MakingEarlyWarningsWorkforAll:

PeopleCentredDesign

April2025

GSMA

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GSMAMobileforHumanitarian

Innovation

TheGSMAMobileforHumanitarianInnovationprogrammeworkstoacceleratethedeliveryandimpactofdigital

humanitarianassistance.Thisisachievedbybuilding

alearningandresearchagendatoinformthefutureof

digitalhumanitarianresponse,catalysingpartnerships

andinnovationfornewdigitalhumanitarianservices,

advocatingforenablingpolicyenvironments,monitoringandevaluatingperformance,disseminatinginsightsandprofilingachievements.

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Authors:

TylerTappendorf,TAPT4DesignConsulting

SusannaAcland,GSMAMobileforHumanitarianInnovationprogramme

Acknowledgements:

Wewouldliketothank17Triggersandothercontributorstoourreport

EnhancingInclusioninMobile-EnabledRisk

Communications:LessonsfromSouthAfrica

,originallypublishedinJune2024andrepurposedforthispublication.

Contents

Acronymsandabbreviations2

Executivesummary3

Introduction5

Lessonsfromhuman-centreddesignresearchinSouthAfrica6

andTanzania

Userinsights6

Systemdesign6

Socialandculturalfactors7

Thehuman-centreddesignresearchprocess8

Pre-fieldworklandscapemapping8

Choosinganalyticalframeworks9

Selectinglocationsandparticipantsforfieldresearchactivities10

Conductinguserresearch11

Toolsandresearchmethodsfordesigningearlywarningsystems12

Personabuilding13

Channel,influenceranddigitalmapping14

Agree/Disagreecards15

Testingicons,colours,symbolsandterminology16

CrazyEightsprototypebuilding17

Pitchtesting18

Mindsetsforsuccessfulhuman-centreddesignresearch19

Conclusion20

Acronymsandabbreviations

CCW

Co-CreationWorkshop

M4H

MobileforHumanitarianInnovation

EW4All

EarlyWarningsforAll

MHEWS

Multi-HazardEarlyWarningSystem

EWS

EarlyWarningSystem

MNO

MobileNetworkOperator

FGD

FocusGroupDiscussion

SARCS

SouthAfricanRedCrossSociety

HCD

Human-CentredDesign

TRCS

TanzaniaRedCrossSociety

IFRC

InternationalFederationofRed

CrossandRedCrescentSocieties

UNDRR

UnitedNationsOfficeforDisasterRiskReduction

WMO

WorldMeteorologicalOrganization

2/22

3/22

Executivesummary

Asclimate-relateddisastersintensify,theneedfor

effectiveandinclusiveearlywarningsystems(EWS)hasneverbeenmoreurgent.Theeffectivenessof

anEWSisnotjustaboutthetechnologyorthe

numberofpeopleitreaches,itisaboutitsabilityto

drivemeaningfulactionatthecommunitylevel.To

ensureEWSaretrusted,understood,andactedupon,theymustbedesignedwiththelivedexperiences,

preferencesandchallengesofcommunitiesinmind.

Recognisingthis,theGSMAMobileforHumanitarian(M4H)programmeconductedresearchinSouth

AfricaandTanzania,inpartnershipwithnationalRedCrossSocieties,aspartoftheEarlyWarningsforAll(EW4All)initiative.InSouthAfrica,researchteams

focusedonhowEWScanbemoreinclusiveand

reachmarginalisedpopulationslikemigrants,womenandolderpeople.InTanzania,theobjectivewasto

identifycommunitypreferencestomakeEWSmoreeffective.

Throughtheseprojects,theM4Hteamleveraged

human-centreddesign(HCD)approachestoput

peopleatthecentreofEWSdesign.Theseexercisesengagedcommunitiesdeeplyanditeratively,usingcreativeresearchtoolstodeveloptailoredsolutions.

Theresearchreinforcedthatdesigningpeople-

centredEWSrequiresmorethanissuingalerts,

itrequiresmulti-facetedsolutionsthatalignwiththesocial,culturalandbehaviouraldynamicsthatinfluencewhetherindividualstakeaction.

