DOI QR코드

DOI QR Code

Risk Communication Networks in South Korea: The Case of the 2017 Gangneung Wildfire

  • Oh, Jeongmin (Reubin O'D. Askew School of Public Administration and Policy. Florida State University. Journal of Contemporary Eastern Asia) ;
  • Jung, Kyujin (Department of Public Administration and the Graduate School of Governance. Sungkyunkwan University) ;
  • Song, Minsun (Department of Political Science. Valdosta State University. Journal of Contemporary Eastern Asia)
  • Published : 2021.12.31

Abstract

Wildfires have become increasingly common and intense in South Korea because of climate change, but few have recognized the catastrophic level of the problem. Given the significant impact of wildfires, emergency management stakeholders must have effective risk communication structures for rapidly responding to such phenomena and overcoming geographical difficulties. Despite the country spending billions of dollars to build a big databased early warning system, risk communication flow during the 2017 Gangneung wildfire was ineffective, thereby causing substantial economic, social, and environmental losses. To examine the patterns of information exchange in South Korea's risk communication networks and their structural characteristics during the wildfire, we conducted semantic and network analyses of real-time data collected from social media. The results showed that the inefficient flow of risk information prevented emergency responders from adequately assessing the emergency and protecting the population. This study provides new insights into effective risk communication responses to catastrophic events and methods of research on webometric approaches to emergency management.

Keywords

Acknowledgement

This work was supported by the Ministry of Education of the Republic of Korea and the National Research Foundation of Korea (NRF-2020S1A5B8103910).

