Countries are losing gains made as proven measures to reduce risk are not implemented or followed.
（please teach me what does “made” means here i can't understand the grammar...） 是什麼意思

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@Kingumi Let's look at "Countries are losing gains made while measures to reduce risk are not implemented."

You are correct. It could be "Countries are losing gains while measures… are not implemented."

That is fine.

However, it appears that a timeframe, a certain amount of time, is important in this example. And saying "Countries are losing gains made" implies "Countries are losing gains made during this period of time while measures… are not implemented."

Sometimes word choice is not about being specific but instead is about pointing in a general direction.

It's possible that the author is generally pointing to the idea of "within this period of time gains were made".

You make gains to your net worth for your whole life. But bigger gains are MADE at specific points in your life.

I think this is what the author is doing. It's very subtle and is not important to someone new to the language.