OngoingdiscussionswithEWSstakeholdersindicatethatsimilarresearchisinhighdemandworldwide,

withgovernments,nonprofitsandtheprivatesectorworkingtounderstandhowtohelpcommunities

prepareforthegrowingthreatsofclimatechange

andrapid-onsetweatherdisasters.AsglobaleffortstoexpandEWScontinueundertheEW4Allinitiative,thisreportillustrateshowHCDresearchcanbe

appliedinothercontextstoinformEWSdesignandoffersapracticalroadmapforapplyingHCDresearchmethods.ItsharesinsightsfromSouthAfricaand

Tanzania,methodologiesforengagingcommunities,andkeyprinciplesfordesigningresponsive,user-

friendly,andcontextuallyappropriateEWSsolutions.Throughsuchapproaches,EWSstakeholderscan

developEWSthatarenotonlytechnicallysoundbutalsosociallymeaningful,ensuringtheyeffectively

savelivesandenhanceclimateresilienceinanincreasinglyunpredictableworld.

Whyhuman-centreddesign?

Althoughtheobjectiveswereslightlydifferentineachcountry,theHCDresearchuncoveredinsightsand

lessonsthatotherstakeholderscanapplytotheirEWSstrategies:

?Userinsights:HCDcanidentifyuserneeds,

preferencesandbarriersthatmayinhibitthe

effectivenessofanEWS.Forexample,inTanzania,auserjourneymappingexercisefoundthatliteracylevelsandaccesstotechnologyweretwoofthe

mainfactorsdeterminingwhetheranindividual

engageswithanEWS.InSouthAfrica,thebiggestfactors,identifiedthroughHCDresearch,were

socio-economicstatus,age,location(rural/urban),pastdisasterexperienceanddegreeofcommunityintegration.Byidentifyingthesefactorsintheir

owncontext,stakeholderscanhelpensurefewerpeopleareleftbehindbyEWSandimprovetheirpropensitytoact.

?Systemdesign:HCDcanidentifyappropriate

componentsofEWSdesign,likecommunicationchannels,icons,terminology,contentand

timing.Forexample,inbothTanzaniaandSouth

Africa,welearnedthatdigitalEWSstrategies

mustbepairedwithcommunity-driven,higher-

touchapproachesandtrustedchannels.Whetherreachinglessconnectedindividualsorleveragingtrustincommunitymembers,acombinationof

digitalandnon-digitalcommunicationstrategiesprovidesawiderreachandthereinforcement

oftenneededforpeopletoact.

?Socialandculturalfactors:HCDcanrevealsocialandculturalinfluencesonEWS,suchastrust,

communitydynamics,triggersforactionand

behaviouralnorms.Forexample,inTanzania,

individualsoftenwaitforacollectivemovement

beforetakingpreventiveaction.Theresearch

reinforcedtheroleofcommunityleadersin

overcominginertia.InSouthAfrica,communities

struggledtoidentifywhentheweatherwassevereenoughtoactonawarningorifdoingsowouldbeaninconvenience.Theyalsofelttheydidnothavethemeanstotakeaction.Inthesecases,researchshowedtheimportanceofclearlyidentifying

thresholdsandprovidingsimpleandfeasibleactions.

4/22

Thehuman-centreddesignprocess

EveryHCDexerciseisunique,buttheTanzania

andSouthAfricaresearchbeganwithalandscapemappingexercisecomprisedofdeskresearchandexpertinterviews.Analyticalframeworkswerethenselectedtoprovidestructurefortheresearchandallowtheteamtoapproachitmethodically.

Withabaselineunderstandingandanalytical

frameworkinplace,wepreparedforfieldresearchbydevelopingresearchquestionsandselectingdiversecommunitiesandtargetaudiencestoengagewith,

includingcommunityleadersandeverydaycitizens,especiallymarginalisedgroupsanddisasterresponsevolunteers.

Overthecourseofroughlyoneweekineachlocation,weconductedaseriesofface-to-faceinterviews,

focusgroupdiscussions(FGDs)andco-creation

workshops(CCWs).Eachmodalityprovideduniqueinsightsandsequencingtheseactivitieshelpedusmovefromthedeep,livedexperiencesofindividualcommunitymemberstosharedgroupperspectivesandcommunity-drivenideasthatcouldbeappliedbroadlytothedesignofEWS.