References

  1. Agee, J. K. (1993). Fire ecology of Pacific Northwest forests. Washington, DC: Island Press.
  2. Aldoory, L., Kim, J., & Tindall, N. (2010). The influence of perceived shared risk in crisis communication: Elaborating the situational theory of publics. Public Relations Review, 36, 134-140. https://doi.org/10.1016/j.pubrev.2009.12.002
  3. Aldoory, L., & Sha, B.L. (2007). The situational theory of publics: Practical applications, methodological challenges, and theoretical horizons. In E. L. Toth (Ed.), The future of excellence in public relations and communication management challenges for the next generation (pp. 339-355). Mahwah, NJ: Lawrence Erlbaum Associates.
  4. Andrew, S. A. (2009). Regional integration through contracting networks: An empirical analysis of institutional collection action framework. Urban Affairs Review, 44(3), 378-402. https://doi.org/10.1177/1078087408323941
  5. Andrew, S. A., & Carr, J. B. (2013). Mitigating uncertainty and risk in planning for regional preparedness: The role of bonding and bridging relationships. Urban Studies, 50(4), 709-724. https://doi.org/10.1177/0042098012455718
  6. Ansell, C., Boin, A., & Keller, A. (2010). Managing transboundary crises: Identifying the building blocks of an effective response system. Journal of Contingencies and Crisis Management, 18(4), 195-207. https://doi.org/10.1111/j.1468-5973.2010.00620.x
  7. Binder, A.R., Scheufele, D. A., Brossard, D., & Gunther, A.C. (2011). Interpersonal amplification of risk? Citizen discussions and their impact on perceptions of risk and benefits of a biological research facility. Risk Analysis, 31(2), 324-334. https://doi.org/10.1111/j.1539-6924.2010.01516.x
  8. Bird, D., Ling, M., & Haynes, K. (2011). Flooding Facebook: The use of social media during the Queensland and Victorian floods. Australian Journal of Emergency Management, 27(1), 27-33.
  9. Bodin, O., & Nohrstedt, D. (2016). Formation and performance of collaborative disaster management networks: Evidence from a Swedish wildfire response. Global environmental change, 41, 183-194. https://doi.org/10.1016/j.gloenvcha.2016.10.004
  10. Bond, W. J., Woodward, F. I., & Midgley, G. F. (2005). The global distribution of ecosystems in a world without fire. New Phytologist, 165(2), 525-538. https://doi.org/10.1111/j.1469-8137.2004.01252.x
  11. Bowman, D. M., Balch, J. K., Artaxo, P., Bond, W. J., Carlson, J. M., Cochrane, M. A., D'Antonio C. M., DeFries, R. S., Doyle, J. C., Harrison, S. P., Johnston, F. H., Keeley, J. E., Krawchuk, M. A., Kull, C. A., Marston, J. B., Moritz, M. A., Prentice, I. C., Roos, C. I., Scott, A. C., Swetnam, T. W., van der Werf, G. R., & Pyne, S. J.. (2009). Fire in the Earth system. Science, 324(5926), 481-484. https://doi.org/10.1126/science.1163886
  12. Burt, Ronald S. 1992. Structural Holes. Cambridge: Harvard Univ. Press.
  13. Cha, M., & Kweon, S. (2015). A semantic network analysis of "creative economics" in news frame. Korean Journal of Journalism & Communications Studies, 59(2), 88-120.
  14. Cha, H., Rhee, Y., & Chung, C. J. (2017). Comparative nation-branding analysis of Big Data: Focusing on Korea and Japan. Journal of Global Information Technology Management, 20(4), 276-295. https://doi.org/10.1080/1097198x.2017.1388697
  15. Cho, S. E., Jung, K., & Park, H. W. (2013). Social media use during Japan's 2011 earthquake: how Twitter transforms the locus of crisis communication. Media International Australia, 149, 28-40. https://doi.org/10.1177/1329878x1314900105
  16. Choi, S. O., & Brower, R. S. (2006). When practice matters more than government plans: A network analysis of local emergency management. Administration and Society, 37(6), 651-678. http://dx.doi.org/10.1177/0095399705282879.
  17. Demiroz, F., Kapucu, N., & Dodson, R. (2013). 17 community capacity and interorganizational networks for disaster resilience. Disaster Resiliency: Interdisciplinary Perspectives, 4, 334.
  18. Diesner, J., & Carley, K.M. (2011). Semantic networks. Encyclopedia of Social Networking, 766-769.
  19. Elder, K., Xirasagar, S., Miller, N., Bowen, S., Glover, S., & Piper, C. (2007). African Americans' Decisions Not to Evacuate New Orleans Before Hurricane Katrina: A Qualitative Study. American Journal of Public Health, 97: S124-29. https://doi.org/10.2105/ajph.2006.100867
  20. Faas, A. J., Velez, A. L. K., FitzGerald, C., Nowell, B. L., & Steelman, T. A. (2017). Patterns of preference and practice: bridging actors in wildfire response networks in the American Northwest. Disasters, 41(3), 527-548. https://doi.org/10.1111/disa.12211
  21. Fedorowicz, J., Sawyer, S., Williams, C. B., Markus, M. L., Dias, M., Tyworth M., Gantman, S., Jacobson, D., Tomasion, A. P., & Schrier, R. (2014). Design observations for interagency collaboration. Government Information Quarterly, 31(2), 302-16. https://doi.org/10.1016/j.giq.2013.11.006
  22. Feiock, R.C. (2013). The institutional collective action framework. Policy Studies Journal, 41(3), 397-425. https://doi.org/10.1111/psj.12023
  23. Federal Emergency Management Agency. (2013). Risk mapping, assessment, & planning. Washington DC: The U.S. Department of Homeland Security.
