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Available online at www.sciencedirect.com

ScienceDirect

journal homepage: www.elsevier.com/locate/he

Evaluating hydrogen risk management policy PR:

Lessons learned from three hydrogen accidents
in South Korea

Youhyun Lee a, Min Hyuk Cho b, Min Chul Lee c,*, Young Jin Kim d,**
a
Department of Public Administration, Ajou University, Republic of Korea
b
Basic Research Laboratory Center, Kyunghee University, Republic of Korea
c
Department of Safety Engineering, Incheon National University, 119 Academy-ro, Yeonsu-gu, Incheon, 22012,
Republic of Korea
d
Department of Mechanical Engineering, Hannam University, 70 Hannam-ro, Daedeok-gu, Daejeon, 34430, Republic
of Korea

highlights graphical abstract

Experts positively evaluate the

responsiveness of hydrogen PR
policies in Korea.

Yet, experts negatively evaluate
policy openness, guidelines, and
control tower.

The government should improve
communication about hydrogen
technology.

The government needs to cultivate
professional crisis management PR
personnel.

article info abstract

Article history: Hydrogen energy has become a pivotal actor in achieving carbon neutrality by 2050 in the
Received 29 December 2022 era of the climate crisis. Regardless of its importance, three consecutive hydrogen safety
Received in revised form accidents and their aftermath in South Korea have aggravated the public's acceptance of
3 March 2023 hydrogen. Hydrogen-induced risks have always existed in our society regardless of
Accepted 11 March 2023 technical improvement. Here, the task of the government is to manage the hydrogen risk
Available online 5 April 2023 to prevent hydrogen disasters. This study included three steps in its research design; 1)
selecting experts through snowball sampling, 2) conducting a qualitative email survey,
Keywords: and 3) analyzing the qualitative answer sheet by applying semantic network analysis.
Hydrogen risk We found that experts' evaluations of the Korean hydrogen PR policy were positive
Hydrogen accident regarding responsiveness but negative regarding openness, guidelines, and control
Policy PR tower. Therefore, we suggest practical policy recommendations; the central government

* Corresponding author.
** Corresponding author.
E-mail addresses: [email protected] (Y. Lee), [email protected] (M.C. Lee), [email protected] (Y.J. Kim).
https://doi.org/10.1016/j.ijhydene.2023.03.142
0360-3199/© 2023 Hydrogen Energy Publications LLC. Published by Elsevier Ltd. All rights reserved.
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Hydrogen safety should play an important role in cultivating professional crisis management PR
Risk management personnel and others.
© 2023 Hydrogen Energy Publications LLC. Published by Elsevier Ltd. All rights reserved.

