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Illuminating the Sewol Ferry Disaster Using the Institutional Model Of G Model SOCSCI-1565; No. of Pages 16 ARTICLE IN PRESS The Social Science Journal xxx (2019) xxx–xxx Contents lists available at ScienceDirect The Social Science Journal journal homepage: www.elsevier.com/locate/soscij Illuminating the Sewol Ferry Disaster using the institutional model of punctuated equilibrium theory a b,∗ Ki Woong Cho , Kyujin Jung a Department of Public Administration, Korea University, Seoul, 02841, South Korea b Department of Public Administration and the Graduate School of Governance, Sungkyunkwan University, Seoul, 03063, South Korea a r t i c l e i n f o a b s t r a c t Article history: The Sewol Ferry Disaster undermined the South Korean government’s efforts to establish Received 15 February 2018 the country as a crisis-free region. Considering the number of fatalities and the immensity Received in revised form of the disaster, the South Korean legislators passed three acts concerning the Sewol Ferry 31 December 2018 Disaster: the Sewol Special Act, the Government Organization Act, and the Yoo Byung- Accepted 31 December 2018 eun Act. The strength of this study is that it illuminates the Sewol Ferry Disaster using the Available online xxx institutional model of the punctuated equilibrium theory (PET), applied in a Korean setting. Moreover, it elucidates the concept of punctuated events and their impact on budgets and Keywords: public attention, primarily using Google Trends, as it examines policy changes following the Punctuated equilibrium theory disaster and demonstrates inconsistencies in the PET. The authors conducted a case study on Sewol Ferry Disaster the Sewol Ferry Disaster and the three subsequent Sewol Acts to illuminate the effect of the Three Sewol Acts Policy process disaster on policy processes. Using the prior history of punctuated events in South Korea, we Google Trends demonstrated a higher propensity for punctuation and the functions of positive feedback after the policy monopoly collapse that followed the Sewol Ferry Disaster in South Korea. We also demonstrated that fewer instances of negative feedback are observed in South Korea than in the United States. Based on these findings, PET can be applied and developed a larger number of different settings by future studies. © 2019 Western Social Science Association. Published by Elsevier Inc. All rights reserved. 1. Introduction ties that respond to disasters, especially following the emergence of a disaster (Schneider, 1995). Disasters influ- Political systems respond to crises with increased atten- ence the perceptions of voters regardless of their direct tion when a focusing event occurs (Birkland, 2006, 1997). experience with disasters (Gasper & Reeves, 2011). Poor Organizations change their budgets and organizational management of emergency situations can threaten the structure in accordance with new laws after a focusing public perception of political regimes (Kim, 2008). More- event such as a disaster, a large-scale incident, or a scan- over, like many other catastrophic events, those that are dal. Good management in response to significant problems unexpected, such as the September 11 attacks, promote contributes to the likelihood that politicians will be elected. presidential authority and the centralization of presidential For instance, government agencies are the primary enti- power (Sylves, 2008), which is called “disaster politiciza- tion” (Chung, 2013; Hörhager, 2015). This research aims to investigate disaster politicization by examining the Sewol ∗ Ferry Disaster of 2014 in South Korea. Corresponding author. E-mail address: [email protected] (K. Jung). https://doi.org/10.1016/j.soscij.2018.12.010 0362-3319/© 2019 Western Social Science Association. Published by Elsevier Inc. All rights reserved. Please cite this article in press as: K.W. Cho and K Jung. Illuminating the Sewol Ferry Disaster using the institutional model of punctuated equilibrium theory. The Social Science Journal (2019), https://doi.org/10.1016/j.soscij.2018.12.010 G Model SOCSCI-1565; No. of Pages 16 ARTICLE IN PRESS 2 K.W. Cho and K Jung / The Social Science Journal xxx (2019) xxx–xxx Table 1 Final Outcomes after the Sewol Disaster. Total Students Teachers Passengers Crew Other Persons aboard 476 325 14 104 23 10 Survivors 172 75 3 71 18 5 Deceased 295 246 9 30 5 5 Missing 9 4 2 3 – – 1.1. Sewol Ferry Disaster to unprecedented sweeping changes to emergency organi- zations and budgets within disaster-related organizations. 