The 2024 Spain Floods: Failures in Early Warning, Action, Coordination, and Localisation

Blog by Shivangi Chavda, GNDR’s Head of Programmes, with contributions from Marcos Concepcion Raba, GNDR’s Executive Director, and Alicia Daza, GNDR National Focal Point for Spain and Head of Training and Researcher at the Institute of Studies on Conflicts and Humanitarian Action.

In late October 2024, Spain experienced one of its deadliest floods in decades, with the Valencia region and nearby areas suffering devastating impacts. Over 200 lives were tragically lost, thousands were displaced, and the destruction of infrastructure and livelihoods was extensive. It exposed critical shortcomings in Spain’s disaster preparedness, particularly in areas where rapid urban expansion had encroached upon natural river floodplains. The floods, driven by an isolated low-pressure system that dumped over a year’s worth of rain in just hours, forced rivers to “reclaim” their historical paths, devastating homes and infrastructure built on natural flood zones. 

Failures in Early Warning, Early Action, and Localisation

Spain has advanced meteorological systems, however, the floods highlighted significant flaws in early warning dissemination, community preparedness, and localised response:

• Delayed and ineffective communication of warnings
  Although Spain’s national weather agency issued severe warnings well in advance, delayed communication at local levels hindered timely action. Warnings failed to reach communities early enough to prevent loss of life and property. A more community-centred approach – where local networks and trusted leaders play a critical role – could have  delivered warnings more promptly and effectively.

• Encroachment on natural floodplains
  The destruction caused by the floods was worsened by widespread urban development on natural floodplains – areas historically reserved for river overflow.  This built environment left communities unprotected when the rivers reclaimed their paths. This serves as a reminder of the importance of respecting natural landscapes in urban planning and that by adopting climate-sensitive, localised planning, we can mitigate future risks.

• Lack of localisation in preparedness and response
  Many affected communities were ill-prepared for a hazard of this scale. as disaster planning and risk communication were not tailored to the unique needs of each community. Local leaders and organisations were underutilised, leaving residents with limited knowledge of evacuation routes or emergency protocols. Localising disaster preparedness by engaging community leaders and adapting protocols to specific needs could have empowered residents to respond more effectively. Notably, over half of the victims in 28 municipalities (104 dead) were over 70 years of age. This starkly demonstrates the urgent need for disaster plans to be more inclusive, addressing the needs of all community members.

• Limited integration of technology with local community systems
  Spain has robust national meteorological resources, but these were not sufficiently integrated with local communication systems. This disconnect reduced the impact of early warnings, as communities lacked clear instructions on what actions to take. Combining community networks, local knowledge, and technological tools could make early warning systems (EWS) more accessible, trusted, and effective.

• Lack of perception of the risk itself
  At the national level, Spain has not been particularly active in this area. Its approach is characterised by a low perception of risk, a very old-fashioned approach to disasters and plans that focus excessively on response and very little on prevention, preparedness or mitigation tasks. This, taken together with a complex distribution of decision-making powers and an obsolete legal framework, have meant that, despite having signed both the Hyogo and Sendai Frameworks, Spain has not made much progress in complying with either.

Impact of Decentralised Regional Systems and Lack of Coordination

Spain’s decentralised regionalised system, while beneficial for localised governance, presented challenges that hindered effective disaster response:

• Fragmented Communication Between National and Local Authorities
  Spain’s decentralised regional structure divides disaster management responsibilities across national, regional, and municipal levels. During the floods, discrepancies in warning interpretation and response led to delays in evacuation orders and impeded response efforts. A more localised communication structure could have ensured that warnings reached residents promptly.
  

• Delays in emergency response due to jurisdictional gaps
  Poor coordination between national and regional authorities caused significant delays in deploying critical emergency resources Despite the Military Emergency Unit (UME), under the central government, being prepared and stationed in affected towns, they were unable to operate without the legal mandate from the regional government. This jurisdictional gap, stemming from the absence of a “national emergency” declaration, shows the danger of  bureaucratic procedures and fragmented decision-making when urgent disaster response is needed to protect vulnerable communities.

• Lack of a unified emergency response framework
  The absence of a cohesive response framework led to inconsistent actions across regions. In some areas, evacuation protocols were promptly enacted, while others experienced delays, creating confusion and further endangering lives. A coordinated framework could provide consistent guidance across all regions.
  

• Limited community trust in government response
  Weak coordination and unclear communication from different government levels contributed to community distrust. Many residents were unsure whom to rely on for guidance due to conflicting messages. Integrating local leaders and organisations in official planning could enhance trust and credibility, making it easier for residents to act on official advice.
• Challenges in risk governance and civil protection
  While decentralisation is often viewed as a challenge, a critical limitation lies in the lack of devolved risk governance at the local level. Spain has yet to develop a comprehensive risk management plan aligned with the Sendai Framework for Disaster Risk Reduction. This, coupled with the civil protection system’s limited competencies beyond response coordination, highlights gaps in proactive risk management and local-level action. These systemic shortcomings may have significantly contributed to the lack of effective disaster preparedness and response measures at the community level.