the hydrogen economy through the strong leadership of the

Introduction central government, including the Moon Jae-in administration
and the current Yoon Seok-Yeol administration.
Even after witnessing the global pandemic and energy crisis However, one of the biggest factors hindering the vitaliza-
induced by the Russia-Ukraine war, the aims of cleaner and tion of Korea's hydrogen industry and economy is the low rate
greener energy are increasing to meet carbon neutrality tar- of policy acceptance by the general public [8,12] Over the past
gets [1e4]. To achieve carbon neutrality, the transition to four years, three large and several small hydrogen safety acci-
green energy is essential [1,5]. Here, green renewable energy, dents have occurred in Korea. These hydrogen safety incidents
such as solar and wind, is highly dependent on the climate were communicated to the public through the media, some-
and has regional variations [6]. However, hydrogendan en- times not transparently, not promptly, and only partially,
ergy carrierdis an alternative that can compensate for these leading to a remarkably low acceptance of hydrogen energy.
limitations of renewable energy; it has various advantages There are precedents of hydrogen-related accidents not only in
and cannot only respond to decarbonization and global Korea but also in Norway [13e15], and as the use of hydrogen
warming but also contributes to energy security by increasing energy and industrial development are activated worldwide,
energy self-sufficiency [7] when combined with oxygen in a concerns about hydrogen safety are becoming graver [16].
fuel cell or combustion engine (see Tables 3e7, Figs. 1e3). In particular, in a situation where the central government
In the case of South Korea, since the previous government, of each country, including South Korea, is implementing
renewable energy has been actively pursued with an strong hydrogen economy leadership, hydrogen risk man-
emphasis on the hydrogen economy [8e11]. The roadmap for agement policy PR is the most important. A positive hydrogen
revitalizing the hydrogen economy was announced in 2019 b y risk management policy PR will play a pivotal role in
the Moon Jae-in administration, and the basic plan for a improving the acceptance of hydrogen energy as a whole [17].
hydrogen transition was announced in 2021. As the new The need for studying effective hydrogen safety policies is
government of Yoon Seok-Yeol came to power in 2022, there increasing [18,19]. Governments in the US, Japan [20], and
were concerns that policy interest in hydrogen energy might Germany are also striving to set up safety standards for
decrease. However, the new government also promised to hydrogen-related technology. Other countries, such as the UK
invest in hydrogen in various fields, and fostering the [21,22], France [23], Canada [24], and China [25e27], are also
hydrogen industry was presented as a national task (MOTIE, considering hydrogen safety policies given the global
2022). South Korea is concentrating its efforts on revitalizing hydrogen trends [28,29].
With this background, this study aims to answer the
following two research questions.
Table 1 e Evaluation criteria for Hydrogen Risk Q1. Is South Korea's hydrogen risk management policy PR
Management Policy Public Relations (PR). well structured? If not, what are the main rationales?
