How two-way communication closes disaster risk perception gap

The research outlines numerous systemic barriers hindering effective communication in disasters. Chief among them is the lack of public trust, especially in government agencies, which undermines the credibility of official information during crises. This issue was heightened during the COVID-19 pandemic, where inconsistent messaging, scientific jargon, and delayed updates fueled misinformation and deepened skepticism.

A new study published in Frontiers in Communication calls for a major overhaul of public risk communication strategies across the European Union, emphasizing that two-way, trust-based engagement with citizens is essential to effective disaster management. The research, titled “Enhancing Two-Way Communication in Disaster Management in the EU—Practical Insights,” stresses that outdated one-way communication models are no longer sufficient in an era shaped by complex crises, social media misinformation, and diverse population needs.

The study analyzes the findings of two major EU-funded projects, PANDEM-2 and RiskPACC, which examined communication strategies during crisis situations such as the COVID-19 pandemic and explored co-creative frameworks and tools for improving dialogue between civil protection authorities and the public. 

What are the biggest challenges in risk communication today?

The research outlines numerous systemic barriers hindering effective communication in disasters. Chief among them is the lack of public trust, especially in government agencies, which undermines the credibility of official information during crises. This issue was heightened during the COVID-19 pandemic, where inconsistent messaging, scientific jargon, and delayed updates fueled misinformation and deepened skepticism.

Practitioners involved in PANDEM-2 workshops emphasized that risk communication must begin before disasters occur. Trust must be established during non-crisis periods, and maintained through transparent, responsive, and culturally relevant messaging. Inconsistent messages across agencies, political interference, and failure to counter misinformation in real time were cited as major pitfalls during the pandemic.

Additionally, the researchers point to a mismatch between public risk perception and expert assessments - what they call the risk perception-action gap. Vulnerable populations, including immigrants, the elderly, and low-literacy groups, often miss key updates due to inaccessible language, lack of digital access, or mistrust in authorities. The study concludes that any risk communication system that fails to recognize these structural disparities will fall short in real-world application.

How can two-way communication close the risk perception gap?

The RiskPACC project responded to these challenges by designing and testing co-creative tools and methods aimed at embedding two-way communication between civil protection agencies and local populations. A central innovation was the Collaborative Framework, a modular strategy guide structured around four pillars: Understanding, Sharing, Relating, and Building. This approach allows local stakeholders and authorities to jointly assess risks, develop communication strategies, and maintain long-term engagement.

The framework was tested through workshops in six EU case studies, where participants from vulnerable and general populations collaborated with civil protection authorities. Exercises included participatory mapping, co-designed storytelling, and iterative tool testing, ensuring that both parties shaped communication strategies together rather than receiving top-down directives.

Technology also played a key role. The RiskPACC team developed several digital tools to enable bi-directional disaster communication. These include the Aeolian AR app, which merges augmented reality with citizen reporting features; the HERMES platform, a localized social media network for targeted alerts and citizen feedback; and the PublicSonar tool, which uses AI to perform sentiment analysis on social media to detect misinformation or emotional trends during a crisis.

Another innovation, the Mapping Damage Tool, enables crowdsourced geographic data on hazards like floods and wildfires, and the ThermalComfort Tracker collects temperature comfort data to support targeted heatwave responses. Together, these tools not only expand authorities' situational awareness but also actively involve the public in the data loop, reinforcing trust and agency.

How can these lessons be applied beyond the research projects?

While the tools and frameworks developed in PANDEM-2 and RiskPACC were tested in controlled environments and pilot case studies, the researchers emphasize the urgent need for broader implementation. According to the study, most participating public agencies recognized the principles of effective communication, simplicity, timeliness, consistency, and accessibility, but struggled to operationalize them due to limited resources, outdated infrastructure, and insufficient training.

The findings show that trust is not something that can be conjured in the moment of crisis; it must be built over time through consistency and openness. Organizations that ridiculed citizen fears or failed to engage with emerging narratives on social media quickly lost legitimacy. In contrast, those that partnered with journalists, local leaders, influencers, or citizen scientists were more successful at correcting misinformation and maintaining relevance.

However, even the most well-designed digital tools have limitations. Effective use of platforms like HERMES or PublicSonar requires digital literacy, reliable infrastructure, and continuous institutional support, resources that may not be uniformly available across all EU member states. The study cautions against assuming technological fixes alone can replace meaningful human engagement and community relationships.

To support long-term adoption, RiskPACC developed a dedicated guidebook and online platform offering training materials and a repository of successful practices. These include templates for press releases, FAQs, multilingual infographics, and even board games designed to foster communication strategies collaboratively. Still, the authors acknowledge that post-project funding and maintenance remain unresolved challenges.