrière Hills Volcano (SHV) over the past 150 years, moving from seismic unrest to the eruption that has fundamentally impacted every aspect of life on Montserrat. It is fitting that we take this thirtieth anniversary to reflect on the hardlearned lessons and difficult sacrifices that have had to be made to keep Montserrat alive as a unique and special community. It is also a time to contemplate where we go from here. The eruption of SHV, which started in 1995, has profoundly reshaped Montserrat’s geography and community. Many were forced to leave, many stayed, and many others came, becoming a vital part of the island’s evolving identity and helping it to continue as a nation defined by tenacity and perseverance. In doing so, they have woven new languages and cultures into the tapestry that is Montserrat. WELCOME Montserrat is not new to volcanism and its effects. This experience stretches back beyond the last 30 years. In fact, Montserrat is one of the pioneers in volcanology, with its first Volcano Observatory equipped with state-of-the-art equipment staffed by Montserratians operating in the 1930s and 40s. The first Volcanic Hazard maps showing the potential impacts of the volcanic system were produced by the Seismic Research Unit in the 1960s. However, despite this legacy and knowledge, the 1995 eruption came as a shock. This underscores a vital lesson: Montserrat must retain and build on the wealth of knowledge it possesses to inform a sustainable future. The MVO plays a critical role as a renowned institution focused on monitoring the Soufrière Hills Volcano and assessing its associated hazards. However, this is only one piece of the puzzle: delivering the best available scientific information to guide the challenging decisions faced by policymakers and authorities. These decisions are incredibly difficult due to the large uncertainties and the high stakes: people’s lives and livelihoods. While a few individuals are ultimately responsible for these decisions, we can all contribute to finding the best solutions for these unique circumstances. This is what I hope this conference will achieve. Welcome to those visiting Montserrat from overseas. I know that, as well as contributing your knowledge, insight and expertise to this conference, you will also enjoy Montserrat’s unique offerings and charm during your time here. And a warm welcome to those from Montserrat who will also be sharing their valuable knowledge and experience. I know that this conference will create new insights and perspectives to inform the future, as we turn magma into momentum.
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8 FROM LEFT ARE: First Lieutenant Colonel Alvin Ryan, Director of the Disaster Management Coordination Agency in Montserrat; former Prime Minister of Trinidad and Tobago Dr. Keith Rowley who was attending in his professional capacity as a geologist; Frankie Michael; Michelle Castle, Regional Affairs Officer, Government of Montserrat; former Governor Frank Savage and Kenroy Roach, Head of Office for the United Nations’ Barbados and Eastern Caribbean Office. By Franklyn Michael, Supplementary Associate, CARICAD M ontserrat is still a British Overseas Territory. It is one of the Leeward Islands. It is 30 square miles in area with a population currently estimated to be about 5,000 people. Prior to the onset of volcanic activity, the island was known as “The Emerald Isle”. That tag remains in place. There are verdant hills and mountains along a central ridge which extend along the island’s long axis north to south. The island was deeply incised by numerous seasonal stream beds known locally as ghauts. Many of them in the south and east have now been filled with volcanic eruptive materials. The variation in rainfall between the coastal and inland areas as well as between the Windward and Leeward coasts produced an unusual variety of flora and fauna. It ranged from patches of scrub to lush tropical forests. The island was marked by an absence of white sand beaches and natural ponds or lagoons. The coastal zone is marked by precipitous depths. There are few coral reefs. The island underwent dramatic social, economic and physical changes in the last 70 years. In the 1950s the economy was dominated by export agriculture, especially the production of Sea Island Cotton. During the 1960s, cotton declined. While non-cotton agriculture enjoyed relatively high levels of output, the decline in Franklyn Michael • Continues on next page
9 • Continued from previous page cotton production was dramatic. The impact was severe. There was extensive economic and social deprivation and dislocation. Approximately 4,000 people migrated between 1955 and 1970: primarily to the United Kingdom. This is an island that once had 28 per cent of its land, 7,000 acres, under Sea Island Cotton. Montserrat once produced one million pounds weight of cotton in one season. In the 1970s the island exported 39 agricultural commodities. That is the backdrop to Montserrat’s long history of export agriculture and local food production. In the late 1970s the agricultural estates were left largely idle and abandoned or cultivated only by small farmers who had no security of tenure. The search for alternatives to cotton led to cultivation of a wide variety of fruits and vegetables. While several crops, such as limes, onions, tomatoes, white potatoes and hot peppers were significant in volume with enough for exports, there was no single crop as dominant as cotton was. In the 1960s a deliberate attempt had been made to shift the economy away from agriculture to residential retiree tourism. North Americans and Europeans were enticed and encouraged through a variety of real estate schemes to construct Winter Homes on the island. It was anticipated that the direct employment in construction and related activities would boost employment greatly. Further, the support services required for the residential retiree schemes would extend employment not only to men in construction, but to women in post-construction services. The strategy was largely successful and by the 1980s the island was regarded as relatively prosperous. It had “graduated” from budgetary aid and was in fact generating a surplus in recurrent revenue over expenditure. The population remained relatively stable at about 10,500 in the 1980s and 1990s before the volcanic events. Montserrat’s social and economic fortunes were dealt a severe blow in September 1989. Hurricane Hugo, one of the most intense and devastating hurricanes of the 20th Century, struck Montserrat almost head-on. • Continues on next page