Criteria Questions References Q2. What needs to be improved for effective hydrogen
Responsiveness Does the domestic [48] policy PR?
(promptness) hydrogen crisis response [31] The remainder of the paper introduces recent hydrogen
system provide information safety accidents in South Korea in Section 2; Section 3 over-
on hydrogen-related views the theories and background of hydrogen risk man-
accidents and disasters to
agement policy PR; Section 4 details the research design,
stakeholders and the public
including the research flow and detailed methods; Section 5
timeously without delay?
Openness Does the domestic [49] provides the analysis results; and lastly, the conclusion, lim-
hydrogen crisis response [50]. itations, and policy implications are suggested in Section 6.
system provide timely
information on hydrogen-
related accidents and Hydrogen safety accidents in South Korea
disasters to stakeholders
and the public? Recently, in South Korea, three hydrogen-related facilities
Control tower Is the attribution of [51].
experienced explosions. First, The “Gangneung Hydrogen
responsibility and authority [52]
Tank Explosion Accident” is when a hydrogen tank exploded
related to hydrogen safety
accidents clear? at Gangwon Techno Park located in Daejeon-dong Science
Guideline Is there a well-prepared [53]. Industrial Complex in Gangneung-si, Gangwon-do, on May 23,
crisis manual related to [54]. 2019. The exploded hydrogen tank was installed as part of the
hydrogen safety accidents? “IoT-based power-independent fuel cell/solar/wind hybrid
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Table 2 e Expert information.

No. Gender Age Last Completed Education Affiliation Major
1 Male 50e59 years PhD University Engineer
2 Male 40e49 years PhD University Engineer
3 Male 40e49 years PhD University Engineer
4 Male 40e49 years PhD University Engineer
5 Male 40e49 years Bachelor's Government Humanities
6 Male 50e59 years Bachelor's Government Engineer
7 Male 30e39 years Master's Research Institute Engineer
8 Female 30e39 years Bachelor's Fuel cell Association Humanities
9 Male 40e49 years Bachelor's Fuel cell Association Natural Science
10 Male 50e59 years Bachelor's Government Engineer
11 Male 40e49 years Bachelor's Government Engineer
12 Male 30e39 years Master's Research Institute Engineer
13 Male Under 30 Bachelor's University Engineer
14 Male 40e49 years Master's Government agency Engineer
15 Male 50e59 years Bachelor's Government Social Science
16 Male 40e49 years Master's Research Institute Engineer
17 Male 40e49 years Bachelor's Government Natural Science
18 Male 50e59 years PhD Fuel cell Association Engineer
19 Male 30e39 years Master's University Engineer
20 Male 40e49 years PhD Research Institute Engineer
21 Male 40e49 years PhD Research Institute Engineer
22 Male 40e49 years PhD University Engineer
23 Male 40e49 years PhD Research Institute Engineer
24 Male 30e39 years PhD University Engineer
25 Male 30e39 years Master Government agency Engineer
26 Male 40e49 years PhD Government agency Engineer
27 Female Under 30 Master's University Engineer
28 Male Under 30 PhD University Engineer
29 Male 40e49 years PhD University Engineer
30 Male 40e49 years PhD University Engineer
31 Male Under 30 Bachelor's University Engineer
32 Male Under 30 Master's University Engineer
33 Male 40e49 years PhD Government agency Engineer

