Blog by Shivangi Chavdaa, GNDR’s Head of Programmes. This blog was first published by PreventionWeb.
In October 2024, devastating floods swept through Valencia, Spain, claiming over 200 lives. The tragedy shocked a country known for having one of Europe’s most advanced meteorological systems. Forecasts were accurate. Alerts were issued. Technology worked. Yet people died. Why? Because early warnings do not automatically lead to early action.
The Valencia disaster is not an exception. It is sadly a recent example of a recurring pattern: despite vast improvements in forecasting tools and hazard monitoring systems, communities often remain unprepared, vulnerable, and unsure of what to do when disaster strikes. A similar situation unfolded in Mozambique during Cyclone Idai in 2019, where early warnings were issued, but thousands remained exposed due to poor communication infrastructure, limited preparedness, and lack of evacuation options – resulting in over 900 deaths.
These cases – one in Europe, another in the Global South – point to a fundamental truth: technology alone cannot save lives.
The missing link is public engagement.
Warnings without trust, understanding, or action
What happened in Valencia revealed a profound disconnect between early warning systems and the people they are designed to protect. While meteorological agencies issued alerts, those warnings didn’t translate into protective action for several reasons:
- Warnings were delayed or unclear at the municipal level, especially in areas with high numbers of elderly and foreign-language-speaking residents
- People didn’t know how to respond; evacuation routes were confusing or unmarked, and disaster plans were outdated or not communicated
- Urban planning ignored floodplain risks, increasing the vulnerability of built environments
- Lack of trusted local leadership led to confusion and inaction
- Government agencies hesitated, awaiting bureaucratic approval to act, even as lives were at risk
Despite the right information being available, the wrong delivery mechanisms, unclear responsibilities, and lack of public trust meant the warnings were ineffective
Early warning is not one-way communication
Too often, early warning systems are built as technical tools, not community systems. They are driven by data, forecasts, and algorithms – but they fail to ask: will people understand and act on this?
People don’t act on what they don’t trust, understand, or feel part of.
- Warnings are issued, but not understood – when messages are delivered in technical jargon or top-down formats.
- Warnings are heard, but not trusted – especially if communities were not involved in assessing risks or designing the system.
- Warnings are received, but not actionable – when people lack clear guidance or resources to respond effectively.
This creates what the Global Network of Civil Society Organisations for Disaster Reduction (GNDR) calls the “warning–action gap.” It’s not just about timing or infrastructure – it’s about inclusion, relevance, and ownership.
Public engagement is the engine of early action
The Valencia floods revealed a failure not in forecasting, but in engagement. Public engagement is not an optional extra – it is the engine that transforms warnings into action. Without it:
- Warnings remain top-down alerts, not community-owned tools;
- Messaging is misunderstood, mistrusted, or lost in translation;
- Response plans stay on paper – disconnected from reality.
For early warning to become early action, people must co-own the system. This means involving communities not only as recipients of information but as architects of their own resilience.
Co-ownership, not just communication
The way forward is clear: communicating risk is not enough – we must co-create solutions.
This requires a fundamental shift in how early warning systems are designed and delivered. Systems must be:
- Locally embedded – with civil society organisations (CSOs), local leaders, and community volunteers fully integrated
- Culturally and linguistically appropriate – delivered in local languages and formats that make sense
- Participatory – where communities help identify risks, define thresholds, and design responses
- Actionable – with clear, context-specific instructions, accessible resources, and inclusive planning
Preparedness must be people-powered, not only institution-driven.
GNDR’s work: Redefining public engagement
At the Global Network of Civil Society Organisations for Disaster Reduction (GNDR), public engagement is central to our approach. Working across 130+ countries, GNDR empowers communities, local organisations, and government actors to bridge the gap between information and action.
Here’s how:
- Our global survey on Localised Early Warning Systems confirms that the most effective systems are shaped by local knowledge and owned by the people they serve
- Programmes like Views from the Frontline and Local Leadership for Global Impact help communities assess their own risks, co-design preparedness plans, and hold institutions accountable
- We support multilingual and inclusive consultations, with particular outreach to women, youth, people with disabilities, and older persons – ensuring no one is left behind
- Our toolkits on Locally Led Anticipatory Action and Localising Climate Projections help translate scientific data into understandable, community-led action strategies
- We advocate for global policy shifts that put communities in the driver’s seat, transforming early warning into coordinated, inclusive, and trusted early action
Through this model, GNDR is redefining public engagement – not as outreach, but as shared leadership and responsibility.
From global goals to local action
The United Nations Early Warnings for All (EW4All) initiative aims to ensure that every person on Earth is protected by early warning systems by 2027. But as the Valencia floods have shown, warnings alone are not enough. Protection comes when people are not only warned – but are engaged, empowered, and prepared.
If early warning systems are to fulfil their promise, they must be grounded in trust, local knowledge, and public ownership. Anything less risks turning the most sophisticated system into a silent alarm.
An early warning is not a success unless it becomes early action. And for that, public engagement is not a nice-to-have – it is the foundation.