10 Aerial shot of the Disaster Management Coordination Agency. • Continued from previous page The resulting devastation was massive. Economic infrastructure, housing and commercial properties were severely damaged or destroyed. Its economic infrastructure (after Hugo) was adequate. Electricity and water supplies were reliable. Its telecommunications were as modern as any other Caribbean territory. We can look back now and see that Montserrat and the people of Montserrat were at great risk when the Soufrière Hills Volcano erupted on July 18, 1995. Montserrat is part of the arc of Caribbean Islands that sits on a tectonic subduction zone. In 1995, the island was 39 square miles. It was 11 miles long at its greatest length and seven miles wide at its greatest width. It has a central mountainous backbone along its length with gently sloping swathes of land around old volcanic domes. The soils were and continue to be deep, and fertile. The ghauts or ravines radiating from the central hilly backbone provided drainage lines to the sea on all coastlines. The northern and southern extremities were relatively dry but the central portions for the island received at (on average) at least 60 inches of rain per year. What made Montserrat valuable, helped to make it vulnerable. Volcanoes had given rise to the geology, geomorphology and topography to that wonderful agricultural potential. The dramatic, scenic views that most residents had from their homes, coupled with the tranquillity and charm of the island, made it a sought-after destination for retirement homes. Residential tourism, and its associated construction industry, was a significant source of economic benefit. In the 1980s the island was regarded as relatively prosperous. It had “graduated” from recurrent budgetary aid and was in fact generating a surplus in recurrent revenue over expenditure. Contrast that with the fact that today 60 per cent of the recurrent budget arises from aid. Furthermore, in the 1980s a world-famous recording studio was established on Montserrat. It gave the island a global profile with vocalists such as Stevie Wonder and Luther Vandross visiting the island to make • Continues on next page
11 The former Castle's Building in Plymouth, the capital town of Montserrat. It was a three -story building, now gone to ruin and almost completely buried by volcanic debris. • Continued from previous page recordings. The Soca music pioneer “Arrow” with hits such as Long Time and the universal Soca anthem Hot, Hot, Hot made Montserrat a globally recognised location. Montserrat was also famous for its nine-hole golf course in the Belham valley. It had played host to many sub-regional tournaments. In addition, the island was also home to cricketer Jim Allen whom many regard as the best batsman never to be selected for the official West Indies cricket team. It was difficult to identify a single reason for Montserrat’s relative prosperity. The local recurrent budget was being balanced, but it was completely dependent upon aid primarily from the United Kingdom for its Public Investment Programme. Remittances from Montserratians abroad had become an important source of income for residents. Socially, the island was and still is fascinating. Despite an overriding sense of national identity there was no overwhelming desire for independence. There was marked absence of rigid class divisions or racial tension. Crime, especially violent crime, was infrequent before the volcanic events. Most of the factors of production were owned by the Government or local residents. Government was the largest employer but several public corporations, statutory bodies and private sector entities also employed large numbers. Unemployment was low, and formal educational achievements at secondary and tertiary levels were high.
12 By Veta Wade M y name is Veta Wade, an ocean researcher, Montserratian born and raised, and blue economy advisor based in Montserrat. The Soufrière Hills volcano has been a major part of our island’s story since it awoke in 1995, and it has shaped not just the landscape but also my personal journey. Over the years, I’ve seen how volcanic activity has dramatically affected our marine environments — devastating them in some instances, but other times giving them a chance to bounce back. As I think about all the changes we’ve experienced, I can’t help but feel a mix of nostalgia, loss, and hope. This is a tale of resilience — not just of the land, but of the sea that surrounds us. After being voluntarily evacuated at the height of volcanic eruptions in 1997, at just 17 years old, I returned to Montserrat in 2011 with a singular goal: to help in the redevelopment of my island. I longed to reconnect with my roots, and I chose to focus my attention on the ocean — a realm I knew little about but felt drawn to explore. By the time I returned at 31, I had learned how to swim, a skill later nurtured by local fishers who welcomed me into their world. They taught me the art of free diving, and soon I found myself diving down to 100 feet without a tank, discovering the underwater wonders that had once felt so distant. My journey into the ocean was not just about exploration; it was about understanding the impacts of the Veta Wade (Photo credit: Jason Willett, Fish ‘N Fins Inc.) volcano on our marine environment. The volcanic eruptions have wreaked havoc on our land and marine habitats; approximately 1.1 km³ of andesitic magma has entered our waters as ash and debris (Wadge et al., 2010). Compounding this issue, ongoing mud flows, or lahars, during periods of heavy rains/ flash floods wash into the sea, further compromising ocean health. Through the "fishers boot camp", I learned firsthand about the challenges they faced and their aspirations for the future. Their stories were filled with both hardship and aspirations, reflecting the resilience of a community that has endured so much. As I engage with local fishers like Captain John Howes, I hear their concerns about the evident decline in marine ecosystems. Montserrat has faced many natural disasters over the past 30 years, and The Ocean’s Breath, Montserrat. Dive Site: Plymouth, an eerie and desolate terrain created by The Soufrière Hills volcano.
