Risk Communication as Government Agency Organizational Practice

The dynamics of organizational risk communication is an understudied topic in risk research. This article investigates how public officials at six government agencies in Sweden understand and relate to risk communication and its uses in the context of agency organizational work on policy and regulation. Qualitative interviews were used to explore the practitioners’ views on some key topics in the academic literature on risk communication. A main finding is that there is little consensus on what the goals of risk communication are; if, and how, uncertainty should be communicated; and what role is to be played by transparency in risk communication. However, the practitioners agree that dissemination (top down) to the public of robust scientific and expert knowledge is a crucial element. Dialogue and participation is used mainly with other agencies and elite stakeholders with whom agencies collaborate to implement policy goals. Dialogue with the public on issues of risk is very limited. Some implications of the findings for the practice of risk communication by government agencies are suggested.     

Chemical Manufacturing and Refining Industry Legitimacy: Reflective Management,Trust, Precrisis Communication to Achieve Community Efficacy

Calls for emergency right‐to‐know in the 1980s, and, in the 1990s, risk management planning, motivated U.S. chemical manufacturing and refining industries to operationalize a three‐pronged approach to risk minimization and communication: reflective management to increase legitimacy, operational safety programs to raise trust, and community engagement designed to facilitate citizens’ emergency response efficacy. To assess these management, operational, and communication initiatives, communities (often through Local Emergency Planning Committees) monitored the impact of such programs. In 2012, the fourth phase of a quasi‐longitudinal study was conducted to assess the effectiveness of operational change and community outreach in one bellwether community. This study focuses on legitimacy, trust, and response efficacy to suggest that an industry can earn legitimacy credits by raising its safety and environmental impact standards, by building trust via that change, and by communicating emergency response messages to near residents to raise their response efficacy. As part of its campaign to demonstrate its concern for community safety through research, planning, and implementation of safe operations and viable emergency response systems, this industry uses a simple narrative of risk/emergency response—shelter‐in‐place—communicated by a spokes‐character: Wally Wise Guy.     

Discursive strategies for internal legitimacy: Narrating the alternative organizational form

A significant body of academic work has explored the ways in which hybrid organizations seek to secure external legitimacy. However, there is a more limited understanding of the ways in which organizational units in hybrid organizations seek to acquire internal legitimacy – legitimacy which is conferred by internal stakeholders. This study draws on more than a century of communications in a Dutch cooperative bank to uncover how a major organizational unit enacted distinct discursive strategies to seek internal legitimacy. The paper extends prior work by showing how internal legitimacy work – the efforts to shape, reinforce, or suppress internal legitimacy judgments – in a hybrid organization is a dynamic process whereby an internal unit generates multiple complementary narratives to promote a fit between its own attributes and the legitimacy evaluations by internal audiences. In addition, it shows how internal legitimacy work can promote this fit by attempting to manipulate not only the impressions of the internal unit's attributes, but also its audiences’ understanding of wider cultural norms of the day, on which their legitimacy judgments are based. In this vein, the paper highlights how discursive internal legitimacy work seeks to generate a taken-for-granted organizational position for the internal units concerned.     

An Olympic‐sized Challenge: Effect of Organizational Pathology on Maintaining and Repairing Organizational Legitimacy in Sports Governing Bodies

Private organizations increasingly wield public authority, with substantial impact on the lives of individual persons. Such authority is often paired with enhanced public scrutiny and decreased trust in the relevant organization, leading to a loss of legitimacy. This paper uses sports governing bodies to contribute to the literature on governance by developing theory on the interaction between organizational legitimacy and pathological internal structures. It takes a nuanced view of legitimacy and extends a model of organizational pathology. While primarily conceptual, the paper uses the well‐documented cases of the International Olympic Committee and, to a lesser extent, FIFA to illustrate how organizational pathology can not only undermine an organization's legitimacy, but can also interfere with its ability to perceive a path to legitimacy repair, even when it recognizes the necessity of doing so. The paper concludes with recommendations for practice and suggestions for future research looking beyond sports governing bodies.     