Human-centreddesigntoolsforEWS

TheHCDtoolsweusedfortheTanzaniaandSouth

Africaresearchchangedwitheachexercise.As

detailswereuncoveredandwelearnedmoreaboutusers,ourquestionsshiftedandweadaptedthe

tools.Sometoolsworkedbetterwithsomeaudiencesthanothers.Afewofthetoolsourteamfoundmostusefulincluded:

?Personabuilding,whichcreatesrepresentationsoftargetusers,ensuringthattheneeds,behaviours

andchallengesofdifferentgroupsareconsideredwhendesigninganEWS.

?Channel,influenceranddigitalmapping,whichplotscommunicationcomponents,revealinghowinformationflowswithinacommunityandwhichapproachesaremosteffectiveforEWSalerts.

?Agree/Disagreecards,whichencourage

participantstoresponddirectlytostatements,

providinginsightsintotheirpreferences,concernsandperceptions.

?Testsonweathericons,colours,symbolsand

terminology,whichensurethatvisualandtextualelementsusedinEWSareeasilyunderstoodandeffectivelycommunicatecriticalinformation.

?CrazyEightsprototypebuilding,whichfostersrapidideagenerationanditerationbyhaving

participantssketcheightcomponentsofanEWSsolution.

?Pitchtesting,whichpresentssimplifiedEWS

conceptsandgathersfeedbackthroughstructuredquestions,enablingresearcherstoiteratesolutionsandalignthemmorecloselywithuserneeds.

Mindsetsforsuccessfulhuman-centreddesignresearch

Regardlessoftheresearchtopic,HCDworksbest

whenteamshaveamindsetofopenness,user

participationanditeration.WithourEWSresearchitwasimportanttobeflexibleandallowtheresearchtoevolveandbeshapedbyparticipants,tofavourvisualsandtangibleexamplesoverabstractideas,

toencouragehumanstoriestoprovideanuanced

understanding,toworkthroughavarietyofsolutionideasandtoconsiderbroaderbehaviouraldrivers

andstructuresthatinfluenceEWS,beyondjustweather.Bykeepingusersatthecentre,moreeffectiveEWScanbedesignedforall.

5/22

Introduction

Asdisastersbecomeincreasinglyfrequentand

severeduetotheglobalclimatecrisis,critical

gapshaveemergedinhowcommunitiesprepare

for,respondtoandrecoverfromtheseevents.To

addressthesechallenges,theEarlyWarningsfor

All(EW4All)initiative,1launchedbytheUnited

NationsSecretary-Generalin2022,aimsto

ensureuniversalaccesstoearlywarningsystems

(EWS).TheinitiativehasemphasisedthatMulti-

HazardEarlyWarningSystems(MHEWS)should

beinclusiveandpeople-centred.UnderPillar3

(warningcommunicationanddissemination),ledbytheInternationalTelecommunicationUnion(ITU),

thisapproachstrengthensalertdisseminationandfeedbackchannelstodeliveractionableinformationtoeveryone,particularlymarginalisedgroups.

Withmobilenetworkscovering96%oftheworld,2mobiletechnologyhasbecomeavitaltoolfor

disseminatingriskcommunicationsandemergencyalerts.However,toleveragethischanneleffectively,itisnecessarytounderstandthebarriersand

opportunitiesthatshapehowdiversecommunitiesaccessandactonearlywarnings.

TheGSMAMobileforHumanitarian(M4H)Innovationprogramme,togetherwithmobilenetwork

operators(MNOs),humanitarianorganisations

liketheInternationalFederationofRedCrossandRedCrescentSocieties(IFRC)andgovernment

stakeholders,haveconductedseveralresearch

initiativesthatuseahuman-centreddesign(HCD)approachtoimprovethedesignandoutcomesofEWS.