1 On April 16, 2014, the Sewol Ferry left for Jeju Island These changes led to a transformation of disaster from Incheon. Most of the passengers were in their sec- management and policies. Usually, controversies do not ond year of high school in the city of Ansan in the Gyeonggi follow disasters because even opponents employ disas- Province and had boarded as part of a school excursion. ter as an opportunity to demonstrate their abilities as The Disaster occurred approximately 20 km off the coast leaders (Schneider, 1995). However, many controversies of Byungpoong Island to the southwest of mainland South followed the Sewol Ferry Disaster, as politicians fought Korea (Jung, Song, & Park, 2018). Officials claimed that a over how to investigate and prevent future disasters and combination of overloading, incorrect freight binding, the abruptly passed acts and created organizations to deal with ship’s diminished self-righting force, and steering mistakes such crises. These actions made the Sewol Ferry Disaster caused the accident (Truth Foundation Sewol Ferry Recode emblematic of PET in South Korea. Due to its status as a Team, 2016). The government’s poor performance and national political controversy, the Sewol Ferry Disaster is a inappropriate decisions contributed to the deaths of more prime example for exploring the influence of such events than 300 victims (Hwang, 2015); the death toll elevated on government organizations and budgets, the media, and public interest in the event. For instance, the government citizen engagement in disaster politics. did not know the exact number of passengers on the ship. In fact, false reports were even made of the successful rescue 1.2. Research questions of all passengers. After the ferry capsized and was sub- merged, no additional students were able to be rescued Organizations, budgets, the media, citizen attention, (See Table 1). The government’s poor decisions led to a and public administration in general play an important man-made disaster (Shaluf, 2007; Tarn, Wen, & Shih, 2008), role in public policy and management. As such, we need which was further complicated by the media’s criticism of to analyze the dramatic changes in organizations, budgets, the government’s response. To make matters worse, other the level of attention, and policies that follow substantial problems (such as fast currents, poor visibility in the water, events to prevent disasters. Stated generally, our research and technical issues) prevented divers from quickly retriev- question is as follows: According to the PET institutional ing passengers. The images and coverage of these fatalities model, how and why did the Sewol Ferry Disaster, as well presumably led to better restitution for victims and their the subsequent actions and interactions of actors in the pol- families because the coverage of these fatalities brought icy arena, break the policy monopoly and shape the resultant greater attention to their plight. new policy? To answer this question, this research primarily This local disaster became a national issue that many focuses on the application of PET in the field of public pol- Korean political figures used to shape the country’s disaster icy related to the Sewol Ferry Disaster, and the authors seek management policy. The Korea Institute of Finance pre- to detect discrepancies between the theory in the United dicted that the growth rate would decrease by 0.1% due to States and its practice in South Korea and non-U.S. settings, 2 the public concern surrounding the Sewol Ferry Disaster. as suggested by Mortensen (2005). This facilitated social conflict between the ruling party and After a brief review of the theoretical literature, the opposition parties as well as between members of the con- research method is presented and a case study of the Sewol servative and liberal populace regarding the best course of Ferry Disaster is outlined using the PET institutional model. action for dealing with this disaster. Ultimately, the disas- Furthermore, the reaction of political systems and policy ter shattered the Korean societal norm related to the issue change following the disaster within the PET are discussed. of safety, fostered more disaster and safety alerts, and led Thereafter, the discrepancies between the theory in the United States and its practice in South Korea are illumi- nated. 1 “The gross registered tonnage of the ferry was 6,835, and its length 2. Literature review and theoretical considerations was 146.61 m. Its beam was 22 meters, and its draught was 6.26 m. The ferry had 64 cabins and 5 decks” (Jung et al., 2018, p. 278). The type of ship is a combined-use ferry/cargo ship with a capacity of 921 (McKirdy 2.1. Punctuated equilibrium theory & Cha, 2014). 2 This national mood even affected the Korean economy. Public agen- Scholars have associated incremental decision making cies and even private companies tended to curtail, cancel, or postpone with bounded rationality and have refocused on PET as well their ceremonies. Many high schools canceled or postponed their school excursions, which caused a debate over the necessity of school excursions. (Baumgartner & Jones, 1993; Jones & Baumgartner, 2005b; Please cite this article in press as: K.W. Cho and K Jung. Illuminating the Sewol Ferry Disaster using the institutional model of punctuated equilibrium theory. The Social Science Journal (2019), https://doi.org/10.1016/j.soscij.2018.12.010 G Model SOCSCI-1565; No. of Pages 16 ARTICLE IN PRESS K.W. Cho and K Jung / The Social Science Journal xxx (2019) xxx–xxx 3 Jones et al., 2003).
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