power generation technology development” project. This the fire. The accident occurred simultaneously with the
project is a government-supported R&D project run by the opening of the valve on the container side after connecting the
Korea Energy Technology Assessment Service under the tube trailer and the nozzle on the charging station side. The
Ministry of Trade, Industry, and Energy (MOTIE). Two visitors high-pressure hose was disconnected, sparking the leaked
died, and six visitors were injured in this accident. hydrogen, and the charging station driver and the trailer
The second accident in South Korea occurred in the H2 driver suffered face and leg burns, respectively.
station near Seoul metropolitan area on January 2022. Third, an explosion of unknown cause occurred at Deo-
Although this accident turned out to be a minor fire accident, kyang Energy in May 2022. The hydrogen manufacturing
necessary and thorough safety measures should be taken plant in the Yeosu Industrial Complex was damaged, and
when handling combustible gas. Two workers were injured in three people were seriously injured. The explosion occurred

Table 3 e Rationales for negative evaluation e Responsiveness.

Rank Keyword Degree nDegree Betweenness nBetweenness
1 Accident 21 0.156 604.5 61.061
2 Press release 10 0.074 280 28.283
3 News 9 0.067 290.833 29.377
4 Gangneung TP 8 0.059 249 25.152
5 Partial 7 0.052 175.833 17.761
6 Inadequate 5 0.037 222.333 22.458
7 Government 4 0.03 129 13.03
8 Cause 3 0.022 0 0
9 Scale of damage 3 0.022 87 8.788
10 Result 2 0.015 0 0
11 Open 2 0.015 31.667 3.199
12 Public 2 0.015 31.667 3.199
13 Frequency 2 0.015 0 0
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Table 4 e Rationales for negative evaluation e Openness.

Rank Keyword Degree nDegree Betweenness nBetweenness
1 Cause 16 0.087 581.031 31.75
2 Press release 14 0.077 142.458 7.785
3 News 12 0.066 522.427 28.548
4 Inadequate 9 0.049 145.357 7.943
5 Accident 7 0.038 262.667 14.353
6 Accredited institution 6 0.033 68.158 3.724
7 Transparency 6 0.033 213.25 11.653
8 Open 5 0.027 168.382 9.201
9 Former government 5 0.027 10 0.546
10 Gangneung TP 4 0.022 159 8.689
11 Hydrogen related information 4 0.022 67.583 3.693
12 Public 3 0.016 91.924 5.023
13 Data 3 0.016 0 0
14 Lack 2 0.011 21.333 1.166
15 Details 2 0.011 5.257 0.287
16 Partial 2 0.011 0 0
17 Initial information 2 0.011 5.257 0.287
18 Need 2 0.011 0 0
19 Follow-up 2 0.011 5.257 0.287

on the second floor, used by employees as a cafeteria and who are interested in a certain topic [32]. “Relations” refers to
office. The company where the accident occurred, which has the interaction between two entities on one topic. The basic
headquarters in Ulsan, mainly produces industrial hydrogen function of PR includes mediating the interactions among an
gas, and the explosion is presumed to have ignited on the organization, the public, and a topic.
second floor and shook the ground, causing nearby workers Policy PR is a comparatively emerging issue in both
to evacuate. public administration and journalism and refers to the
strategic communication management activity in which the
government can gain the understanding and consent of the
Hydrogen risk management policy PR (Public people in a series of policy processes to solve public prob-
relations) lems [33]. Conventional communication systems of gov-
ernment depend on the publication of official journals for
Public relations (PR) represents the relationship organizations information purposes through which people can under-
have with the public and is an activity that resolves issues by stand a certain technical government activity. Conventional
openly and honestly facing conflicts between organizations communication encompasses a one-way communication
and the public [30,31]. The term public can refer to a mass or system from the government to the people. However, the
crowd but can be differentiated in terms of a group of people development of democracy and growing demands for

Table 5 e Rationales for negative evaluation e Control tower.