HCDisaproblem-solvingapproachfocussedon

understandingandmeetingtheneeds,behaviours

andchallengesofthepeoplewhowilluseaproduct,serviceorsolution.Itinvolvesiterativeprocessesof

research,ideation,prototypingandtestingtoensuretheoutcomesarepractical,accessibleandaligned

withuserexpectations.Byplacingusersatthecentre,HCDfostersinnovativeandimpactfulsolutionsthat

aremorelikelytobeadoptedandsustainedovertime.3

UsingHCDmethods,M4HresearchinSouth

Africa,

Enhancinginclusioninmobile-enabledrisk

communications

,4exploredtheuniquechallenges

marginalisedgroupsfaceinaccessingmobile-

enabledriskcommunications.Groupssuchaswomen,migrants,peoplewithdisabilities,olderpeopleand

thosefromlowersocio-economicbackgroundsoftenexperiencedigitalexclusion,makingthemvulnerabletomissingcriticalriskcommunications.Theresearchidentifiedbothdemographicandenvironmental

barrierstoreceiving,understanding,trustingandactingonearlywarningmessagesdeliveredon

mobiledevices,andprovidedrecommendationstomakethesesystemsmoreinclusiveandeffective.

InTanzania,wherenaturalhazardslikefloods,

droughtsandearthquakesarefrequent,M4H

conductedsimilarresearchtounderstanduser

preferencesforreceivingEWSthroughmobile

channels.Thisstudysoughttounderstand

communityneedsandpreferencesforreceivingearlywarningstohelpamultistakeholdercoalitiondesignamoreeffectiveEWSstrategy.

Bothstudiesdemonstratetheimportanceofa

people-centredapproachtodesigningearlywarningmessagesandriskcommunications.Whilethe

researchrevealedcommonchallengesinSouthAfricaandTanzania,therewerenuanceddifferencesthat

mustbeunderstoodtoensureEWSareeffective

ineachcountry.Withgrowingdemandforsimilar

researchinothercountries,thisreportsynthesiseskeyfindingsfromSouthAfricaandTanzania,whilealsopresentingsomeofthemethodologiesthat

canbeusedasastartingpointforresearchinothercontexts.Thisincludes(i)whatanHCDresearch

processlookslike,includingframeworkstoanalyseandcommunicatefindings;(ii)usefultoolsfor

uncoveringinsightsonEWS;and(iii)mindsetsthatcanguideanHCDprocess.

1UnitedNations“

EarlyWarningsforAll”website

.

2GSMA.(2023).

TheStateofMobileInternetConnectivity202

4.

3MoreinformationonHCDcanbefoundat:

/

.

4GSMA.(2024).

Enhancinginclusioninmobile-enabledriskcommunications:LessonsfromSouthAfrica

.

6/22

Lessonsfromhuman-

centreddesignresearchinSouthAfricaandTanzania

Sharedlessonsemergedfromourtwinresearch

initiativesdespitetheuniquecontexts.Someare

highlightedheretoillustratethetypesoffindingsthatcanemergefromHCD-ledstudies.Detailedfindings

fromSouthAfricacanbefoundinthe

fullreport

.5

SimilarresearchbytheFinnishRedCrossinTanzaniamirroredourtakeawaysandcanbefoundintheir

report.6

Userinsights

HCDcanuncoverimportantinsightsintohow

tocreateeffectiveEWS,suchasuserneeds,

preferences,barriersandopportunities.Inourtworesearchcontexts,weusedHCDtoolslikepersonabuildinganduserjourneymappingtoidentify

characteristicsthatmayinhibittheeffectivenessofEWS.

InTanzania,literacylevelsandlimitedaccessto

technologyemergedassignificantbarriers.ManyparticipantsinruralMorogoroRegionstruggledtoreadandunderstandtext-basedweatherwarningssenttotheirbasicmobilephones.Although

smartphonescouldaddressliteracychallenges

throughaudio,videoandvisualcommunication,

accesstothesedevicesremainslimitedamonglessliteratepopulations.ThisunderscoredtheneedforhybridEWSapproachesthatintegratedigitaltoolswithon-the-groundcommunicationmethods.

InSouthAfrica,socio-economicstatuswasakey

determinantofeffectiveEWS.Limitedfinancial

resourcesconstrainedaccesstotechnologyandtheabilitytotakepreventivemeasures.Agealsoplayedarole,withyoungerpeople(18–40)moredigitally

connectedthanolderpeople.Locationfurther

influencedoutcomes;ruralareasfacedinfrastructurechallengesbutbenefittedfromstrongercommunalnetworks,whileurbanareasprioritisedindividual

propertyprotectionduetosecurityconcerns.

