Examining Inter-organizational Network during Emergency Response of Gunungkidul Drought 2019

Drought is a disaster that often occurs in Gunungkidul Regency, where the condition was exacerbated by the occurrence of a long drought in 2019 (BMKG, 2019). Beside climatic and geological factors, drought is also caused by the involvement of multi-stakeholders, including local governments in managing drought emergency conditions. This research presented a case study on drought disaster management in Gunungkidul in 2019, where qualitative and social network analysis research methods were applied. Social network analysis was used to examine the central actors of the organizations involved in drought management and the role of networks in these levels of government. Meanwhile, qualitative methods were used to explore the factors influencing the network. The results show that the central actors during the emergency response were BPBD, PMI, and PDAM of Gunungkidul Regency. Meanwhile, the role of inter-organizational networks at the district level had been optimized by performing command and control over developments in the situation, involving community organizations and business institutions. Furthermore, on the factors affecting the network, everything had been maximized except two factors that were still lacking, including partnerships and the use of sophisticated information technology.


Introduction
Disasters always shackle human life; even in the last ten years, the intensity of catastrophic events has continued to increase (BNPB, 2014). According to Fritz This disorder is also considered causing serious damage that exceeds people's ability to solve this problem by using their strategy. Furthermore, Gregg and Houghton (2006) linked disasters with the inability of Submitted: 11 August 2020, Revised: 24 September 2020, Accepted: 21 September 2020 local communities to deal with bad influences of the issues and the need for external assistance.
Disaster is strongly related to the concept of before (pre), during, and after (post) events.
Experts argue from that point of view that there is a cycle of action as disaster management to address the problems. These steps originate from prevention, mitigation, preparedness, response, and recovery (Lindell, Prater, & Perry, 2007).
Disaster management includes plans, structures, and arrangements, which involve the efforts of government, volunteers, and private parties in a coordinated and comprehensive manner to respond to all emergency needs. Therefore, disaster management consists of all planning, organizing, and mobilizing the resources needed to handle all phases of a disaster as a particular natural event (Kelly, 1995in Kusumasari 2014. The government in carrying out effective disaster management, particularly in the emergency phase, according to McEntire (2002), must develop networks with other institutions, improve relations between governments and multi-organizations, and learn from agencies of disaster and emergency management from other countries. Multi-stakeholder cooperation is reliable in solving a public issue when the capability of the local government is insufficient to control the emergency.
According to Kusumasari (2014), capability in managing disasters is reflected as a function of institutional capability, human resource capability, policy for effective implementation, financial capability, technical capability, and leadership capability ( Figure 1). Besides, operational capabilities are transformed into factors for the success of the disaster management process.
Schreyogg (in Kusumasari 2014) reinforced that the capability is essential for the organization to have because it is identified as one of the main sources for the competitive generation and development, uncertainty, and environmental changes. Therefore, networking and coordinating with other parties becomes crucial when the key source of these capabilities cannot be fulfilled.

Figure 1. Government Capability Model in Disaster Management
Source: Kusumasari, Alam, Siddiqui, 2010 A crisis management system consisting of multiple agencies and organizations will be able to adapt more effectively to threats in a particular area than separate and uncoordinated efforts by disaster authorities to meet the same vision and challenges. That way public organizations adapt by forming networks (Comfort, 1999) Kaufman (1993) analyzed this as a complex adaptive system that relies on an information infrastructure with an adequate structure for storing and exchanging information but is flexible enough to adapt to changing circumstances. The key to this concept is self-organization, or the ability to reallocate resources and actions in order to respond to the changing demands of the environment. Comfort (1999) in her research investigated four types of adaptive systems that were identified in the field study of emergency response systems,   (Meduri, 2016). This is as asserted by Twigg (2015)   Hydrometeorological disaster group, such as drought, has a huge direct and indirect impact, particularly on the economic and environmental sectors. Drought is caused by climatic anomalies, combined with low antecedent storage in surface and subsurface systems, which can lead to water deficits in the hydrological cycle, and thus result in hydrological drought (Tallaksen et al., 2015) FAO (2017)  The effects of climate change also contribute to an increase in the incidence of hydrometeorological disasters. Human activities such as forest encroachment for plantations and settlements or construction activities that affect ecosystems and ecology in buffer areas worsen the environmental conditions (BNPB, 2016). Hydrometeorological conditions involving landslides, forest and land fires, disease outbreaks, floods, and drought become the factor of the imminent danger (UNISDR, 2009).
Hydrometeorological disaster group, such as drought, has a huge direct and indirect impact, particularly on the economic and environmental sectors. Drought is caused by climatic anomalies, combined with low antecedent storage in surface and subsurface systems, which can lead to water deficits in the hydrological cycle, and thus result in hydrological drought (Tallaksen et al., 2015) FAO (2017) identified three main types of drought that can occur separately or together. First, environmental drought. This occurs when a lack of rainfall is believed to be bad for the environment. It is likely to lead to reduced river flow, extremely low groundwater levels, and insufficient soil moisture. Second, agricultural drought. This occurs when there are inadequate rainfall and soil moisture to support crop production or Regency causes this area to be considered prone to drought since a dry season with a longer time than usual will cause drought to occur very easily. This is because shallow groundwater reserves are relatively small compared to other areas due to the thin solum of soil in this karst area (Prasetyo, 2013). Alternatively stated, it discusses the relationships among actors rather than the attributes of these actors because the patterns of interaction between entities will provide new information. Actors here can refer to individuals or organizations.
Prell (2012)  The number of relationships developed by organizations is not determined or free choice, indicating that each organization is free to state how many relationships are formed with other actors (Wasserman and Faust, 1994 (Moleong, 2005).