  24. Fitzpatrick, C., & Mileti, D.S. (1991) 'Motivating public evacuation'. International Journal of Mass Emergencies and Disasters. 9(2). pp. 137-152.
  25. Grunig, J. E. (2003). Constructing public relations theory and practice. In B. Dervin & S. Chaffee, & L. Foreman-Wernet (Eds.), Communication, another kind of horse race: Essays honoring Richard F. Carter, 85-115.
  26. Hansen, D.L., Shneiderman, B., & Smith, M.A. (2011). Analyzing social media networks with NodeXL: Insights from a connected world. Burlington, MA: Morgan Kaufmann.
  27. Hu, Q., Knox, C. C., & Kapucu, N. (2014). What have we learned since September 11, 2001? A network study of the Boston marathon bombings response. Public Administration Review, 74(6), 698-712. https://doi.org/10.1111/puar.12284
  28. Jung, K. (2013). Community resiliency and emergency management networks: Following the 2012 Korean typhoons. Quick Response Report QR237. Boulder, CO: Natural Hazards Center.
  29. Jung, K. (2017). Sources of Organizational Resilience for Sustainable Communities: An Institutional Collective Action Perspective. Sustainability, 9(7), 1141. https://doi.org/10.3390/su9071141
  30. Jung, K. & Park, H. W. (2014). Citizens' social media use and homeland security information policy: Some evidences from Twitter users during the 2013 North Korea nuclear test. Government Information Quarterly, 31(4), 563-573. https://doi.org/10.1016/j.giq.2014.06.003
  31. Jung, K. & Park, H. W. (2015). A semantic (TRIZ) network analysis of South Korea's "Open Public Data" policy. Government Information Quarterly, 32(3), 353-358. https://doi.org/10.1016/j.giq.2015.03.006
  32. Jung, K., & Park, H. W. (2016). Tracing interorganizational information networks during emergency response period: A webometric approach to the 2012 Gumi chemical spill in South Korea. Government Information Quarterly, 33(1), 133-141. https://doi.org/10.1016/j.giq.2015.09.010
  33. Jung, K., Park, S. J., Wu, W. N., & Park, H. W. (2015). A webometric approach to policy analysis and management using exponential random graph models. Quality & Quantity, 49(2), 581-598. https://doi.org/10.1007/s11135-014-0010-2
  34. Jung, K., & Song, M. (2015). Linking emergency management networks to disaster resilience: Bonding and bridging strategy in hierarchical or horizontal collaboration networks. Quality and Quantity, 49(4), 1465-1483. https://doi.org/10.1007/s11135-014-0092-x
  35. Jung, K., Song, M., & Feiock, R. (2017). Isolated and broken bridges from interorganizational emergency management networks: An institutional collective action perspective. Urban Affairs Review. https://doi.org/10.1177/1078087417690257.
  36. Jung, K., Song, M., & Park, H.J. (2019), The Dynamics of an Interorganizational Emergency Management Network: Interdependent and Independent Risk Hypotheses. Public Admin Rev, 79: 225-235. https://doi-org.proxy.lib.fsu.edu/10.1111/puar.12993
  37. Jung, K., Song, M., & Park, H. W. (2017). Filling the gap between bureaucratic and adaptive approaches to crisis management: Lessons from the Sewol ferry sinking in South Korea. Quality & Quantity, 1-18.
  38. Jurgens, M, & Helsloot, I. (2018). The effect of social media on the dynamics of (self) resilience during disasters: A literature review. Journal of Contingencies and Crisis Management, 26: 79-88. https://doi.org/10.1111/1468-5973.12212
  39. Kapucu, N., Arslan, T., & Collins, M. L. (2010). Examining intergovernmental and interorganizational response to catastrophic disasters: Toward a network-centered approach. Administration and Society, 42(2), 222-247. https://doi.org/10.1177/0095399710362517
  40. Kapucu, N., Arslan, T., & Demiroz, F. (2010). Collaborative emergency management and national emergency management network. Disaster Prevention and Management: An International Journal, 19(4), 452-468. https://doi.org/10.1108/09653561011070376
  41. Kim, K., Yoon, H., & Jung, K. (2017). Resilience in risk communication networks: Following the 2015 MERS response in South Korea. Journal of Contingencies and Crisis Management, 25(3), 148-159. https://doi.org/10.1111/1468-5973.12180
  42. Korea Forest Service. (2017). Completely Extinguishing the Wildfires in Gangneung by all Korea Forest Service's operations. May 9 Press release.
  43. Lindell, M. K., Prater, C. S., & Perry, R. W. (2006). Introduction to emergency management. New York, NY: Wiley.
  44. Liu, W., Lai, C-H., & Xu, W. (2018). Tweeting about emergency: A semantic network analysis of government organizations' social media messaging during Hurricane Harvey. Public Relations Review, 69. https://doi.org/10.1016/j.pubrev.2018.10.009
  45. Lutz, L. D., & Lindell, M. K. (2008). Incident command system as a response model within emergency operation centers during hurricane Rita. Journal of Contingencies & Crisis Management, 16(3), 122-34. https://doi.org/10.1111/j.1468-5973.2008.00541.x
  46. McPherson, M., Smith-Lovin, L., & Cook J.M. (2001). Birds of a Feather: Homophily in Social Networks. Annual Review of Sociology, 27(1), 415-444. https://doi.org/10.1146/annurev.soc.27.1.415