Rank Keyword Degree nDegree Betweenness nBetweenness
1 Ministry of Trade, Industry, and Energy (MOTIE) 33 0.142 427.167 25.842
2 Responsibility 15 0.065 772 46.703
3 Korea Gas Safety Corporation 10 0.043 381.333 23.069
4 Accident 8 0.034 581.667 35.189
5 Design 8 0.034 350 21.174
6 GanneungTP 6 0.026 390 23.593
7 Uncertain 6 0.026 472.333 28.574
8 National policy agency 4 0.017 0 0
9 Ministry of Employment and Labor 4 0.017 0 0
10 Authority 4 0.017 0 0
11 National Fire Agency 4 0.017 0 0
12 Safety manager 4 0.017 156 9.437
13 Government department 4 0.017 63 3.811
14 Local government 4 0.017 127.167 7.693
15 Ministry of Public Administration and Safety 4 0.017 0 0
16 Serious Accident Punishment Act 3 0.013 3 0.181
17 Control tower 3 0.013 414.667 25.086
18 Inadequate 2 0.009 228.167 13.803
19 Role 2 0.009 25.5 1.543
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Table 6 e Rationales for negative evaluation e Guidelines.

Rank Keyword Degree nDegree Betweenness nBetweenness
1 Hydrogen 28 0.161 654.225 39.578
2 Guideline 15 0.086 461.867 27.941
3 Crisis 11 0.063 250.8 15.172
4 Accident 10 0.057 356.008 21.537
5 Outside 7 0.04 196.3 11.875
6 Case 6 0.034 55.125 3.335
7 General 6 0.034 152.125 9.203
8 Limited 6 0.034 15 0.907
9 Public 5 0.029 104.583 6.327
10 Insufficient 5 0.029 78.758 4.765
11 FCEV 5 0.029 158.375 9.581
12 Response 4 0.023 40.167 2.43
13 Apply 3 0.017 50 3.025
14 Composition 2 0.011 0 0
15 Inadequate 2 0.011 0 0
16 Law 2 0.011 0 0
17 Safety management 2 0.011 0 0
18 PR 2 0.011 14.667 0.887

participatory governance urge the implementation of two- “the effect of uncertainty on objectives,” whereas objectives
way communication systems, including active interaction are defined as “what an organization sets out to achieve.”
between the government and the public [34]. Specifically, This definition considers the possibility of something
public policy can be defined as a remedy for resolving public happening and its potential impact on an organization's
problems and conflicts in a society. In this vein, policy PR objectives. ISO/IEC Guide 51:2014 defines risk as “the com-
can uniquely treat conflict management and manage public bination of the probability of an event and its consequence.”
acceptance. This definition is similar to the one you provided, but it
Meanwhile, risk can be defined as the “possibility that explicitly includes both the possibility of an event and the
human actions or natural events lead to consequences that potential consequences it could have. Both definitions
affect aspects of what humans value” [35], but a more emphasize the uncertainty of outcomes and the potential
generalized definition refers to ISO31000 and Risk manage- impact that events or actions could have on what an orga-
ment and ISO/IEC Guide 51:2014. ISO 31000 defines risk as nization values, whether it be its objectives or safety.

Table 7 e Keyword Clusters for effective hydrogen policy PR.

N. Name of clusters Keywords N. Name of clusters Keywords
1 Role of the public sector Hydrogen 5 Amelioration of the response Reinforce
Central government system Response system
Korea Amelioration
Institution People
Feedback
Investment
Responsibility
Evaluation
Hydrogen ecosystem
Local government
2 Cultivating professional crisis PR 6 Maintaining a friendly Public
management PR personnel Expertise relationship with the general Rationale
Crisis management education public Relationship
Friendly
3 Two-way, fact-based Press 7 Skillful management of Facilities
communication in the media to Communication facilities and plants Plant
enhance trust Fact Skillful
Manuel Early
Interaction
Trust
Exposing frequency
4 Developing safety perception Safety perception 8 Diversification of Social network
communication channel YouTube
Diversification channel
Concerns
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(Gangneung hydrogen tank

(Yeosu Hydrogen Factory Explosion
explosion)
(H2 station recharging accident) Accident)
“Eight people killed in
“Charging Accident at Hydrogen “Explosion at Yeosu Industrial
‘Gangneung hydrogen
Charging Station in the Seoul Complex Hydrogen Manufacturing
explosion’...There was no oxygen-
Metropolitan Area.” Plant.”
filtering safety device.”
Source : Gas Newspaper, 02.06. 2022 Source : Herald Economy,
Source: Yonhap News, 06.11.2019
31.05.2022

Fig. 1 e Cases of domestic hydrogen safety accidents.