13 the evidence of degradation is clear. Fishers reminisce about spearfishing in waters where visibility exceeded 120 feet; now, volcanic ash has reduced that clarity to a mere one or two feet after heavy rains. This uncertainty highlights the urgent need for a comprehensive scientific understanding of our marine ecosystems and the ongoing impacts of volcanic activity. Geographically, Montserrat does not have any major estuaries, or lagoons of mangrove habitat, which are critical for fish species to spawn and provide a safe habitat for juvenile fish to grow larger. Yet, like every other Big Ocean State and Territories it faces the uncertainties of today's most existential threat – climate change! Another view of The Ocean’s Breath, Montserrat. Dive Site: Plymouth, an eerie and desolate terrain created by The Soufrière Hills volcano. In the late 1980s and early 90s, the Government of Montserrat constructed an artificial reef at Isles Bay/ Garibaldi. This reef was just beginning to support various fish species and allow them to form schools and populate adjacent fishing grounds when the eruptions began in 1997 and continued until 2010. The devastation was immense, rendering more than two-thirds of the island's landmass uninhabitable and causing further destruction to the surrounding reefs, which became buried under volcanic mud and rock debris. Fishers like Captain Howes expressed their concerns that these eruptions likely killed millions of fish and crustaceans, leading to significant economic losses for Montserrat’s fishing industry. Unfortunately, due to this ongoing disaster, the artificial reef has been neglected and received no maintenance since 1997, stalling any potential recovery. Working alongside the fishers, I started an eco-tour business called AQUA Montserrat, which by 2014 birthed a non-profit — Fish N Fins Inc. — focused on teaching kids to swim, snorkel, and engage in marine science. In this capacity, I have witnessed the gradual recovery of marine life. Each free-dive and each reef patrol became a revelation; I was no longer just an observer but a participant in the story of our underwater world. The vibrant colours of the corals and the playful fish that danced around me filled me with awe and renewed my sense of purpose. New coral colonies are being rebuilt millimetre by millimetre, and I have come to believe that when left alone, nature will heal itself. Engaging with local fishers provided further insights into the delicate balance between human activity and marine ecosystems. They shared their concerns about fish stocks, sedimentation moving with the currents and potentially continuing to smother reefs, and fish noticeably moving to cooler waters. I understood their deep desire to further explore what lies beneath the surface, participate in science, and answer the question of where the fish have gone. They seek out more lucrative fishing grounds or innovations that could reduce • Continues on next page
14 • Continued from previous page fishing effort while maximising catch size. There was a sense of concern about engaging more interested youth in the sector. Yet, amidst their struggles, and experiences of destructive practices of the past, like dynamiting reefs as an accepted fishing method, they had seen the sea bounce back before, and they believed it could do so again. Through my work with Fish 'N Fins Inc., we’ve inspired a new generation to care about our marine environment. Many of our alumni are now pursuing degrees in environmental sustainability, engineering, and biology. Together, we patrolled the reefs, monitoring coral health, removing debris, and identifying invasive species. We are now looking to create innovative models for community science. These shared experiences at Fish N Fins not only sparked the youth's curiosity but also nurtured my own passion to learn more. Photo credit: Blue Halo, Montserrat. Scientific Expedition 2015. Lime Kiln, Montserrat. Vibrant and healthy reef on the west coast of the island. Montserrat bright yellow Mustard coral/30cm wide and tall, with feather duster in the front to help give a sense of scale. Dive Site: Sunshine Rock, Little Bay Jetty. (Photo credit: Fish’N Fins Inc.)