Key Improvements Needed in Early Warning, Localisation, and Action Systems

• Enhance localised communication channels
  Spain should invest in multi-layered communication systems that engage local leaders and trusted community networks in delivering warnings. Mobile alerts, social media, and loudspeakers are essential for reaching people quickly and in locally relevant ways.

• Enhancing timeliness and coordination in early warning dissemination
  The Valencia floods exposed serious discrepancies in early warning dissemination,  national and regional coordination and the responsiveness of early action mechanisms. While the regional government of Valencia delayed acting on alerts from the national meteorological agency – sending mobile phone warnings only after fatalities had already occurred – proactive measures were taken elsewhere. For instance, the Japanese embassy in Spain, acting on the same alert, notified its residents a day in advance, advising them to avoid the area or remain indoors. This sharp contrast shows the importance of timely and effective communication channels and the need for local authorities to prioritise swift, proactive measures to safeguard lives.

• Develop climate-resilient, locally informed urban planning
  Urban planning must respect natural landscapes and avoid flood-prone areas. Allowing rivers space to expand without endangering communities and developing building codes that consider historical flood data can mitigate future disasters.
  

• Empower local leaders in community-based disaster risk reduction (DRR)
  Training and empowering local leaders in risk reduction and response planning ensures communities have the knowledge and resources they need. Community-led drills, evacuation planning, and risk mapping can increase resilience at the grassroots level.
  

• Establish a centralised disaster response agency with local authority
  A dedicated national agency with regional authority could streamline response efforts, reducing bureaucratic delays and facilitating faster resource deployment to areas in need. Mandatory coordination protocols should be in place to ensure proper early action and coordination.
  

• Integrate community networks with technological EWS
  A hybrid early warning system that combines technology with community networks can make warnings more effective. Local leaders can help disseminate information, ensuring that everyone understands the warning and knows how to respond. For example, the areas affected by the floods were home to about 100,000 foreigner residents, with two official languages spoken.  The warnings should have been communicated in both languages to ensure all residents received the information needed to take appropriate action. 

Lessons from the Global South: Effective Early Warning, Localisation, and Action Models

Countries in the Global South have developed effective, localised approaches that offer valuable insights for Spain:

• Community-based Early Warning Systems (Bangladesh)
  Bangladesh’s decentralised EWS relies on community networks to relay warnings quickly to residents. Trained volunteers play a crucial role in monitoring weather and delivering warnings, demonstrating how localised systems can enable swift community action.
  

• Inclusive disaster planning (Nepal)
  Nepal involves communities at every disaster management stage, from risk mapping to planning. Local residents gain awareness of risks and evacuation routes, fostering ownership and trust. Spain could adopt similar participatory approaches to increase community support and engagement.
  
  
• Integrating indigenous knowledge (Sub-Saharan Africa)
  In Sub-Saharan Africa, countries integrate indigenous knowledge with modern DRR practices, creating solutions that are locally relevant and sustainable. Spain could benefit from incorporating traditional knowledge of landscape management and flood patterns to inform urban planning in vulnerable areas. 

Conclusion

Sadly, it didn’t have to be this way. With stronger early warning systems, localisation and an efficiently coordinated disaster response, it is very possible that many lives and livelihoods could have been saved. 

We know that listening to local voices, engaging their expertise and empowering their leadership is central to building resilience. To prevent hazards from becoming disasters, effective DRR and its management must prioritise engaging communities as equal partners, empowering local leaders, and leveraging grassroots networks to complement advanced technological solutions. 

GNDR’s commitment to localisation provides valuable insights into how these approaches can drive risk reduction and resilience-building. For example, our Localising Climate Projections toolkit and Locally Led Anticipatory Action guide and toolkit, aim to develop a bottom-up approach towards effective and well coordinated risk governance mechanisms to reduce impacts of disasters.

We have worked closely with our  members in the Global South to showcase community-centred models that significantly enhance disaster preparedness, and have influenced policies and practices. In Cameroon, our Views from the Frontline project surveyed 400 frontline communities across seven administrative regions. We found significant barriers to effective disaster risk management (DRM), such as over-centralisation and a reactive approach to disaster management. The project recommended creating an autonomous National Disaster Risk Management Agency with a community-driven, bottom-up approach. An approach that emphasised the importance of participatory processes in improving DRM efficiency. Such initiatives highlight how localised solutions empower communities to anticipate risks and act decisively.

By adopting proven strategies from the Global South – community-based EWS, participatory disaster planning, and integrating local knowledge – Spain can develop a more resilient and locally adapted system, and improve coordination between the different layers of responsibility and decision-making.