Risk communication refers to the “effective and accurate activities that establish, maintain, and promote favorable re-
exchange of information about risks and hazards that ad- lationships of mutual understanding, acceptance, and coop-
vances risk awareness and understanding and promotes eration among the actors of society such as the government
protective behaviors among actors” [36]. According to Figuer- sector, the private sector, and civil society, focusing on the
oa's [37] research, risk communication emphasizes three as- provision and sharing of information in all processes of risk
pects: organization activity, respect for risk perception, and management [38].
identity as dialogue, not instruction.
Considering the above-related concepts, Risk Management
Policy PR is a systematic communication management pro-
cess based on communication toward minimizing the possi-
bility of physical and psychological damage that may occur
due to crisis events related to an organization. Thus, Risk
Management Policy PR can be defined as Communication

Fig. 2 e Expert Evaluation of South Korean Hydrogen PR Fig. 3 e CONCOR analysis for opinions on the improvement
policy. of hydrogen PR policy.
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Hydrogen has some technical limitations in production, research on human beings because it collects data on mutual
distribution, and safety compared to conventional energy human understanding through communication via language
carriers; it has a low energy density, there is limited distri- and text [56]. Various types of questionnaires exist, such as
bution and delivery, and it is highly flammable. Even with open-ended, multiple choice, checklist, classification,
these limitations, hydrogen is still a promising energy carrier sequence, and rating scales. In this study, the open-ended
and has the potential to meet carbon neutrality targets [39,40]; type was selected. An open-ended questionnaire is a form in
thus, policy PR on this should be discussed more in our soci- which respondents are free to answer. This type of ques-
ety. There tends to be more apprehension about hydrogen- tionnaire is beneficial as it can extract broad and specialized
related facilities, as hydrogen leakage accidents or hydrogen information by giving the respondent maximum freedom [55].
explosions can sometimes occur [26,41,42]. Thus, proper However, the method can be difficult to apply to respondents
hydrogen risk management by the government will play a with little interest in the questionnaire subject. Therefore, we
crucial role in promoting public acceptance of hydrogen fa- limited the possible respondents to hydrogen safety policy
cilities and technology [43e45]. In this regard, policy PR can experts so that the open-ended questions could collect the
deliver prompt, open, properly controlled, and disciplined maximum amount of professional information. Then, we
hydrogen risk management and effectively communicate analyzed it through semantic network analysis based on the
with people to maintain their trust in the government [46,47]. core keywords in the sociogram, which are explained below.
Previous studies have outlined several criteria to evaluate
suitable risk management. First, responsiveness or prompt- Semantic network analysis
ness is important. Responsiveness highlights providing infor-
mation timeously. Here, the government should pay attention Semantic network analysis is a form of content analysis that
to providing prompt and accurate information to the public. analyses the network between the nodes as indicated in a text
The second criterion is openness. The government should to represent a discursive form as a map or sociogram [57].
communicate information honestly to relevant public groups While conventional text analyses, such as content analyses,
and stakeholders. In particular, it is important to give the depend on measuring frequencies to determine prominent
impression that information disclosure is open rather than concepts [58], semantic network analyses identify the struc-
being controlled. Third, a control tower is important. The ture of relations between concepts based on their co-
government should clarify its responsibility and authority by occurrence by applying techniques. Applying semantic
forming a control tower. Here, making the final responsibility network analysis, this study explores the most frequently
clearer helps build trust in the government. Lastly, guidelines mentioned concepts and the interrelations of terms by
for the risk manual should be outlined. The government should analyzing the hydrogen risk management policy experts’ re-
create scenarios according to various situations and train sponses. Compared to other qualitative expert research, se-
teams according to these. The risk manual requires continuous mantic network analyses enable an objective and semi-
correction through feedback. See Tables 1 and 2 below. quantitative approach to unveil text patterns and read “be-
tween the lines” [59]. Degree centrality is the value of the ab-
solute connection degree divided by the total number of nodes
Research design (g) in the network for standardization (g-1). The formula for
calculating degree centrality is as follows:
Sampling the expert P
j¼1 gij
Cðni Þ ¼ (1)
g1
This study design comprised three steps: 1) Selecting experts
through snowball sampling, 2) Emailing a survey, and 3) The normalized degree centrality was also applied in this
Applying semantic network analysis to the expert's answer. study to compare four categories of keywords; Responsive-
The sampling took one month, the email survey took one ness; Openness; Control tower; and Guideline. While degree
month, and the semantic network analysis took three days. centrality is an index meaning the frequency with which a
The research process took two months and three days, from keyword is connected with other keywords within a single
August 1, 2022, to October 4, 2022. The first step was sampling network, normalized degree centrality refers to a keyword in
the Hydrogen PR policy experts, and snowball sampling was other networks by standardizing the centrality of keywords.
applied for sorting. The first three experts were members of This converts the centrality of relations into a comparable
the “Hydrogen safety management policy committee” sup- style. The below formula indicates the normalized degree
ported by MOTIE. Each expert recommended one to five ex- centrality (nDc ðNi ÞÞ.
perts to the research team. These recommended experts also
Dc ðNi Þ
recommended another one to five experts. nDc ðNi Þ ¼ (2)
g1