15 We are all stewards of this beautiful ocean, and it is our responsibility to ensure its health for future generations. Collaborating with scientists like Dr. Grace C. Young has deepened my understanding of the impact of the eruptions on the sea. Her documentary co-directed with Federico Fanti, "Ocean's Breathe (2019)" examined Montserrat’s smothered reefs, creating 3D models of the regrowing coral off our buried capital. It was encouraging to see that, despite having been smothered in the 90s, they are slowly recovering and rebuilding. My journey back to the sea has been transformative and powerful. I now look out at the ocean with a sense of belonging, helping to raise the public perception of pursuing ocean careers as more than fisheries or biology, understanding that it is not just a body of water but a vital part of my identity. The volcanic eruptions may have caused devastation, but they also sparked a renewed commitment to look beyond the reef into alternative economic opportunities provided by Montserrat’s deepwater. This reflection serves as an autoethnographic exploration of my relationship with the coral reefs around Montserrat, intertwining my personal experiences with the broader cultural and environmental narrative of our community. The impact of the Soufrière Hills volcano on the sea around Montserrat is a story of devastation and recovery. While the eruptions buried much of our vibrant marine life, they revealed the strength and resilience of both the reefs and our community. As we navigate the challenges ahead, I hold onto the belief that the ocean will heal and restore, just as we have learned to do. Ensuring that the connection to the sea grows stronger for generations to come is critical as we unlock new opportunities for a thriving and equitable blue economy. Photo credit: Fish ‘N Fins Inc. 2015 - where we began! Our mission is now based on advancing community-based marine conservation through scientific research, technology, education, and programme design. Veta Wade is an ocean researcher and passionate advocate for sustainable development and an equitable blue economy in the Caribbean. As one of the co-authors of the World Bank funded, Global Industrial and Technological Trends in the Blue Economy & Policies to Promote Growth in the Caribbean, Veta emphasises the importance of empowering local communities to engage in innovation and responsible management of natural resources.
16 The Montserrat National Trust (MNT) conducted a Case Study on Responding to Soufriere Hills Volcano The following slides were presented at the SHV 30 conference by Sarita Francis OBE, OE, Executive Director of the MNT.
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22 The following slides are core of a presentation made at the SHV 30 conference by Ms. Rosetta West Gerald, Chief Executive Officer of the Montserrat Tourism Authority. • Continues on next page
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25 From community-led hurricane shelters to a modern all-hazard agency Written by Lieutenant Colonel Alvin Ryan BEM, ED, CCM, Director, DMCA, Montserrat B Lieutenant Colonel Alvin Ryan, BEM, ED, CCM, Director, DMCA, Montserrat. (Photo from the Government of Montserrat’s official website) efore 1989, Montserrat had no formal Disaster Management department — preparedness relied primarily on volunteers and community organisations. Hurricane Hugo’s devastation, the Soufrière Hills volcanic crisis, and other disasters highlighted the need for a comprehensive, structured, transformational approach. Today, 35 years later, the Disaster Management Coordination Agency (DMCA) stands as a modern, multi-hazard organization equipped with advanced tools, trained personnel, robust systems and appropriate Legislation to keep Montserrat safe. Before 1989: Community-Led Preparedness Prior to 1989, Montserrat lacked a formal disaster management department. Government issued warnings and community initiatives guided preparations for tropical storms and hurricanes — the main natural threats as they were • Continues on next page
26 From community-led hurricane shelters to a modern all-hazard agency • Continued from previous page perceived at that time. In the 1980s, various Departments of Government were assigned lead roles for a variety of emergency response initiatives such as security, health, food, welfare and shelter. Hurricane preparedness plans were common in the said government agencies. Nongovernment organisations were assigned major support responsibilities most notably: • Hurricane Shelters: Organised by the Montserrat Branch of the British Red Cross and the Montserrat Defence Force. Schools and churches served as shelters. • District Disaster Coordinators: Local volunteers acted as contact points for Government intervention in communities. Those District Disaster Committees were the backbone of community response. They excelled at the onset of volcanic activities. There was limited legislation: No local Montserrat Disaster Management laws existed; only the Leeward Islands (Emergency Powers) Order – Statutory Instrument 1959 No. 2206 provided limited authority and guidance. 1989: Hurricane Hugo Exposed the Management Gaps On September 17, 1989, Hurricane Hugo damaged or destroyed more than 90 per cent of Montserrat’s buildings. Despite the heroic efforts of many people, the absence of coordinated planning, a dedicated organisational hub and relevant legislation all led to delayed recovery. Criticism of shelter management, relief distribution, and storage even appeared in calypso songs — Montserrat’s important traditional social commentary. The Hugo disaster prompted the appointment of a National Disaster Coordinator and the establishment of the Emergency Operations Centre (EOC) in Plymouth. The National Disaster Coordinator was assigned at the time to the Chief Minister’s Office portfolio. However Disaster Management as a subject, fell under the authority of the Governor. Two of the first Disaster Coordinators were Ms. Rachel Collis and Ms. Juliette Brade. The EOC Operated from the Royal Montserrat Police Force Headquarters. Governor Frank Savage took the initiative in 1994/95 • Continues on next page
