There has been some discussion as to whether the warning was out of context, comparing overall risk in Spain to other places, etc.
But I think you have to consider the purpose of the State Department warnings. They are there to present risk to the American Traveler. In this case, the warning appears to be prompted by:
- An increase of incidence (regardless of base risk comparison to other areas)
- Incidents that not only specifically included Americans, but a specific category, young American females.
- Included interactions affecting Visitors (Some of the incidents involved tour operators, or at least perhaps one, that perpetrated the incident.
The average Citizen in the region likely has little concern, many travelers probably have none, but a segment does seem to be affected. They obviously felt that a specific segment of the people they are assigned to assist had an increased risk that justified a warning. Worth noting, warnings are issued to inform, not to ward off visitors. If there were significant risk, bans and other measures would be taken.