Hexa-Helix Approach for Smart Disaster Governance Framework in Developing Cities, Case Study: Slawi Urban Area, Tegal Regency

Disasters, whether natural or unnatural, cause substantial loss and damage. Due to its abrupt nature and unpredictable scale, disaster management can be challenging. To tackle this, cities need innovative strategies to face the challenge of managing disasters. Rapid widespread of technologies has encouraged cities to develop innovative strategies called Smart Governance. The use of technology is convinced to be able to achieve a more effective and efficient service while also maintaining external collaboration and internal coordination. However, the complexity of disaster events and the large scale of the people involved calls for a more inclusive strategy. This research aims to develop a conceptual framework for innovative disaster governance. The framework was set out to be developed using the hexa-helix approach. This approach is an adaptation from the penta-helix one with an additional sixth actor, the affected communities. The addition of the sixth actor is proven to give substantial inputs regarding disaster management from a distinct point of view. This research used qualitative methods to develop a conceptual disaster framework. Supporting data for this research were collected mainly using group discussions and interviews. Those data were further analyzed using Mendelow Stakeholder Matrix to map roles for each actor. The finding shows that each actor of the hexa-helix has a significant role in the framework. These roles help the collaboration and coordination needed for disaster governance to be more effective and efficient. The result expects to provide a base framework for disaster governance integration with technological innovation.


Introduction
Disaster is described as a natural or man-made phenomenon that can threaten lives and generate casualties such as environmental damage, property loss, and psychological impact [1][2][3].In recent years, the frequency and magnitude of natural disasters have increased worldwide [4].Kais & Islam [5] perceive that climate change is the cause of it.Over time, uncertain climate change can make it challenging to measure disaster trends and frequency for disaster risk reduction [6].
Apart from climate change, some believe that rapid urbanisation and changes in land cover have also contributed to the increasing occurrence of disasters [7][8][9].As the population grows, the need for built environments increases, resulting in rapid development to accommodate facilities and 1264 (2023) 012029 IOP Publishing doi:10.1088/1755-1315/1264/1/012029 2 infrastructure [10].In some regions, the exceeding demands for development have caused insufficiency in land supply.This insufficiency has led to massive land conversion, causing the loss of conservation areas [11][12][13].The loss of these conservation areas reduces the natural means of disaster prevention, thus increasing the risk of more frequent disaster occurrences [14] The unpredictable scale of disaster occurred in Indonesia, especially in Slawi Urban Area, Tegal Regency.Based on the number of disaster incidents data from Tegal Regency Disaster Management Agency and analysis result of the Disaster Risk Assessment Document in 2022, there is a recurring pattern of disasters in the Slawi Urban Area [15].During the rainy season, Slawi Urban Area often faces the challenges of floods and flash floods.The Slawi Urban Area is also prone to tornado disasters during the transitional season.The community needs a better understanding of implementing disaster mitigation [16].This leads to ineffective implementation of disaster risk reduction in the Slawi Urban Area.Therefore, disaster governance in Slawi Urban Area requires improvement.
Improving disaster management involves collaborating with various stakeholders.Disaster management is not only from the government but also needs to collaborate with the community, businessmen, media, and academics [17,18].Current conditions indicate a need for increased collaboration among stakeholders to mitigate disasters.Based on this condition, it is necessary to fix the role of each stakeholder in disaster management [19].Therefore, it is required to have a disaster governance framework.
Preceding studies have developed various disaster governance frameworks.Auzzir et al. [20] created a disaster governance framework for Public-Private Partnerships.Shahat et al. [21] conceptualised the framework based on technology capabilities, government functionalities, coping capacities, and disaster resilience.Lin and Lee [4] developed the framework using a community-based approach.However, none of those studies has developed a multi-actor roles definition and strategic collaboration within the disaster governance framework.Therefore, this research was set to cover those gaps within the preceding studies by developing an innovative disaster governance framework.
Based on these conditions, this paper aims to develop a conceptual framework for innovative disaster governance.This research covers the gap in four stages.First, this research constructs a strategic disaster governance framework based on previous studies.Second, this research defines the roles of involved actors in disaster governance using the Mendelow stakeholder matrix [22].Third, this research assigns predefined roles using a hexa-helix approach.This developed penta-helix approach adds the affected communities as a sixth actor [23] because the penta-helix approach was not optimal in disaster management [24].The fourth stage integrates the developed hexa-helix framework into a smart governance module for technology innovation [21].
A comprehensive description of the stakeholders engaged in the disaster governance framework becomes possible by including a sixth actor.This inclusion provides valuable insights into their roles and the potential for fostering collaboration [23].Moreover, integrating the framework into a smart governance module is anticipated to lay a strong foundation, thereby paving the way for substantial technological advancements in disaster governance [21,25].