27 The jetty at the port in Plymouth. It shows the extent to which volcanic material has now extended the coastline in Plymouth and has made most of the jetty part of the area of land rather than in the ocean as it was originally. From community-led hurricane shelters to a modern all-hazard agency • Continued from previous page to obtain financial support to upgrade the EOC and to have Caribbean experts facilitate the development of a comprehensive multi-hazard plan. 1995–1998: Volcanic Crisis and Emergency Coordination • With the Soufrière Hills volcanic eruption in 1995, a fully operational Emergency Operations Center (EOC) was activated at the Police Headquarters. Policy Decisions: Guided by the Governor, Chief Minister, Cabinet Ministers, the Commanding Officers of the Defence Force and Police. The Permanent Secretaries and Chief Technical Officers of the Ministries of Government, were brought under the EOC umbrella. The EOC initially, was divided into three functional tiers: 1. The Executive Group 2. The Operations Group 3. The Support Group The Governor in Council (equivalent of Cabinet today) was the ultimate policymaking group of the EOC. The core of the EOC Operations Team and District Committee Chairpersons in November NAME FUNCTION Franklyn Michael Juliette Brade Patricia Farrell Daway Angela Greenaway Stanford Ryan Elijah “King” Silcott Peter “Joe” West Lt. John Skerritt Sgt. Anderson White Florence Daley Daphne Ryan Blondina Howes-Jeffery Claude Hogan Verna West Lt. Horatio Tuitt Dr. Garry Swanston Christopher “King” Lee Vereen Thomas Woolcock Director (Permanent Secretary) National Disaster Coordinator Executive Assistant to Director Deputy Director EOC Team Leader – North Deputy Team Leader – North Storekeeper Financial Advisor Telecommunications Lead Officer Geriatric Shelters – Manager Chief Administrative Officer N.G.O. Liaison Officer Information Officer Liaison – Ministry of Education Logistics – Transport Liaison – Private Sector Chief Shelter Manager Liaison – Shelters • Continues on next page
28 From community-led hurricane shelters to a modern all-hazard agency • Continued from previous page 1995, are shown at right. EOC personnel and functions changed from 1996 onwards. DISTRICT CHAIRPERSONS – NOVEMBER 1995 • Sylvester Browne • Charles Ryan • Lionel Nanton • Jeremiah Bramble • Christopher Lee • Easton Farrell • Kenneth Farrell • Lenroy Daley • Rupert Weekes • John Jeffers • Roy Cabey • Kenrick Harewood After the evacuation of Plymouth in 1996, the EOC was relocated first to a private home in the designated safe-zone, then to its current northern site, with a renovated community centre providing a permanent operations space. There were several relocations of the EOC in 1995/6. Sub-units were established at that time for greater efficiency. They were later re-centralised. In November 1997, the EOC as an organisation, was renamed Emergency Department. It was set up as an entirely new department with its own Permanent Secretary and full-time staff. Early 2000s: Transition to DMCA By 1998–1999, Montserrat shifted from crisis response to a focus on reconstruction. In the early 2000s, the department became the Disaster Management Coordination Agency (DMCA), with the late Captain Horatio Tuitt as its first Director. While managing the EOC remains a critical function, it is now activated only when necessary and can be stood-up or partially activated in relation to the expected response. Modern Capabilities and Innovations Today, the DMCA operates as a comprehensive, allhazard agency: • All-Island Siren System: Ten alerting sites, recently upgraded and maintained by in-house technicians with the capability of being triggered both at DMCA and the Police headquarters. Policing being a 24-hour operation, it provides redundancy for afterhours events. • Drone Technology: Supports search and rescue, bushfire response, and post-disaster damage assessments. • Public Education & Outreach: A dedicated member of staff engages schools, community groups, and residents. With a staff of eight, a permanent operations facility, and modern tools, the DMCA ensures Montserrat is prepared across all disaster phases — mitigation, preparedness, response, and recovery. The facilities and features of the DMCA compound are vastly superior to what existed at the EOC in Plymouth in 1995. There is a substantial warehouse with emergency supplies. There is a modern radio room, a dormitory and kitchen, bathrooms with showers, a media room and of course the EOC Operations room along with office accommodation for staff. • Continues on next page
29 • Continued from previous page Looking Ahead The DMCA is currently in the final stages of developing Montserrat’s first Comprehensive Disaster Management (CDM) Country Work Programme (CWP). This is being done with technical assistance from CDEMA and the University of the West Indies Disaster Risk Reduction Centre (DRRC). As part of the process of developing the CWP, an audit tool was used to assess the phases of the Disaster Management Cycle. The CWP was drafted by identifying and analysing the strengths, weaknesses and areas for development. This programme will serve as a national roadmap over the next 3–5 years, guiding strategic interventions to reduce vulnerability and loss from hazard impacts. It reflects a collaborative effort involving key stakeholders and aligns with the DMCA’s vision to coordinate and implement a robust disaster management programme. Recent disasters underscore the value of readiness, resources, and training. Montserrat’s journey — from informal, communityled efforts to a professional, multi-hazard agency — shows the island’s resilience and commitment to safeguarding its people well into the future.