Email survey The degree centrality of keyword ἱ (Dc ðNi )) is divided by the
total number of nodes (g) in the network for standardization
Survey research uses a questionnaire tool that requires re- (g-1).
spondents to describe their answers to a series of questions Lastly, CONCOR analysis has been applied for clustering
written by a researcher [55]. These questionnaires have been the keyword to identify the subgroup. CONCOR analysis is a
constructed to explore the researchers’ core research ques- representative structural equispatial measurement method
tions. This method is the most basic research method in that uses correlation values to derive patterns for
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relationships between actors. “Structural equivalence” refers result with the public. Also, the experts raised specific con-
to a case in which a node has no direct relationship with cerns based on the aftermath of the Gangneung TP accident
another node in a network but has the same relationship (hydrogen tank explosion accident), which occurred in 2019.
pattern. In this study, CONCOR analysis was performed using
Ucinet6's Net Draw program to derive clusters based on key- Openness (in communication)
words with similar characteristics. For openness in communication, “Cause,” “Press release,”
“News,” “Inadequate,” “Accident,” “Accredited institution,”
“Transparency,” “Open,” “Former government,” “Gangneung
Results TP,” “Hydrogen related information,” “Public,” “Data,” “Lack,”
“Details,” “Partial,” “Initial information,” “Need,” and “Follow-
Research question 1 up” appeared as important keywords in the openness socio-
gram. Half of the respondents evaluated the hydrogen PR
To answer the first research question, “Is South Korea's policies positively, but the other half evaluated it negatively.
hydrogen policy PR well structured? If not, what are the main Experts raised concerns about openness due to some inade-
rationales?“, the respondents were asked to evaluate quate explanations for the cause of accidents, absence of
hydrogen policy PR from four perspectives: responsiveness, accredited institutions, lack of transparency, former govern-
openness (in communication), control tower (in risk man- ment's insufficient response to the accident, lack of hydrogen
agement), and guidelines. In terms of responsiveness, 63.64% information opened to the public, lack of data and details of
of respondents positively evaluated South Korea's hydrogen accidents, lack of initial information given to the public, and
policy PR, whereas 36.36% negatively evaluated it. For open- lack of an open follow-up process.
ness, 51.52% of respondents positively evaluated South Only five unique keywordsd“Accredited institution,”
Korea's hydrogen policy PR, whereas 48.48% negatively eval- “Transparency,” “Former government,” “Initial information,”
uated it. Regarding the control tower, only 36.34% of re- and “Follow-up” were identified in the openness sociogram.
spondents positively evaluated South Korea's hydrogen policy From an openness perspective, accredited institutions are
PR, whereas 64.66% negatively evaluated it. In terms of needed at the outset to deliver exact hydrogen accident in-
guidelines, 45.45% of respondents positively evaluated South formation. Also, securing transparency is highly recom-
Korea's hydrogen policy PR, whereas 54.44% negatively eval- mended, which the former government (under president
uated it. Moon Jae-in) failed to secure. Lastly, immediately after the
Overall, the most urgent task for hydrogen PR policy is accident, the follow-up information for the accident should be
setting and growing the role of the control tower of hydrogen transparently delivered to the public. Experts seriously
PR. The second most important task is re-establishing the pointed out that only the occurrence of the incident was
guidelines for hydrogen-related accidents. Compared to these communicated, and details of how it was dealt with were not
two perspectives, the respondents positively evaluated South disclosed.
Korean PR policy in terms of responsiveness and openness.
However, negative responses for each criterion were not Control tower (in risk management)
negligible at 36.36% and 48.48%, respectively. This means that Regarding the control tower in risk management, “Ministry of
additional effort is needed to increase the integrated accep- Trade, Industry, and Energy (MOTIE),” “Responsibility,” “Korea
tance of hydrogen energy and improve hydrogen policy. Gas Safety Corporation,” “Accident,” “Design,” “GanneungTP,”
This study also required some rationales for the re- “Uncertain,” “National policy agency,” “Ministry of employ-
spondents' negative evaluations. To minimize the subjectivity ment and labor,” “Authority,” “National Fire agency,” “Safety
of the researchers' interpretations, this study applied se- manager,” “Government department,” “Local government,”
mantic network analysis to respondents’ answers to “ratio- “Ministry of Public Administration and Safety,” “Serious Ac-
nales of negative evaluation.” By identifying the core elements cident Punishment Act,” “Control Tower,” “Inadequate,” and
of keyword sociograms, this study derived a parsimonious “Role” appeared as core keywords in the sociogram. In this
task for better constructing the hydrogen PR policy regarding sociogram, most keywords indicated the names of certain
responsiveness, openness, control tower, and guidelines. institutions, such as MOTIE, Korea Gas Safety Corporation, or
National Policy Agency, which each appeared only once.
Responsiveness Because 60% of experts negatively evaluated the hydrogen
In terms of responsiveness, “Accident,” “Press release,” accidents in terms of the control tower, these keywords
“News,” “Gangneung TP,” “Partial,” “Inadequate,” “Govern- should be considered when designing future hydrogen PR di-
ment,” “Cause,” “Scale of damage,” “Result,” “Open,” “Public,” rections. Many respondents raised serious concerns that the
and “Frequency” emerged as core keywords in the sociogram. responsibility of certain entities is ambiguous in South Korean
Among those keywords, “Scale of damage” and “Frequency” society. Even among the experts, opinions did not bring
appeared only in the responsiveness sociogram, not in other consensus; the majority of experts indicated that MOTIE
sociograms. should be in charge of hydrogen accidents, but other experts
Although only 36% of experts negatively evaluated the indicated that control towers should include lower-level in-
responsiveness of hydrogen PR policies, some raised concerns stitutions (e.g., Korea Gas Safety Corporation, National Policy
such as inadequate explanations, only a partial government Agency, National Fire Agency), other ministries (e.g., Ministry
reaction, a lack of defining the cause of the accident, a lack of of Employment and Labor, Ministry of Public Administration
explaining the scale of damage, and a lack of sharing the and Safety), or the local government.
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Guidelines perceptions. Hydrogen policy PR should highlight safety,