Study Area
The study area of this research focused on Slawi Urban Area, as shown in Figure 1.It is one of Central Java Province's urban areas in Tegal Regency.Slawi Urban Area is located at the center of Tegal Regency, on the northern coast of Java Island.This area was chosen due to its high disaster hazard.Over the last few years, rapid urbanization, land cover change, sea-level rise, and intense rainfall are making this area prone to climate-related disasters [10,11,26].
During the rainy season, climate-related disasters such as tidal floods, flash floods, inundation, and landslides became common occurrences in this area.According to data from the Regional Disaster Management Agency of Tegal Regency, 11 flash floods, 16 tidal floods, and 33 landslides were recorded in 2021.Disaster Risk Assessment of Slawi Urban Area was conducted.The analysis revealed that Slawi Urban Area is prone to flood (Figure 2) and flash flood (Figure 3) risks.Locations with high flood risk levels are scattered in the north, center and south of the Slawi Urban Area (Figure 2).Meanwhile, locations with a high flash flood risk level are located along the Gung River that runs from north to south of the Slawi Urban Area (Figure 3).The results of the Disaster Risk Study show that flooding and rural floods are priority disasters in the district of Tegal, especially in Slawi urban areas.Priority disaster takes into account several indicators, such as hazard, vulnerability, and capacity.Capacity-building is crucial to reducing the danger of disasters.Emergency disaster management in the Slawi urban area is very important as it is the economic center and activity area in the Tegal District.The high frequency of disaster events in the Slawi Urban Area has resulted in substantial loss and damage.These results, if not mitigated could cause livelihood deterioration and threaten socio-economic sustainability [27][28][29].
4 Therefore, it is vital for Slawi Urban Area to have effective and efficient disaster governance to prevent the disaster and mitigate the impact should it ever happen.However, its intricate nature and the vast number it involved calls for more inclusivity in disaster governance [23].Utilizing the various stakeholders involved in Slawi Urban Area disaster mitigation, this research sets out to develop a hexahelix disaster governance framework for coordination and collaboration.

Data Research
The research collected data through a qualitative approach, utilizing literature reviews, field surveys, and focus group discussions.The initial data collection stage involved the literature review, which aimed to establish the basic knowledge of the study area, disasters, and stakeholders.Furthermore, the field survey was held on July 13, 2022.The field survey engaged stakeholders such as the Disaster Management Agency of Tegal Regency, disaster response volunteers, and affected communities to understand the existing disaster governance better.
The final data collection stage encompassed group discussion that included all pertinent stakeholders in disaster governance.This involved the Disaster Management Agency of Tegal Regency, disaster response volunteers, other relevant government agencies, local organizations, academics, mass media, and affected communities.The group discussion was conducted on October 12, 2022, attended by 43 participants at the Family Welfare Empowerment Building.The gathered data then organized and served as the foundation for stakeholder mapping in the development of the hexa-helix framework 6

Methods
This research presents an innovative disaster governance framework using the hexa-helix approach, developed through four key stages.Initially, based on the disaster management cycle of Khan et al. [30], Shahat et al. [21] six spheres of smart disaster governance, the Public-Private Partnership framework of Auzzir et al. [20], and the community-based approach of Lin & Lee [4] this research developed a disaster governance framework.Secondly, this research defines the roles of stakeholders through comprehensive field surveys and focused group discussions, applying the Mendelow stakeholder matrix to distribute them based on power and interest [22].
Thirdly, this research allocated each role and stakeholder to a specific part of the disaster governance framework.The assigned role helped form a hexa-helix disaster framework model, which included the affected communities as the sixth actor [23].Finally, this research integrated the hexa-helix disaster framework into a smart governance module, making it possible to replicate and implement the framework in technological innovations [21,23].