30 View from St. George's Hill looking northeast. By Frankie Michael, Supplementary Associate, CARICAD T he Caribbean region can learn many lessons from the protracted volcanic crisis in Montserrat. The most severe events lasted for 15 years but the effects continue today, more than 30 years later. The incorporation of the lessons in our national planning and public management should prove beneficial to current and future generations. 1. Small Island Economics are Especially Vulnerable to Major Natural Hazard Impacts Small territories with small populations, cannot provide the full range of skills, resources, supplies and equipment required to respond to a whole-of-country disaster. The smaller the island or territory, the greater will be the impact of a major hazard, whether from natural hazards or incidents. This means that the smallest of our member states should plan on the basis that any situation that evolves into disaster, will affect all aspects of life, and spread across the entire territory. Every country and territory should be prepared for natural as well as man-made hazard impacts by setting up appropriate policies, strategies, programmes and management capabilities – especially for high-impact hazards and threats. 2. Plan for Low Probability but High Impact Events The volcanic eruption in Montserrat was regarded as a low probability (unlikely to happen) event. However, when it did happen, it was devastating. The Montserrat experience suggests that we should plan for events that even if their probability is low but their impact is high, we should be ready. The “Soufriere” at Galway’s in Montserrat was regarded as a tourist attraction and suitable site for school field trips for decades. There was no sense of imminence about volcanic eruptions. The society felt no sense of urgency about preparing for such events. 3. Preparations Should be Made to Deal with Unquantified but very Significant Psychological and Emotional Effects of a Natural Disaster The negative psycho-social impacts of a disaster can be immense. Post Traumatic Stress realities can impact individuals, families and communities for life. It is vital that the psychological situations emerging from disasters and their effects and impacts be planned for appropriately so that the desired services and • Continues on next page
31 • Continued from previous page view from St. George's Hill looking southwest. support can be available during times of crisis or disaster and for a long time after the event or series of events. 4. We Should Accept the High Level of Vulnerability to Natural Hazards in the Caribbean and Plan Appropriately as a Region The work of both CDEMA and CARICAD, should be more closely integrated into national development planning and plans. Comprehensive Disaster Management (C.D.M) should be embraced as a fundamental strategy. Disaster Management in the Caribbean has focussed primarily on Disaster Relief and much less on Preparedness and Planning for Resilience. Recent events have highlighted the inadequacies of an approach which does not seek to engage pro-active actions and policies that could mitigate these losses. Experience also shows the importance of building capacity across the entire public sector for dealing with crises of all kinds. Capacity building should include preparation for dealing with the full range of special needs requirements for special populations in all groups. Since 1950, the region has been hit on average, by seven disasters per year, that have killed hundreds of thousands of people and affected millions more. Annual damage in the Caribbean accounts for 40 per cent of global damage. Caribbean small states have suffered more damage at greater frequency than both other small and larger states. – Dr. Asha Cambon 5. Effective Responses to Large-scale Disasters Require Political Approaches which are Fundamentally Equitable and Altruistic I can speak from personal experience when I say that post-disaster response and recovery efforts have repeatedly shown us that Recovery works best when narrow, partisan political interests are sublimated to the broadest national needs. This means that as far as practicable, systems of Relief and Response should be designed in a manner that promotes collaborative political action in preference to partisan divisiveness. It is worth proposing the creation of a National Disaster Response and Recovery Code of Practice to which all political parties can be invited to endorse and adhere to. 6. People are Willing to Endure Great Hardships and Make Remarkable Sacrifices for the Longterm Good of their Country but they Demand Effective Leadership I have been involved in several significant post-disaster situations in the region. That experience reinforces the importance of leadership at all levels in times of disaster. The most effective leaders: • Operate within the parameters of the laws, regulations, international conventions and rules • Have a strong focus on a Vision – always – personal and organizational; more than being tied to specific processes and methods • Continues on next page
32 • Continued from previous page • Seek to inspire more than they seek to control • Are values based and altruistic • Talk Straight • Remain fact-based and evidence led • Demonstrate Respect • Create Transparency • Right Wrongs • Confront Reality • Clarify Expectations • Remain Accountable Leadership training in the region should include emphasis on Leading and Managing in Crises and Disasters 7. Make Resilience an Operational Cornerstone of our Sustainable Development Thrust CARICAD defines resilience as is shown here: Resilience: The ability to resist, absorb, accommodate to and recover from the effects of hazards, emergencies and crises in a timely, effective, efficient and sustainable manner with the preservation and restoration of essential structures, systems, functions and services to create capacity for transformation and future adaptation to new realities. – CARICAD • Continues on next page