Results and Discussion
BMKG Yogyakarta Climatology Station   Regarding the mentioned networking capability, Comfort (1999) referred to as a mode of adaptation in an inter-organizational response system (complex adaptive system).
It can be identified in the system for inter-      coordinated with the BPBD when the clean water reserves in the community were running low and requested for clean water. Therefore, this is also one of the reasons for the high value of degree centrality.
Likewise, the degree centrality of PMI of the headquarter of the Gunungkidul Regency reached 32,000, which was almost dominated by requests for water distribution, cooperation in donations for aid, and information transfer. As a local government-owned enterprise, PDAM ranks third in terms of degree centrality, where most of its work was receiving complaints from the public from each district.

It is in line with Prell's (2012) explanation
that degree centrality is seen as a measure of the level of "involvement or activity" of actors in the network, not considering whether the actor is seen as influential or popular. In a network, actors with a high degree of centrality are those that can be considered as the main channel for information in a particular network. These actors talked to many other people, and thus heard and spread new information quickly.

Betweenness Centrality
In terms of betweenness centrality, the BPBD of Gunungkidul Regency also ranks the highest with a score of 364,733 because of its

Source: Processed by the Authors
In this case, Prell (2012) explained that betweenness centrality occurred as an actor is placed between two disconnected actors, which will provide certain advantages. If the intermediary actors are removed or eliminated, the network will fall apart. Betweenness centrality is considered essential because it relates to the control of a network. Gunungkidul Regency with all its capacities will turn into a crucial actor in the network.

Closeness Centrality
The next network measure is closeness centrality, which basically measures whether the distance among actors is close enough or far away. In the sense of closeness, it also shows the intensity of information sharing and cooperation among actors in the network. Three actors had a high level of closeness centrality, which indicated that they were relatively close to other members of the network. As a result, they did not rely on other actors to communicate information and could convey information efficiently to other members.  (2012), in the concept of closeness centrality, the actors who are close to many other actors are very independent. These actors can quickly reach other people without relying heavily on intermediaries.
Actors with high proximity centrality will also be seen as ones that can mobilize the network easier because they can reach everyone in the network easier.    This is in line with Waugh's (2000)
In mid-September 2019, the Regional Disaster

Management Agency (BPBD) of Gunungkidul
Regency received information from the BMKG that the start of the rainy season experienced delayed.
Besides, BPBD had also estimated the strength of the budget for dropping clean water when the drought was predicted to get longer and wider and prepared the parties that could help to handle drought in Gunungkidul Regency. A budget crisis could affect the distribution of clean water to the community. The water crisis in the region was also getting worse because the water was increasingly difficult to find, causing the existing water sources to be invaded by water carrier tank trucks.

Communication in Networks
Such a massive drought disaster needs to be overcome by involving many parties, starting from the government, private sector, non-governmental organizations, and the community. Communication in the network is required so that disaster management activities are better coordinated, leading to effective and efficient coordination.

Partnership
Disaster management is no longer the matter of the government only but also business institutions and the community down to the family level as the main targets and actors in disaster management. Each sector has a role and responsibility in disaster management. There is a proverb saying that "disaster is everybody business". Therefore, in addition to involving government elements, involving those of business and civil society organizations will result in better disaster management. This finding is in line with the partnership concept of Kapucu (2010), that the partnership carried out in the emergency response period will eliminate hurdles in the emergency response process by increasing the available resources. Other organizations that need assistance will definitely be helped. Likewise, the disclosure of information and data held by BPBD and other parties such as PMI can ease other organizational actors to participate to help with drought management needs. The openness of data and information and mutual understanding between organizations are the keys to establishing interoperability in the field.