Smart Disaster Governance Framework
Shahat et al. [21] propose that the smart disaster governance framework should encompass six essential spheres: information, communication, timeliness, effectiveness & efficiency, reliability, and ubiquity.In addition, Auzzir et al. [20] recommend incorporating private sector participation in disaster governance through Public-Private Partnerships.Beyond the private sector, Lin & Lee [4] also suggests a community-based approach to disaster governance.This approach is emphasized by Rachim et al. [19], who convey the significance of affected communities in disaster governance.
Based on these preceding studies, we formulated a smart disaster governance framework.This framework comprises four stages of the disaster management cycle: mitigation, preparedness, emergency response, and recovery strategies [30].These stages aim to comprehensively manage disaster by addressing the full range of disaster stages-pre-disaster, during-disaster, and post-disaster [30].Each stage covers the six spheres of the smart disaster framework, as depicted in Figure 5 below.As depicted in Figure 4, every step within the framework addresses the six spheres of smart disaster governance, each with varying importance.While all six spheres hold significance, prioritization is required to identify the most essential sphere.Therefore, government agencies and other stakeholders could focus on the most critical aspects within each stage.This approach leads to a more feasible implementation of the framework.To provide a clearer understanding of the varying degrees of importance, Table 1 below outlines each aspect of smart disaster governance.

Mitigation
Mitigation is the preemptive act of minimizing disaster impact [30].Mitigation involves identifying and analyzing disaster risk assessment through planning and education [31].Therefore, a communitybased approach proposed by Lin & Lee [4] could enhance inclusivity in disaster education and awareness.Sejati et al. [32] further suggested that this approach could improve the precision of disaster risk mapping, leading to more comprehensive planning.
According to the explanation above, the mitigation stage of disaster governance must prioritize the information and communication spheres above others.Disaster data collection, analysis, and data sharing are necessary to reduce the disaster's impact.Information and communication also help for a better community-based approach that involves various stakeholders.As Azad et al. [33] implied in their research, information-sharing is essential in community-based disaster management.

Preparedness
Preparedness involves the process of planning and getting ready to respond during a disaster event [30].It follows mitigation with direct planning and protocol should a disaster happen [34].Unlike relief, this stage plans a more direct protocol at the grassroots level.Therefore, a community-based approach is essential for this stage.Sarabia et al. [35] indicated that involving local communities in disaster preparedness planning can heighten its accuracy and reliability.
The heightened accuracy of these plans came from the central role that local communities play, as they are the primary parties directly affected by disasters [36].Thus, having a better understanding of an area of disaster [37].Based on this explanation, the preparedness stage must prioritize effectiveness and efficiency regarding smart disaster governance.Timeliness, as in the response to disaster events, also plays a crucial part during this stage of disaster governance.

Emergency Response
Emergency response involves immediate actions to reduce the risks posed by a disaster [30].This phase occurs right after the disaster occurs.Therefore, the primary focus is searching and rescuing people and providing essential humanitarian assistance to affected communities [31,37].These actions require a solid grasp of the disaster area and the capability to organize the affected communities [37].As a result, local participation becomes crucial during this stage of the disaster.
The necessity for a rapid response post-disaster requires immediate yet well-organized actions to minimize damage and loss of life.Timeliness is the highest priority among the six spheres of smart disaster governance.Along with timeliness, effectiveness and efficiency also plays a crucial part.The ability to cope with disaster and utilize limited resources for emergency response activities is especially needed during this stage of disaster governance.

Recovery Strategies
Recovery strategies encompass all actions toward returning the community to its usual state [30].The recovery stage begins when repairs over damaged infrastructure and property are made [34].This stage was vital to ensure that affected communities received appropriate means to restore their livelihood [31].However, repairing damaged infrastructure needs a substantial fund, which the government often cannot afford.Therefore, involving the private sector through partnership with the government can be seen as an optimal solution in this stage of disaster governance.
Gaining a partnership with the private sector requires trust and coordination between the two parties [38].While the private sector could support them financially, the government had to maintain a good relationship by providing them with a detailed basic plan, fees, and return on investment [39].Therefore, communication is the most important in this stage among the six spheres of smart disaster governance.Data collection, analysis, and ability to cope post-disaster also play a key part.