The Risk of Groundling Fatalities from Unintentional Airplane Crashes

The crashes of four hijacked commercial planes on September 11, 2001, and the repeated televised images of the consequent collapse of the World Trade Center and one side of the Pentagon will inevitably change people's perceptions of the mortality risks to people on the ground from crashing airplanes. Goldstein and colleagues were the first to quantify the risk for Americans of being killed on the ground from a crashing airplane for unintentional events, providing average point estimates of 6 in a hundred million for annual risk and 4.2 in a million for lifetime risk. They noted that the lifetime risk result exceeded the commonly used risk management threshold of 1 in a million, and suggested that the risk to "groundlings" could be a useful risk communication tool because (a) it is a man-made risk (b) arising from economic activities (c) from which the victims derive no benefit and (d) exposure to which the victims cannot control. Their results have been used in risk communication. This analysis provides updated estimates of groundling fatality risks from unintentional crashes using more recent data and a geographical information system approach to modeling the population around airports. The results suggest that the average annual risk is now 1.2 in a hundred million and the lifetime risk is now 9 in ten million (below the risk management threshold). Analysis of the variability and uncertainty of this estimate, however, suggests that the exposure to groundling fatality risk varies by about a factor of approximately 100 in the spatial dimension of distance to an airport, with the risk declining rapidly outside the first 2 miles around an airport. We believe that the risk to groundlings from crashing airplanes is more useful in the context of risk communication when information about variability and uncertainty in the risk estimates is characterized, but we suspect that recent events will alter its utility in risk communication.     

Strategic and Organizational Evolution of Spanish Firms: Towards a Holding Network Form?

The main objective of this study is to analyse the strategic and organizational evolution of large firms in a current time period and within a specific geographical context (Spain). In order to achieve this purpose, the paper combines the Chandlerian programme with processual analysis. We draw on documentary sources (annual reports, company histories, business directories and so on) and interviews. We have found that in the model of corporate development some characteristics of new organizational structures will coexist with some features of old ones. In line with previous studies our findings highlight the existence of the 'multidivisional network' but, most importantly, our findings also reflect the emergence of a new kind of organizational form that we call 'holding network'. The 'holding network' is more decentralized, both strategically and operationally, than the multidivisional form. However, its level of decentralization is less than in the N-form. Furthermore, whereas the multidivisional form is a hierarchy, the 'holding network' emphasizes the communication among people of different levels. This multilevel communication differs from that in the N-form. Apart from the horizontal communication in the same level there is vertical and horizontal communication between different levels. We conclude by emphasizing the need to explore in future empirical studies to what extent these patterns and new organizational forms should be considered as a transitory or consolidated phenomenon.     

创业者个体学习、组织学习如何交互影响企业创新行为？——基于整合视角的纵向单案例研究

社会经济的不断发展促使分工愈发精细,对个人与组织间的技术隔离也愈加明显,亟待创业者个体及组织开展跨层次的交互学习以构建组织创新优势。基于此,本文援引学习理论与意义构建视角,从"行动"与"解释"出发,采用纵向单案例研究方法,基于"个体-组织"整合性分析框架,探究了不同创业阶段内跨层次行动主体间的学习互动模型,揭示了其对企业创新的影响路径。研究发现:创业者个体学习与组织学习间的互动,表现为渐变初期个体利用式学习经"自上而下"团队互动主导形成组织单环式行动;而在调整转变期,个体学习与组织学习发生交互影响,包含个体探索式学习经"横向协同式"团队互动主导形成组织双环式行动,以及组织双环式行动转换为单环式之后,经由持续反思与质询,刺激形成创业者个体利用式学习;最后,在发展突变期,个体利用式学习经"制度化统筹式"团队交互合作促成组织单环式行动,同时个体探索式学习经"跨越层次自主式"团队交互激活组织双环式学习。此外,在不同创业阶段,3种互动逻辑与意义构建框架下的创新决定机制呈现出以个体创意激发与扩散、信息整合与匹配以及平衡矛盾与冲突3种不同的影响路径展开的态势。本研究为创业学习理论和创业实践过程贡献了新的启示。     

互动导向与新企业绩效:组织合法性中介作用

新企业如何克服组织合法性门槛、实现成长一直是创业研究的重要课题,信息技术的快速发展为新企业响应顾客日益个性化的需求和获得组织合法性提供了新的手段。整合互动导向视角和组织合法性视角,分析信息技术背景下新企业的互动导向对组织合法性和新企业绩效的作用机制,尤其是组织合法性的中介作用,选取中国情境下209个新企业作为调查样本,采用多元回归方法对研究假设进行检验。研究结果表明,新企业互动导向正向影响新企业绩效和组织合法性水平,互动导向通过组织合法性的部分中介作用影响新企业绩效。这表明在信息技术日益发达的今天,中国新企业可以利用信息技术平台提升互动导向水平,促进组织合法性,从而克服新企业组织合法性门槛,实现成长。     

