Ranking the wrong places: vulnerability assessment, flood losses and risk sharing in Italy and Europe

Before a flood, governments decide where to invest in protection; after it, how much of the loss to compensate. The European Union informs the first decision with a composite index that ranks every subnational unit by vulnerability. This paper tests the ranking by comparing Italian provinces struck by the same flood between 2005 and 2024. The published index does not order provinces by the losses they suffer, with or without controls for hazard, exposure and income ($\rho$ between -0.06 and 0.09). The failure lies in what it weights. As published, the index mostly measures economic development, while losses follow water: they arrive in recurring groups of provinces that share a river basin, and more than half of the ranking error lies between those groups. In a pre-registered test that rebuilds it and eight rivals at every forecast origin from 2010 to 2020, the index comes last on both questions an allocator asks. On where damage will land, its top ten provinces capture 16 per cent of later damage, less than a random draw; Italy's public flood hazard map, blind to losses, captures 44. On who loses more from the same water, its rank correlation with later losses is 0.03; its own components, reweighted on past losses, reach 0.42. Neither repair needs new data. The misranked loss is paid locally. Of EUR 12.3 billion recorded over 2013-2022, 85 per cent was not covered by national transfers, and prevention funding, scored the same way, does no better than chance. Because correlated losses cluster within borders, national pools in Europe need 39 per cent more reserve than cross-border pools of the same size. The index fails the same way across 1,142 European units, where the repairs are weaker.