Disaster Governance Stakeholder Matrix
The smart disaster governance framework requires the involvement of various stakeholders.Therefore, it is vital to clearly define their specific roles for better implementation.This is due to the uniqueness of each stakeholder who had to contribute to disaster governance [23].Hence, understanding stakeholder classification and role definition is required in disaster governance [40].On that account, the research conducted surveys and group discussions in the field.As shown in Figure 6, this research engaged the government and response volunteers in the field surveys.This research also involved the affected communities to better understand what happens during a disaster event at a grassroots level.Figure 3 also shows the focus group discussion that this research conducted.The group discussion was aimed at deeper comprehension of the specific role of each stakeholder during a disaster event.
The discussion involved various stakeholders related to the disaster.The involved stakeholders were the Disaster Management Agency of Tegal Regency, disaster response volunteers, other relevant government bodies, local organizations, academics, mass media, and affected communities.Based on the group discussion, this research maps a role definition using the Mendelow stakeholder matrix [22].The matrix divides stakeholders by their power level and interest in disaster governance.Figure 7 above shows that the stakeholder map was divided into four quadrants.These quadrants were high power-high interest, low power-high interest, high power-low interest, and low power-low interest.The research assigns specific disaster governance stakeholders within these quadrants according to their power and interest level.Each stakeholder would then be given specific disaster governance roles based on the quadrants they occupied in the stakeholder matrix.
The first quadrant would be the high power-high interest.Mendelow [22] named this quadrant dynamic-high power.Others, with more related topics, use this matrix and named the quadrant as the key player stakeholder [41,42].The key player has the most power and interest in disaster government.Depending on how well they run, they can change the course to better or worse governance.Within this quadrant, there were the government and academia.
These stakeholders play a vital role in developing a foundation policy for disaster governance.Hence, they play a pivotal role in this model.Research by Rachim et al. [23] also supports these findings, where the role of academics in policy formulation influences policy quality.In the second quadrant, NGOs and the private sector are stakeholders assisting.Their roles became pivotal during the response and recovery stages of disaster.Therefore, with their high interest and low power, they must be kept informed in disaster governance.
The third quadrant, or high power-low interest, was named static high power by Mendelow [22].Within this quadrant were the affected communities, an additional sixth actor of the hexa-helix approach.
The affected communities must feel comfortable and satisfied with the formulated policies, thus reflecting successful governance outcomes.The fourth quadrant, low power-low interest, consists of only the mass media.Although their role in spreading information is important, other stakeholders could fill this role.Therefore, they are assigned as low-priority stakeholders.

Hexa-Helix Disaster Framework
Based on the disaster governance stakeholder matrix, this research developed a hexa-helix disaster framework.The framework was aimed to define specific stakeholders' roles in disaster governance.Unlike a penta-helix approach, this framework includes the affected communities as an additional sixth actor [23].This addition is expected to increase the inclusiveness of the framework.The hexa-helix disaster governance framework can be seen in Figure 8.

Government
According to the stakeholder matrix, the government plays an important part in disaster governance as a key player stakeholder.This is due to their vital roles in disaster governance.Their roles cover the whole stages of disaster governance while having responsibilities binding all the stakeholders together.As a pivotal part of the framework, the government can change disaster management course depending on how well they run.
In the mitigation stages, the government created a basic policy, protocol, and other countermeasure means for disaster [23,40].Subsequently, their basic policy and protocol were also carried out during the preparedness and emergency response stages [36].Later in the recovery stages, the government plays a part in communicating and gaining partnerships with the private sector, CSR, or entrepreneurs.This partnership was important to fund the reputation of damaged infrastructure and property loss.

Academia
As another key player in the disaster governance framework, the academia was also responsible for laying the foundation of policy along with the government.As stated by Rachim et al. [23], the influences of academia during policy formulation could affect policy quality.The importance of this stakeholder is shown in Figure 5 above, as it covers the third fourth of the framework stages.
Aside from giving policy advice during the mitigation stage, the academia was responsible for preparing protocol and warning system for the preparedness stage.The quality of protocol and warning system could be heightened using academic influences.Their influences could lead to better planning, like a contingency plan.Moreover, academia also plays a part in the emergency response stage by providing assistance and essential needs to the affected communities.

Entrepreneur/Business (Private Sector)
According to the Mendelow stakeholder matrix [22], this stakeholder was within the second quadrant of the matrix.Unlike the government and academia, the entrepreneur plays more in the postdisaster relief than pre-disaster pre-emptive act.The capacity of this stakeholder allows them to help the government, especially during the recovery stage.At that stage, entrepreneurs could help raise government funds to repair the damaged infrastructure and property loss.Aside from raising funds, this stakeholder could also aid the government in the repairing process.