  47. Nowell, B. & T.A. Steelman (2014) 'Communication under fire: the role of embeddedness in the emergence and efficacy of disaster response communication networks'. Journal of Public Administration Research and Theory. 24(4).
  48. Nowell, B., Steelman, T., Velez, A.-L. K., & Yang, Z. (2018). The Structure of Effective Governance of Disaster Response Networks: Insights From the Field. The American Review of Public Administration, 48(7), 699-715. https://doi.org/10.1177/0275074017724225
  49. Olsson, E.-K. (2014). Dimensions of Crisis Communication Revisited. Journal of Contingencies & Crisis Management, 22: 113-125. https://doi.org/10.1111/1468-5973.12047
  50. Petrescu-Prahova, M., & Butts, C. T. (2005). Emergent coordination in the World Trade Center disaster. Institute for Mathematical Behavioral Sciences, 1-23.
  51. Purpura, P. (2007). Terrorism and homeland security. Oxford, UK: Elsevier.
  52. Ressler, S. (2006). Social network analysis as an approach to combat terrorism: past, present, and future research. Homeland Security Affairs, 2(2), 2-11.
  53. Reuter, C, & Kaufhold, M-A. (2018). Fifteen years of social media in emergencies: A retrospective review and future directions for crisis Informatics. Journal of Contingencies and Crisis Management, 26: 41-57. https://doi.org/10.1111/1468-5973.12196
  54. Reyers, B., Nel, J. L., O'Farrell, P. J., Sitas, N., & Nel, D. C. (2015). Navigating complexity through knowledge coproduction: Mainstreaming ecosystem services into disaster risk reduction. Proceedings of the National Academy of Sciences, 201414374.
  55. Sams, S., Lim, Y. S., & Park, H.W. (2011). E-research applications for tracking online sociopolitical capital in the Asia-Pacific region. Asian Journal of Communication, 21(5), 450-466. https://doi.org/10.1080/01292986.2011.594897
  56. Sidle, R. C., Benson, W. H., Carriger, J. F., & Kamai, T. (2013). Broader perspective on ecosystem sustainability: Consequences for decision making. Proceedings of the National Academy of Sciences, 110(23), 9201-9208. https://doi.org/10.1073/pnas.1302328110
  57. Smith, A.M., Kolden, C.A., Paveglio, T.B., Cochrane, M.A., Bowman, D.M., Moritz, M.A., Kliskey, A.D., Alessa, L., Hudak, A.T., Hoffman, C.M., Lutz, J.A., Queen, L.P., Goetz, S.J., Higuera, P.E., Boschetti, L., Flannigan, M., Yedinack, K.M., Watts, A.C., Strand, E.K., van Wagtendonk, J.W., Anderson, J.W., Stocks, B.J., & Abatzoglou, J.T. (2016). The science of firescapes: Achieving fire-resilient communities. Bioscience, 66(2), 130-146. https://doi.org/10.1093/biosci/biv182
  58. Song, M., Jung, K., Kim, J. Y., & Park, H. W. (2019). Risk Communication on Social Media during the Sewol Ferry Disaster. Journal of Contemporary Eastern Asia, 18(1), 189-216. https://doi.org/10.17477/JCEA.2019.18.1.189
  59. Spong, D. (2011). New media and the 2011 Tōhoku earthquake and tsunami. Retrieved from http://prezi.com/sh2lm6fpleyg/new-media-and-the-2011-tohoku-earthquakeandtsunami/.
  60. Steelman, T.A., Nowell, B., Bayoumi, D., & McCaffrey, S. (2014). Understanding information exchange during disaster response: methodological insights from infocentric analysis. Administration and Society, 46(6). 707-743. https://doi.org/10.1177/0095399712469198
  61. The National Research Council. (1989). Improving risk communication. Washington DC: The National Research Council.
  62. Thompson, Rebecca R., Dana Rose Garfin, & Roxane Cohen Silver. (2017). "Evacuation from Natural Disasters: A Systematic Review of the Literature." Risk Analysis 37(4): 812-39 https://doi.org/10.1111/risa.12654
  63. Velez, A., J. Diaz, & T.U. Wall. (2017). Public information seeking, place-based risk messaging and wildfire preparedness in southern California. International Journal of Wildland Fire. 26. 469-477. https://doi.org/10.1071/wf16219
  64. Vespignani, A. (2010). Complex networks: The fragility of interdependency. Nature, 464(7291), 984. https://doi.org/10.1038/464984a
  65. Waugh Jr, W. L., & Streib, G. (2006). Collaboration and leadership for effective emergency management. Public administration review, 66, 131-140. https://doi.org/10.1111/j.1540-6210.2006.00673.x
  66. Westerling, A. L., Bryant, B. P., Preisler, H. K., Holmes, T. P., Hidalgo, H. G., Das, T., & Shrestha, S. R. (2011). Climate change and growth scenarios for California wildfire. Climatic Change, 109(1), 445-463. https://doi.org/10.1007/s10584-011-0329-9
  67. Wilson, R. S., McCaffrey, S. M., & Toman, E. (2017). Wildfire communication and climate risk mitigation. In: Oxford encyclopedia of climate science. New York, NY: Oxford University Press. 31 p., 1-31.
  68. Yeo, J., Comfort, L. & Jung, K. (2018). "Timely assessment of disaster and emergency response networks in the aftermath of superstorm Sandy, 2012", Online Information Review, Vol. 42 No. 7, pp. 1010-1023. https://doi.org/10.1108/OIR-09-2016-0280
  69. Yeo, J., Knox, C. C., & Jung, K. (2018). Unveiling cultures in emergency response communication networks on social media: following the 2016 Louisiana floods. Quality & Quantity, 52(2), 519-535. https://doi.org/10.1007/s11135-017-0595-3