33 • Continued from previous page • Continued from previous page True resilience must go beyond replacing infrastructure. It must include a mindset that accepts vulnerability while having the competence to respond well to crises and disasters. 8. Create and Sustain Local Capacity for the Management of Postcrisis or Post -disaster Aid Whenever there is disaster in a Caribbean country, a large number of Development Partners and voluntary organisations descend on the affected country. One of the challenges that often arises, is a “sense of take over” by such agencies. A perception arises that local people have been sidelined and the country can do little to save itself. While it true that small countries need help in the aftermath of a disaster it is important that a country does not lose its sense of control, capacity or local leadership. That can only happen if capacity continues to be built among nationals on a consistent and continuous basis. A former commercial, three-story commercial building in Plymouth, with the first story almost now completely hidden by volcanic material and regrowth. 9. Site or Locate Critical Infrastructure Carefully The repeated damage to and losses of critical facilities such as ports, airports, hospitals, clinics, schools and other infrastructure often set back our development efforts sometimes by decades and thus require the reallocation of scare financial resources over and over again. There are many issues associated with the construction of critical infrastructure and as such, recommended principles and practices should be incorporated into policy and law by all countries as a matter of urgency. 10. Create a National Disaster/Contingency Reserve Fund Some Caribbean countries have already established Contingency or Disaster Funds in which the Government sets aside an annual sum of money to be held as a contingency for use in the event of a crisis or disaster. The global geo-political climate that is now emerging in relation to aid, suggests that such funds could become not only pivotal but essential. Such funds should be established with all appropriate and relevant legislation, controls guidelines and procedures. The expertise which has been developed by officials in Montserrat should be harnessed as a regional resource. There should be initiatives for extensive documentation of the Montserrat experience drawing upon such expertise. Franklyn Michael – Permanent Secretary Emergency Department Montserrat 1997
34 T here was a change of Government in Montserrat in October 2024. The United Alliance Government led by Reuben T. Meade, the island’s Chief Minister at the time of the volcanic events in 1995, took office for the second time now as the Premier. The Government presented its budget on April 8, 2025. The budget identified and indicated the provision of financial resources for the varying sector specific needs across priority sectors such as: • Access • Aviation and Maritime Development • Agriculture, Lands and Survey, Environmental Management, Housing • Broadcasting and Communication • Buildings, Utilities, Infrastructure & labour (BUILT ) – Major Initiatives • Digital Transformation • Disaster Management Coordinating Agency • Education • Energy and Utilities • Health Care Improvement and Transformation • Information and Communication • International and Regional Relations - Police and Fire Services - Public Service Delivery • Tourism - Youth Affairs and Sports The following is an excerpt from the budget. It is being used here to show the priorities for government action in the short-term, as the Montserrat continues to rebuild. The Government is committed to attracting both foreign direct and local investment to drive economic growth. This presentation is also a call to our diaspora to unite and invest in key sectors that show significant growth potential, such as agriculture, real estate, tourism, renewable energy, infrastructure development, financial services, and the digital economy, among others. With investment in these areas, we can create jobs, stimulate innovation, and build a stronger, more resilient economy for the benefit of future generations. In agriculture, there are major opportunities, especially in the area to local food production. That is because our annual food import bill stands at $18 million, while local food production, including crops and livestock, amounts to just over $2 million. It is time to make food sovereignty a priority. I emphasise sovereignty rather than security because our goal is not just to ensure access to food, but to build a resilient, self-sufficient system where production, distribution, and consumption are conducted sustainably. As a result, we would be able to reduce our dependence on imports and strengthen our local agriculture industry. At the same time, creating a more secure, sustainable, and prosperous future for Montserrat. Government will continue to develop policies for agricultural growth; improve access to arable farmlands and agricultural infrastructure; implement better pest and livestock control measures; boost local production through irrigation and access to water; promote sustainable farming through new technologies and invest in youth and community engagements to encourage participation in farming. These efforts will not only build resilience against global supply chain disruptions. They will also create a healthier, more sustainable food system, thereby ensuring that Montserrat’s future is both foodsecure and economically self-reliant. Madam Speaker, a healthy nation is a wealthy nation. We extend our sincere gratitude to the ECCB for its pledged $2.1 million support for our agricultural sector. This investment will play a vital role in strengthening food security, enhancing productivity, and driving sustainable growth in the industry. Madam Speaker, the government is also committed to fostering new synergies between agriculture and tourism, as this collaboration creates mutual benefits for both sectors while boosting employment opportunities. Tourism remains a cornerstone of our economy, and we have seen a steady recovery in the post-pandemic era. The return of stay-over visitors and the resurgence of cruise ship arrivals have provided a significant economic boost. We will continue to support the Montserrat Tourism Authority in promoting the island as a unique travel destination, with • Continues on next page