NGOs (Non-Government Organizations)
The NGOs occupied the same quadrant as the entrepreneur (see Fig. 4).Despite this, it takes a different role in disaster governance.In contrast to the entrepreneur, the NGOs play more part in the pre-disaster preemptive act.NGOs such as disaster response volunteers or other community empowerment institutions can immediately respond to a disaster event.Therefore, their role was ideally placed between the preparedness and emergency response stages.

Mass Media
The mass media are responsible for spreading actual and accurate information regarding disasters.This role is best utilized during post-disaster relief, especially during the emergency response stage.At this stage, the widespread information could help the affected communities gain helps from various sources.Despite its position as a low-priority stakeholder, the mass media still play a key part during disaster governance's emergency response and recovery stages.

Affected Communities
As the third quadrant occupant, the affected communities need to be satisfied with the formulated policies, protocols, and actions taken during the disaster.Aside from this, they are also responsible during the mitigation, preparedness, and emergency response stages.At the mitigation stage, they are primary data sources for disaster-related data collection and analysis.This is due to their comprehensive understanding of a disaster-impacted area [37].Therefore, increasing the accuracy of data collection and analysis, resulting in a more reliable policy.
During the later stages of disaster governance, the affected communities play a part as additional manpower for search and rescue.They were also responsible for maintaining good care of refugees along with the government and disaster volunteers.The importance of their role made this addition of a sixth actor expect a better disaster governance framework implementation.

Smart Governance for Hexa-Helix Disaster Framework
The developed hexa-helix disaster framework would then be applied to a smart governance module.According to Shahat et al. [21], the module consists of four logical steps, IOT technologies capabilities, disaster governance functionalities, disaster coping capacities, and smart disaster governance gains.In Figure 9 below, this research integrates the hexa-helix framework into the module.The diagram above the module is the stage that the module covers in the disaster governance framework.At the same time, the diagram below shows the involved stakeholders.
As shown in Figure 9, there were four steps of the smart disaster governance module.The initial step was the technological capabilities.This was the framework's foundation, covering all stages of the disaster governance framework.The government, academia, NGOs, and affected communities were involved in this step.This step lays the technological foundation needed to achieve the six spheres of smart disaster governance [21].Following the technologies capabilities were the governance functionalities.This step represents the ability of stakeholders to be proactive and informative before and during the disaster.This was important because it illustrates how well the government and other stakeholders cooperate.After the functionalities, the coping capacities came in.This represents the level of awareness, responsiveness, control, and preparedness of stakeholders in times of disaster [21].
The last step of the module was the governance gains.This step focuses more on the coping capacities and recovery process.The government, private sector, NGOs, and mass media were involved in this step.Finally, the module of smart disaster governance, enriched with the Hexa-helix approach stakeholder model, is expected to give a basic understanding of further technological innovation in disaster management.

Conclusion
Disaster is a natural or human-made phenomenon that can cause many victims and affect life.The frequency and scale of natural disasters have increased globally, including in Tegal Regency, which refers to climate change, urbanization, and land use change.Previous studies have developed a disaster management framework, but an inclusive framework involving multiple actors and specific roles for strategic collaboration has not been developed.This research focuses on developing a strategic, intelligent disaster management framework to address the increasing frequency and scale of natural and man-made disasters by including the various stakeholders and their roles using Mendelow's stakeholder matrix and a hexa-helix approach to role allocation.This study aims to bridge the gap in the existing disaster management framework.The proposed framework covers critical aspects such as information, communication, timeliness, effectiveness & efficiency, and reliability.This includes four stages of disaster management, namely mitigation strategy, preparedness, emergency response, and recovery, with different priority aspects for each stage.Engaging government, academia, the private sector, NGOs, mass media, and affected communities, the hexa-helix framework promotes inclusivity.In addition, integrating this approach into intelligent governance modules is expected to facilitate technological advances in disaster management, encouraging collaborative and effective disaster response.This integration provides convenience regarding individual roles and collaboration between stakeholders, as well as the framework into an intelligent governance module, to pave the way for technological advances in disaster management.

Table 1 .
The six spheres of smart disaster governance