Pastexperiencewithdisastersheightenedawarenessofrisk,butoftenleftsurvivorswithlessaccessto

digitaltoolsordisconnectedfromnewcommunitiesafterdisplacement.Communityrelationshipsalso

shapedresponses,withmigrantsandrelocatedindividualsoftenencounteringtrustissues,

stigmatisationandlanguagebarriers.

Systemdesign

HCDcansupportEWSdesignbyensuringthat

everycomponent,fromcommunicationchannelstouserinterfaces,istailoredforthegreatestimpact.HCDcanhelpidentifythemosteffectivechannelsfordisseminatingalerts,whilerefiningterminologyandiconographytobeeasilyunderstoodbydiverseaudiences.M4Hresearchshowedthatdigital

EWSstrategiesmustbepairedwithcommunity-

driven,higher-touchapproacheslikeface-to-face

conversationswithcommunityleadersornetworkedsystemsforpeerstonotifyeachother.

InTanzania,communityleaders,suchasgovernmentofficialsandreligiousfigures,playanessential

roleindisseminatinginformationandfostering

trust.Theseleadersuseloudspeakers,mosque

announcementsanddoor-to-doorcommunicationtoensuremessages,includingthoseabouttheweather,areheardandactedupon.Theirinvolvementlends

urgencyandcredibilitytowarnings,moresothan

digitalortraditionalmedia.InSouthAfrica,while

mobilepenetrationishigh,individualswithoutdirectdigitalaccessoftenrelyonfamilyandcommunity

networkstoreceivemessages.Bothcontexts

underscoretheneedforhybridapproachesthat

combinedigitalandin-personmethods.Thisdual

strategyextendsreach,buildstrustanddrivestimelyaction,particularlyamongmarginalisedgroups.

5Ibid.

6FinishRedCross.(2024).

Whyearlywarningsarenotleadingtoearlyaction?

Socialandculturalfactors

HCDcanuncoversocialandculturalinfluenceson

EWS,suchastrust,communitydynamics,triggers

toactionandbehaviouralnorms.Forexample,

welearnedthattrustinEWSrequirestheuseof

familiarandcrediblesourcesalongsidearange

ofcommunicationchannels.InbothSouthAfrica

andTanzania,trustwashighestwhenwarnings

wereattributedtorecognisedentities,suchas

meteorologicalagenciesandrespectedcommunity

leaders.Multichannelstrategies,includingSMS,

radio,TVandface-to-facecommunication,ensuredthatmessagesreacheddiverseaudienceswhile

reinforcingtheircredibilitythroughrepetition.

Additionally,participantsemphasisedtheimportanceofbrandingandconsistentmessagingtodifferentiateofficialwarningsfrommisinformation.This

multiprongedapproachnotonlyenhancedtrust,butalsomotivatedtimelyaction,particularlyincommunitieswithpriordisasterexperience.

TheresearchshowedthatitisimportantforEWStoprovideclearcallstoactionthatarereinforcedby

communities.InTanzania,decision-makingprocessesoftendependoncollectiveratherthanindividual

actions,andcommunityleadersneedtobeinvolvedtoovercomeinertiaandinaction.Researchalso

revealedthatcommunitiesstruggletorecognisethetippingpointforaction,asseeninSouthAfricawhereconfusionbetweenminorandsevereweatherrisks

hashinderedtimelyaction.Additionally,individuals

frequentlylackasenseofself-efficacy,limitingtheirabilitytoactevenwithadvancewarnings.Toaddressthesechallenges,actionableguidancemustbebothspecificandreinforcedthroughtrustedcommunity

networks.Engagingleadersandleveraging

communaldecision-makingprocessescanbridgethisgap,empoweringindividualsandgroupstorespondeffectivelytoimminentrisks.

HCDmethodssuchasinterviews,participatory

workshopsandusabilitytestingwereinstrumental

inidentifyingeffectiveEWSdesign.Direct

engagementwithusersrevealedcriticalneeds,

preferredcommunicationchannelsandtrustissues

affectingtheirresponsetoemergencyalerts.Iterativeprototypingandtestingenabledsystemfeatures

toberefined,suchasuser-friendlyinterfaces,

appropriateterminologyandoptimaltimingfor

alerts.Communityengagementalsorevealedculturalpracticesandsocialdynamicsthatinfluencetheflowofinformationandresponsebehaviours,ensuring

systemdesignisinclusiveandcontextuallyrelevant.

