Why Empowering Communities is Key to Effective Climate Change and Disaster Risk Reduction

In May 2023, the Emilia-Romagna region experienced one of the most devastating floods in its history. Torrential rains triggered a disaster that submerged entire towns, displaced over 23,000 people, and claimed 17 lives. Families lost not only their homes but their livelihoods, as agricultural fields, critical to the region’s economy, were destroyed. This event underscores the growing human toll of climate-related disasters.

In 2023, the world faced 399 natural disasters, resulting in a death toll of 86,473. This figure also includes those still unaccounted for(CRED, 2024). Beyond the devastating human impact, the economic consequences have also been staggering. From 1980 to 2023, climate-related extremes cost EU Member States an estimated €738bn, with over €162bn recorded between just 2021 and 2023 (EEA, 2024).

Italy stands out as one of the world's climate hotspots, facing some of the highest risks globally with the regions of Veneto, Lombardy, and Emilia Romagna among the most affected (XDI, 2024). Between 1980 and 2023, Italy incurred economic losses totaling over €133,900 and recorded 21,822 fatalities due to climate-related disasters (EEA, 2024).

From extreme floods to heatwaves, climate-related disasters are no longer distant threats, but an ever-present reality. The pressing question is: how do we adapt to such an unpredictable and changing climate?

The levees and embankments that have been built to prevent flooding in Emilia Romagna have created a false sense of security, encouraging construction in areas prone to climate-related risks. Moreover, these hard infrastructures have altered river flow patterns, leading to more severe downstream flooding during extreme events. This maladaptation underlines the importance of solutions that leverage local knowledge and ensure inclusive participation to create sustainable adaptive strategies. While top-down, technical approaches sometimes amplify risks, bottom-up approaches – those that engage communities in shaping strategies – have proven to be more effective in building resilience (McNamara & Buggy, 2017; Kelly & Adger, 2000).

This is because participatory approaches build on existing local networks to develop strategies that resonate with specific environmental, social, and cultural contexts. Involving communities in the co-creation of solutions makes these strategies more contextually relevant and ensures that the needs and priorities of the people most affected are central. Furthermore, bottom-up and community-based approaches foster a sense of ownership and empowerment among community members. As a result, people become more aware of the risks they face, develop the skills needed to tackle them, and feel more committed to implementing the solutions.

Returning to the example of the Emilia Romagna floods, a community-based solution could include the formation of local watershed council composed of residents, farmers, and municipal representatives to co-manage floodplains. Partnering with NGOs to educate communities on sustainable land-use practices, such as reducing soil sealing and encouraging permeable landscaping in urban areas, could also play a vital role as couldinvolving community members in mapping areas for flood defence infrastructures or wetland restoration. In this way, communities would gain a deeper understanding of risk management and become better prepared for extreme events. Moreover, the valuable insights of residents who have observed local conditions over decades would address aspects often overlooked in top-down planning processes.

In any case, there are many ways through which the community can be involved in climate change adaptation and risk reduction.

“Degree of participation” refers to the extent of community involvement in decision-making during strategy planning. Authorities may choose to simply inform communities about natural disaster risks and how to prevent and respond to them. Alternatively, they might seek community input, for example, by gathering local knowledge to identify flood-prone areas in a city. Another approach is consultation, where community opinions are considered, and discussions are encouraged, though external actors retain decision-making power. The deepest level of participation is co-design, where decision-making becomes a collaborative partnership between communities and policymakers.

Participation involves deciding who and how many people to involve, known as the “level of inclusion.” Engagement can range from the entire community to specific members, with varying attention to minority groups, gender, and socio-economic diversity. This choice depends on community expertise, available resources such as time, money and staff, and the process’s goals. While high inclusion ensures diverse perspectives and representative decisions, involving fewer people can streamline the steps that require expert input. The key challenge is balancing representation with effective engagement.

Finally, participation varies depending on the tools and activities used to engage the community. We identified a range of methods to inform, gather information from, consult, and co-design with community members. These tools should be selected based on the number of participants involved and the mode of communication – whether online or in person. Additionally, the choice of activities should align with the specific goal of the engagement, such as assessing risks or vulnerabilities, designing strategies, implementation, or monitoring progress.

The matrix below helps identify the most suitable tool based on specific criteria outlined in the first and second rows. 

Among the most innovative tools are Scenario Adaptation Pathway, Transect Walks, and Serious Games. The Scenario Adaptation Pathway is particularly effective for involving a community in planning adaptation strategies under uncertain conditions, such as climate change. It helps outline a series of actions to take over time, with built-in flexibility to adjust if one option becomes ineffective. This ensures progress remains on track as situations evolve. For example, a coastal town might plan to reinforce its seawall as sea levels rise, but if that proves insufficient, the strategy could shift to a managed retreat from the area. You can explore how to implement a Scenario Adaptation Pathway with this Playbook or use this Pathways Generator to map potential policy pathways.

A Transect Walk is a field data collection method where community members walk along a predefined path to observe and gather insights about their local environment, vulnerabilities, and resources. This method leverages local knowledge to uncover details that might be missed by an outsider. For instance, farmers might wall through their fields to identify soil erosion patterns and adjust conservation measures accordingly.

Finally, Serious Games combines social learning with entertainment. Participants take on the role of players engaged in simulations of climate change scenarios, as well as decision-making processes. This enables them to explore the consequences of their choices and actions in a controlled environment. You can test your ability to save the planet from the worst effects of climate change by playing The Climate Game or challenging your friends with one of these interactive games.

Local authorities play a central role in developing territorial plans and strategies for climate change adaptation. However, their efforts cannot succeed without the active involvement of the local community. Citizen and stakeholder participation ensures that solutions are both contextually appropriate and sustainable over time.