顾客授权与新企业合法性关系实证研究

从互动导向与合法性视角,基于中国转型情景下的大样本数据验证了政治网络对于顾客授权与组织合法性关系的负向调节作用。这一结论说明转型背景下的新企业可以借助政治网络行为获得一定的成长资源并缓冲制度压力,其依赖顾客授权式互动获取合法性的市场动机与行为下降,从而表现出顾客授权与组织合法性关系强度上的减弱。     

Communicating Low‐Probability High‐Consequence Risk,Uncertainty and Expert Confidence: Induced Seismicity of Deep Geothermal Energy and Shale Gas

Subsurface energy activities entail the risk of induced seismicity including low‐probability high‐consequence (LPHC) events. For designing respective risk communication, the scientific literature lacks empirical evidence of how the public reacts to different written risk communication formats about such LPHC events and to related uncertainty or expert confidence. This study presents findings from an online experiment (N = 590) that empirically tested the public's responses to risk communication about induced seismicity and to different technology frames, namely deep geothermal energy (DGE) and shale gas (between‐subject design). Three incrementally different formats of written risk communication were tested: (i) qualitative, (ii) qualitative and quantitative, and (iii) qualitative and quantitative with risk comparison. Respondents found the latter two the easiest to understand, the most exact, and liked them the most. Adding uncertainty and expert confidence statements made the risk communication less clear, less easy to understand and increased concern. Above all, the technology for which risks are communicated and its acceptance mattered strongly: respondents in the shale gas condition found the identical risk communication less trustworthy and more concerning than in the DGE conditions. They also liked the risk communication overall less. For practitioners in DGE or shale gas projects, the study shows that the public would appreciate efforts in describing LPHC risks with numbers and optionally risk comparisons. However, there seems to be a trade‐off between aiming for transparency by disclosing uncertainty and limited expert confidence, and thereby decreasing clarity and increasing concern in the view of the public.     

Safety culture: Key theoretical issues

The organizational preconditions to major systems failures are seen as increasingly important for risk management. However, existing empirical attempts to study safety culture and its relationship to organizational outcomes have remained fragmented and underspecified in theoretical terms. This is despite the existence of a number of well-developed theories of organizationally induced accidents and disasters. Reasons for this disfunction of theory and practice are first considered. The paper then outlines four key theoretical questions for safety culture researchers: the fact that culture acts simultaneously as a precondition both for safe operations and for the oversight of incubating hazards (the paradox of 'safety' culture); the challenge of dealing with complex and ill-structured hazardous situations where decision makers are faced with deep forms of uncertainty represented by incompleteness of knowledge or ignorance; the need to consider the construction of risk perceptions in workgroups, and to view risk acceptability as the outcome of a process of social negotiation; and the fact that institutional politics and power are critical for determining the achievement of safety culture goals, and in particular that of organizational learning.     

Business Legitimacy among Business Students in the United States, Great Britain, and South Africa

This study compares attitudes toward business legitimacy in three countries. Positive attitudes toward business legitimacy exist when there is a congruence between organizational activities and societal expectations. Businesses are concerned about the extent to which negative attitudes toward business legitimacy will lead to increased government regulation. The results suggest that business students in all three countries are similar in their attitudes toward business legitimacy; however, blacks have more negative attitudes toward business legitimacy than do whites. This study resulted in the validation of a scale that can be used to measure attitudes toward business legitimacy on a cross-cultural basis. Business legitimacy is a major concern in South Africa as the predominately white business community seeks to give the emerging black majority a stake in the existing economic system. This revised version was published online in August 2006 with corrections to the Cover Date.     

基于扎根理论的中国企业海外并购关键风险的识别研究

风险识别是中国企业海外并购风险控制的前提,也是保证海外并购成功实现的基础。由于中国特有的社会制度,中国企业的海外并购行为往往得不到东道国政府和民众的信任,这增加了中国企业海外并购的复杂性和不确定性,大大提高了风险识别的难度。为探讨中国企业在海外并购中面临哪些关键风险,论文运用扎根理论研究方法,以近年来中国企业进行的海外并购典型失败案例为研究样本,通过数据收集和译码过程,不断比较和理论抽样,构建了以"跨文化风险"为核心范畴的中国企业海外并购关键风险体系,并基于合法性视角,从国家和组织两个层面进一步解析了风险源——制度距离,从而为中国政府和企业有效进行海外并购风险防范提供了策略和建议。     

The War of the Woods: Facilitators and Impediments of Organizational Learning Processes