7/22

Thehuman-centreddesignresearchprocess

HCDresearchcantakemanyformsbutadheresto

certaincoreprinciples:understandingthetarget

audienceoruserneeds,engagingstakeholders

meaningfullyandwithanopenmindanditeratively

refiningsolutions.Byplacingpeople,inthiscaseEWScommunicationrecipients,atthecentreofthedesign

process,HCDensuresthatsystemsarepractical,inclusiveandaddresstheuniquebarriersfacedbydifferentcommunities.

InourEWSresearch,theseprinciplestranslatedintoaseriesofstructuredyetflexiblesteps:

8/22

Pre-fieldworklandscapemapping

Beforeengagingwithcommunities,itwascrucial

tounderstandexistinginformationflowsand

identifykeystakeholders.Thisphaseinvolvedcalls

withstakeholderstomaptherolesofgovernment

agencies,communityleadersandotherinfluencersindisseminatingwarnings.ThisincludedconsultationswithregionalleadersoftheSouthAfricanRedCrossSociety(SARCS)andtheTanzaniaRedCrossSociety(TRCS),representativesofMNOsandresearchers

whofocusondisasterresponse.Itincludeda

literaturereviewofpublicationsfromtheSouth

AfricanWeatherService(SAWS)andtheNational

DisasterManagementCentre(NDMC)inSouthAfrica,andtheTanzaniaMeteorologicalAgency(TMA)in

Tanzania.TheM4Hteamalsoconsultedonbriefcallswitharangeofglobalexpertsinclimatedisaster

preparednessandresponse,bothresearchersandpractitioners.

Combiningtheoutcomesofallthesediscussions

andreportreviews,wedrewamapofthenetworkofstakeholdersinvolvedinEWS,includingtheir

differentandinterconnectedroles.Wealsomappedtheuserjourneyofatypicalcommunitymember,

highlightinghowdifferentcommunicationchannelsandmessageslikelyreachthemandhowtheymightpromptthemtoact.Theseactivitiesallcontributedtoasharedbaselineunderstandingamongthe

projectteam,andhelpedpinpointareaswewantedtoconfirm,refuteandlearnaboutduringthefieldresearch.

9/22

Choosinganalyticalframeworks

FrameworkscanbeusefulguidesinHCDexercises,bothforanalysisandtologicallystructure

conversationswithusers.Selectingappropriate

frameworksupfrontcanhelptoapproachcomplextopicsmethodically,identifycriticalblockersto

successfulEWSstrategiesanddevelopclearplansforactionableoutcomes.Differentframeworks

aresuitedtodifferentcontexts,witheachofferinguniqueinsightsdependingonthespecificneedsofthecommunity,thetypeofhazardsandthegoalsoftheresearch.OurresearchteamusedthreesimpleframeworkstoprovidestructuretoourapproachinSouthAfricaandTanzania.

Awarenessandreach

Trust

Understanding

Action

?ReachModel:InSouthAfrica,aliteraturereview

andexpertinterviewsduringthelandscape

mappingphaseledtheresearchteamtousea

simplefour-partframeworkemployedbytheWMOknownastheReachModel,whichbreaksdowntheeffectivenessofEWSapproachesintofoursteps:Awarenessandreach,Trust,Understandingand

Action.7Byisolatingandexploringeachofthese

factors,theresearchteamcreatedaclearerpictureofthebarrierstoEWS,aswellastheopportunities.DesigningasuccessfulEWSrequiresconsidering

whetherusersareawareofinformationand,ifso,whethertheytrust,understandandarecompelledtoactonit.Thislinearandprogressiveframeworkhelpedtheteamsubdivideactivitiesinfocusgroupdiscussions(FGDs)anddevelopaclearersetof

recommendationsforhowtoemploysuccessfulEWSformarginalisedcommunities.

?CommunicationsComponentModel:InTanzania,ourresearchobjectiveswereslightlydifferent.

Insteadofexploringhowtoreachmarginalised

groups,wewantedtoco