35 • Continued from previous page a focus on our rich heritage, natural beauty, eco-tourism opportunities, the transformative volcanic experience, and our very safe environment. This strategic approach will help us to attract more visitors and strengthen the island's economic resilience. Madam Speaker, with these opportunities for our enhanced tourism potential, our vision must include additional accommodation for our visitors. We face a significant shortage of hotel accommodation, limiting our ability to host the growing number of tourists and making it increasingly challenging to secure lodging, especially during peak travel seasons. To address this pressing issue, your government is exploring the feasibility of developing a hotel in the Little Bay area with a capacity of approximately 120 rooms, as well as engaging with investors to explore other possibilities. The aim is to enhance our accommodation infrastructure, meet growing demand, and further boost our tourism sector. Madam Speaker, there are other factors which must be considered to boost the tourism sector. This Government has already taken proactive steps to address access challenges, making it easier for both people and goods to move in and out of Montserrat. These efforts are designed to attract more visitors and strengthen business connections with neighbouring islands. We will continue to explore medium and long-term improvements to both air and sea access, ensuring they support the sustainable growth of our economy and enhance our connectivity on a regional scale. As part of our growth thrust, the necessary infrastructure must be in place to attract and retain our population. In that regard, this government remains committed to expanding and improving the island’s housing stock. Ongoing discussions with contractors are centred on the construction of twoand three-bedroom units, tailored to meet the needs of single working individuals and returning nationals. This initiative aims to provide affordable, high-quality housing while supporting community development and social stability. Madam Speaker, Montserrat continues to grapple with a persistently high cost of living, a challenge that may be further exacerbated by the ripple effects of geopolitical tensions. Our heavy reliance on imports, geographical constraints, and small population are key contributing factors. Additionally, high energy costs, driven largely by our dependence on imported diesel, place an added burden on households and businesses. These pressing realities call for decisive and strategic action from your government to mitigate economic pressures and build a more resilient future. Madam Speaker, to meet the challenges and address some of these issues, this Government will seek to implement targeted fiscal relief initiatives designed to ease financial burdens on our people while fostering economic growth. Key measures will include Construction Support, Import Tax Relief, and the Reintroduction of a Tax-Free Child Allowance. We will seek to lower tariffs on essential building materials, making homeownership and development more accessible. We will seek to reinstate a taxfree child allowance to provide relief for working parents. We will seek to adjust Customs Duties and Consumption Tax by reducing the freight component used to calculate the Customs Value. This adjustment will directly lower the cost of imported goods, making essential items more affordable for consumers and businesses alike. Madam Speaker, this Government will continue the renewable energy thrust, ensuring a more stable and affordable future for all residents. By investing in solar Phot Voltaic (PV) and geothermal power, we will reduce our reliance on imported diesel, which is vulnerable to global price fluctuations and drives up the cost of living. This shift will stabilise electricity prices, lower household and business expenses, and help control inflation. My Government will implement these initiatives responsibly to ensure long-term economic stability, energy security, and a better quality of life for our people. We are committed to harnessing Montserrat’s natural resources to build a resilient, self-sufficient, and prosperous nation. The future may be filled with uncertainty, but with competent leadership providing a steady hand at the helm, we will navigate these challenges and emerge stronger. Your Government is committed to ensuring a future of growth, sustainability, and prosperity for all Montserratians and residents. Together, as “One Montserrat’, we will embrace opportunities, invest in our future, and build a selfsufficient and thriving economy. Let us all remain united in our efforts to make this vision a reality, for the betterment of our island and future generations.
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40 T he Montserratians identified below, made the publication of this special edition of the Horizon newsletter in its current form, possible. They provided assistance in various ways. Some were kind enough to submit original articles. Others agreed to the use of materials originally prepared for the Soufriere Hills Volcano Conference (SHV 30) or granting permission for the use of rare photographs or undertaking document searches. CARICAD says a hearty “thank you” to all of them. Premier Reuben T. Meade Dr. Graham Ryan Ms. Sarita Francis Ms. Rosetta West-Gerald Lt. Col. Alvin Ryan Ms. Veta Wade Ms. Lavern Rogers-Ryan Ms. Michelle Cassell Photo Credit: The Montserrat National Trust. THE TEAM The CARICAD Horizon is a regular publication of the Caribbean Centre for Development Administration (CARICAD). The Horizon has superseded the “Chronicle”. The Editor-in-Chief is CARICAD’s Executive Director, Devon Rowe. The Production Team comprises: Franklyn Michael, Rosemund Warrington, Dr. Lois Parkes, Trudy Waterman, Angela Eversley, Roje Sealy, Keishana Trotman and Petra Emmanuel. Special Hurricane Edition July 2025 March 2025 December 2024 August-September 2024 Special Hurricane Edition July 2024 March-April 2024 February 2023 March 2022 December 2021 Previous editions can be viewed at: October 2021 Special Hurricane Edition June 2021 March 2021 October 2020 July-August 2020 Special Hurricane Edition June 2020 Special COVID-19 Edition May 2020 March 2020 December 2019 October 2019 Board Meeting 2019 Special Edition April 2019 December 2018 August 2018 December 2017 July 2017 1st Floor Weymouth Corporate Centre, Roebuck Street, Bridgetown, Barbados Tel: 246-427-8535 Email: caricad@caricad.net Website: www.caricad.net
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