This study examines unfolding organizational learning processes at MacMillan Bloedel, a company which, after years of resisting stakeholder pressures for change, disengaged from the field’s dominant paradigm and developed a new solution. We elaborate the Crossan, Lane and White multi–level framework of organizational learning processes, finding support for the four feedforward learning processes they identified (intuiting, interpreting, integrating and institutionalizing), and adding two action–based learning processes: ‘attending’ and ‘experimenting’. We introduce the concept of a ‘legitimacy trap’ to describe an organization’s over–reliance on institutionalized knowledge when external challenges arise. The trapped organization rejects external challenges of its legitimacy when it perceives the sources of those challenges to be illegitimate. Feedforward learning is blocked as the organization escalates its commitment to its institutionalized interpretations and actions. Taking a grounded theory approach, we discuss how individuals attend to new stimuli and engage in intuiting about them, how groups interpret, experiment with and integrate new solutions, and how the firm validates and institutionalizes the successful solution. Facilitators and impediments of each of these learning processes are identified. Our additions to the model recognize the importance of context in organizational learning processes, and suggest how power may impact organizational learning.     

分隔机制与创业孵化型平台企业合法性保护

立足于合法性溢出视角和组织场域治理视角,提出两组关于分隔机制的竞争性假设,探讨“创业孵化型平台企业在给创业企业共享合法性过程中,如何避免反受其害”。研究表明:分隔机制可以作为一种调节因素,缓解创业企业不愿创新或不端行为对创业孵化型平台企业合法性的破坏,但不能通过直接约束创业企业的意愿或行为,来保护创业孵化型平台企业的合法性。     

Safety culture: Key theoretical issues

Abstract

The organizational preconditions to major systems failures are seen as increasingly important for risk management. However, existing empirical attempts to study safety culture and its relationship to organizational outcomes have remained fragmented and underspecified in theoretical terms. This is despite the existence of a number of well-developed theories of organizationally induced accidents and disasters. Reasons for this disfunction of theory and practice are first considered. The paper then outlines four key theoretical questions for safety culture researchers: the fact that culture acts simultaneously as a precondition both for safe operations and for the oversight of incubating hazards (the paradox of ‘safety’ culture); the challenge of dealing with complex and ill-structured hazardous situations where decision makers are faced with deep forms of uncertainty represented by incompleteness of knowledge or ignorance; the need to consider the construction of risk perceptions in workgroups, and to view risk acceptability as the outcome of a process of social negotiation; and the fact that institutional politics and power are critical for determining the achievement of safety culture goals, and in particular that of organizational learning.     

Operational Networks: Adaptation to Extreme Events in China

Natural hazards pose an increasing challenge to public administrators, as the frequency, costs, and consequences of extreme events escalate in a complex, interdependent, world. This study examines organizational networks as instruments for mobilizing collective response to extreme events, but effective design has been elusive. Governments have focused on planned networks to anticipate risk before hazards occur; communities have formed emergent networks as voluntary efforts after the event. Using a framework of complex adaptive systems, we identify operational networks that adapt to their immediate context in real time, using technologies to support the search, exchange, and feedback of information to enable informed, collective action. Applying mixed research methods—documentary analysis of laws, policies, and procedures; content analysis of news articles; onsite observation; and semistructured interviews with experienced personnel—we document operational networks as a distinct form of multiorganizational response to urgent events that combines the structure of designated authority with the flexibility of information technologies. The integration of planned and emergent organizational forms into operational networks is measured through External/Internal (E/I) index analysis, based on empirical data collected on response systems that formed following the 2008 Wenchuan and 2013 Lushan earthquakes in the centralized administrative context of China. Findings show that planned networks provide the organizational structure and initial legitimacy essential for operational networks to form, but ready access to information technology—cell phones, short-wave radio systems, internet access—enables rapid communication and exchange of information essential for flexible adaptation in real time to meet urgent needs.     

Percentiles of the Product of Uncertainty Factors for Establishing Probabilistic Reference Doses