Lastly, in terms of guidelines, “Hydrogen,” “Guideline,” ensuring the public's positive perceptions of hydrogen
“Crisis,” “Accident,” “Outside,” “Case,” “General,” “Limited,” technology.
“Public,” “Insufficient,” “Fuel cell electric vehicle (FCEV),” The fifth cluster outlines the amelioration of a response
“Response,” “Apply,” “Composition,” “Inadequate,” “Law,” system toward hydrogen-induced accidents. The sixth clus-
“Safety management,” and “PR” appeared as core keywords in ter indicates maintaining friendly relationships with the
the sociogram. More than half the experts (54%) evaluated general public. The seventh cluster signifies the skillful
“Guidelines” negatively. Therefore, these keywords should be management of hydrogen facilities and plants. Here, the
considered when drawing up better policies. Eight of the hydrogen PR should communicate its good management of
keywords were identified in this guideline sociogram; hydrogen plants and facilities so that the general public can
“Guideline,” “Crisis,” “Outside,” “Fuel cell electric vehicle trust hydrogen technology. Finally, the eighth cluster was
(FCEV),” “Law,” “Safety management,” and “PR.” In terms of identified as the diversification of communication channels.
guidelines, hydrogen-induced accidents should be considered The communication channel for the public sector has already
a crisis, and a more accurate manual is needed for managing been expanded, overcoming the conventional frontiers.
the whole process of a hydrogen accident. Since most Platforms like YouTube, Instagram, and other social networks
hydrogen accidents occurred outside, it is highly recom- can be good alternatives for interaction. Hydrogen policies
mended to reinforce the management of outside hydrogen should be delivered through these trendy communication
facilities through guidelines. channels so that more citizens can understand hydrogen risk
Further, the rapid growth of FCEV in South Korea is another management.
threat to hydrogen safety. Compared to hydrogen storage
tanks or hydrogen fuel cell power plants (SOFC type), FCEV is
considered less risky. However, the number of FCEVs in South Conclusions, policy implications, and limitations
Korea exceeded 19,404 as of February 2022 (Ministry of Land
and Transportation, 2022), ranking first in the world market, Hydrogen has been highlighted as a prominent energy source
followed by the US and Japan. Due to the possibility of damage in the era of the climate crisis. Although it has much potential
to the hydrogen tank in a vehicle accident, a fire could occur in and many advantages for carbon neutrality, its public accep-
a semi-enclosed space. However, the government did not offer tance in South Korea is low. Continuous hydrogen safety ac-
exact guidelines for this FCEV accident. As FCEVs are already cidents in South Korea have led to public distrust of the
commercialized products in the South Korean market, safety government regarding hydrogen technology. Ineffective or
management in terms of hydrogen should align with the insufficient hydrogen risk management policy PR was the
market growth. Here, future hydrogen PR should contain clear main reason. To develop a better hydrogen ecosystem, suc-
safety management instructions through the enactment or cessful policy PR is needed to ensure public trust in hydrogen
revision of related laws. technology and the government. Against this background, this
study evaluated South Korea's hydrogen risk management
Research question 2 policy PR through a qualitative survey by hydrogen policy
experts.
To answer the second question, “What needs to be Our results demonstrate that experts’ evaluations of South
improved for effective hydrogen policy PR?“, the experts Korean hydrogen PR policies were rather well structured
were asked to fill out an open-ended questionnaire. To regarding responsiveness but were negative regarding open-
derive common alternatives from the experts, CONCOR ness, guidelines, and the control tower. The experts raised the
analysis was applied. In total, eight clusters for developing gravest concerns over the control tower in these shortfalls.
the hydrogen policy PR were identified. The first cluster was Through open-ended questions, even the experts could not
the role of the public sector. This cluster clarifies the agree on who should be in charge of the control tower for the
importance of the role of the central government, local hydrogen risk management policy PR. Therefore, an urgent
government, and other public institutions in the hydrogen task is clarifying the control tower of hydrogen risk manage-
ecosystem. Future hydrogen policy PR should highlight the ment policy PR. Another urgent task is increasing the open-
government's role in investment, evaluation, and feedback. ness of communication and ameliorating the guidelines.
The second cluster was the cultivation of professional crisis Additionally, based on the CONCOR analysis, this study sug-
management PR personnel. The main lacuna in hydrogen gests practical policy recommendations for effective
policy PR is the lack of experts in this field. Those respon- hydrogen policy PR.
sible for delivering the hydrogen policy PR should have
sufficient knowledge of hydrogen technology, crisis man- 1. The public sector, especially the central government,
agement, disaster management, and public policy. The third should play an important role.
cluster was how fact-based communication is disseminated 2. Professional crisis management PR personnel should be
in the media. PR should act as a mediator in this regard, cultivated.
ultimately enhancing the public's trust in hydrogen tech- 3. Trust in hydrogen technology should be cultivated through
nology. The fourth cluster indicates the development of the communication.
safety perception of hydrogen technology among the gen- 4. The safety perception of the general public is important
eral public, where the key role of PR is to change citizens' and should be developed.
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