Interoperability
When technical problems are resolved collectively and in the same language, the emergency response process will be easier to control. This is in line with the concept described by Kapucu (2010), that one of the factors affecting inter-organizational networks in emergency management is interoperability. Interoperability is the understanding of how different partners come together and use their resources together, how they work together, and how they talk together.

Decision Making
Emergency management managers are However, the habit of working together that is built through social relationships can substantially increase the speed of decision making.

Leadership
The success of leadership is its ability to provide positive changes in the environment. As a leader, one must be able to think about how to face and win a change. The capability of a leader is a milestone in the success of the organization and the team in achieving common goals. As occurred in several disasters, the community affected by disasters can get through periods of crisis because of the presence of a leader to stop the crisis.
In times of such a crisis, the ability to make proper and fast decisions is a key requirement for a leader. The regional leader, in this case, the Regional Secretary of Gunungkidul Regency, emphasized that the community would be easily provoked into anger if the government could not react quickly enough to provide clean water and humanitarian assistance. This condition could worsen the situation if there was an uneven distribution of assistance. Regional leaders must have a high quality of ability to coordinate with various parties and establish relationships with communities during periods of uncertainty by making decisions, providing mechanisms, and plans on how to provide clean water and humanitarian assistance to communities in the districts and villages.

Regional Secretary of Gunungkidul
Regency as a public manager is at the forefront of responding to an increasingly complex emergency.
He was able to deal with a variety of players or actors and can comprehend information derived from sources using his jargon in general. Based on this input from various information, strategies and quick but measurable decisions could be made. At the regional and central government levels, the trust to control the drought crisis was fully given to the Regional Government of Gunungkidul Regency. The leadership of the Gunungkidul Regional Government was entirely supported by the government level above. The Regional Government of Gunungkidul in solving drought problems used a human relations approach, the ability to inspire network members through a common vision and mission, and an approach that involves organizational members.

Regional Government of Gunungkidul
Regency could coordinate networks at various levels of government and various organizational actors involved, both from the private sector, NGOs, and volunteers. The Regional Secretary in carrying out the leadership function in the drought response was at the center of the network in the ordering process and disseminated relevant information to the parties. This is in line with what was expressed by Kapucu (2010) about leadership that the general public expects strong leadership to fight against man-made threats. Strong leadership has been associated with a strong command structure.

Information Technology (IT)
The use of information technology at BPBD was very minimal (insufficient), both in terms of network infrastructure, computers (hardware), and in the use of software for disaster data management. Although currently, the National Agency for Disaster Countermeasure (BNPB) has had a disaster information system (dibi. bnpb and geospasial.bnpb), although the system has not been effectively used in the regions, and BPBD has not been integrated into the system. Therefore, we need an information system that can accommodate BPBD interactions in inputting and managing disaster data in the regions, which is integrated with existing information systems at BNPB and other agencies. The results show that several factors are causing inter-organizational networks to be less than optimal, including: 1. A centralized inter-organizational network is extremely useful for the initial phase of a disaster in forming groups and building support for collective action. However, centralized networks also have unfavorable disadvantages for long-term planning and problem solving, given the drought disaster is a type of slow onset and prolonged disaster. 2. Some deficiencies in the factors of interorganizational networks that can be improved include partnerships and information technology. There was no partnership in terms of making agreements in the preparedness phase through a link and match of the DRR Forum and making agreements in a contingency plan document that was easy to implement.
Meanwhile, in information technology, the quality and integration of information systems between organizational units were still poor.

Recommendation
In managing the network for a relatively long time, it is significant to utilize a decentralized network structure with a horizontal approach or to create cluster groups. The division of authority to other organizational actors results in a more effective and efficient quality of emergency response. 1. Link and match DRR forum activities, so that partnership cooperation activities of pre-and post-disaster continue sustainably, not only separated from pre-disaster activities. 2. Upgrading and integrating the information system is a must. By improving the quality and integrating information systems among organizational units, disaster management can be performed faster and more effectively.
3. The use of SNA in this study was quite successful in representing a cross-actor and multi-stakeholder picture of disasters.
The results of this SNA analysis can also be utilized as a material for the formulation of emergency management policies. Further, public administration studies can provide novelty to these policy inputs.