Exposure guidelines for potentially toxic substances are often based on a reference dose (RfD) that is determined by dividing a no-observed-adverse-effect-level (NOAEL), lowest-observed-adverse-effect-level (LOAEL), or benchmark dose (BD) corresponding to a low level of risk, by a product of uncertainty factors. The uncertainty factors for animal to human extrapolation, variable sensitivities among humans, extrapolation from measured subchronic effects to unknown results for chronic exposures, and extrapolation from a LOAEL to a NOAEL can be thought of as random variables that vary from chemical to chemical. Selected databases are examined that provide distributions across chemicals of inter- and intraspecies effects, ratios of LOAELs to NOAELs, and differences in acute and chronic effects, to illustrate the determination of percentiles for uncertainty factors. The distributions of uncertainty factors tend to be approximately lognormally distributed. The logarithm of the product of independent uncertainty factors is approximately distributed as the sum of normally distributed variables, making it possible to estimate percentiles for the product. Hence, the size of the products of uncertainty factors can be selected to provide adequate safety for a large percentage (e.g., approximately 95%) of RfDs. For the databases used to describe the distributions of uncertainty factors, using values of 10 appear to be reasonable and conservative. For the databases examined the following simple "Rule of 3s" is suggested that exceeds the estimated 95th percentile of the product of uncertainty factors: If only a single uncertainty factor is required use 33, for any two uncertainty factors use 3 x 33 approximately 100, for any three uncertainty factors use a combined factor of 3 x 100 = 300, and if all four uncertainty factors are needed use a total factor of 3 x 300 = 900. If near the 99th percentile is desired use another factor of 3. An additional factor may be needed for inadequate data or a modifying factor for other uncertainties (e.g., different routes of exposure) not covered above.     

A new approach to risk evaluation and management: risk-based, precaution-based, and discourse-based strategies.

Our concept of nine risk evaluation criteria, six risk classes, a decision tree, and three management categories was developed to improve the effectiveness, efficiency, and political feasibility of risk management procedures. The main task of risk evaluation and management is to develop adequate tools for dealing with the problems of complexity, uncertainty. and ambiguity. Based on the characteristics of different risk types and these three major problems, we distinguished three types of management--risk-based, precaution-based, and discourse-based strategies. The risk-based strategy--is the common solution to risk problems. Once the probabilities and their corresponding damage potentials are calculated, risk managers are required to set priorities according to the severity of the risk, which may be operationalized as a linear combination of damage and probability or as a weighted combination thereof. Within our new risk classification, the two central components have been augmented with other physical and social criteria that still demand risk-based strategies as long as uncertainty is low and ambiguity absent. Risk-based strategies are best solutions to problems of complexity and some components of uncertainty, for example, variation among individuals. If the two most important risk criteria, probability of occurrence and extent of damage, are relatively well known and little uncertainty is left, the traditional risk-based approach seems reasonable. If uncertainty plays a large role, in particular, indeterminacy or lack of knowledge, the risk-based approach becomes counterproductive. Judging the relative severity of risks on the basis of uncertain parameters does not make much sense. Under these circumstances, management strategies belonging to the precautionary management style are required. The precautionary approach has been the basis for much of the European environmental and health protection legislation and regulation. Our own approach to risk management has been guided by the proposition that any conceptualization of the precautionary principle should be (1) in line with established methods of scientific risk assessments, (2) consistent and discriminatory (avoiding arbitrary results) when it comes to prioritization, and (3) at the same time, specific with respect to precautionary measures, such as ALARA or BACT, or the strategy of containing risks in time and space. This suggestion does, however, entail a major problem: looking only to the uncertainties does not provide risk managers with a clue about where to set priorities for risk reduction. Risks vary in their degree of remaining uncertainties. How can one judge the severity of a situation when the potential damage and its probability are unknown or contested? In this dilemma, we advise risk managers to use additional criteria of hazardousness, such as "ubiquity versibility," and "pervasiveness over time," as proxies for judging severity. Our approach also distinguishes clearly between uncertainty and ambiguity. Uncertainty refers to a situation of being unclear about factual statements; ambiguity to a situation of contested views about the desirability or severity of a given hazard. Uncertainty can be resolved in principle by more cognitive advances (with the exception of indeterminacy). ambiguity only by discourse. Discursive procedures include legal deliberations as well as novel participatory approaches. In addition, discursive methods of planning and conflict resolution can be used. If ambiguities are associated with a risk problem, it is not enough to demonstrate that risk regulators are open to public concerns and address the issues that many people wish them to take care ot The process of risk evaluation itself needs to be open to public input and new forms of deliberation. We have recommended a tested set of deliberative processes that are, at least in principle, capable of resolving ambiguities in risk debates (for a review, see Renn, Webler, & Wiedemaun. 1995). Deliberative processes are needed, however, for ail three types of management. Risk-based management relies on epistemiological, uncertainty-based management on reflective, and discourse-based management on participatory discourse forms. These three types of discourse could be labeled as an analytic-deliberative procedure for risk evaluation and management. We see the advantage of a deliberative style of regulation and management in a dynamic balance between procedure and outcome. Procedure should not have priority over the outcome; outcome should not have priority over the procedure. An intelligent combination of both can elaborate the required prerequisites of democratic deliberation and its substantial outcomes to enhance the legitimacy of political decisions (Guttman & Thompson, 1996; Bohman, 1997. 1998).