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This paper critically reviews whether the hierarchical system or intercrisis learning can be sufficient to understand Korea's COVID-19 responses. Our case study suggests that a Korean response system is a hybrid form that uses a hierarchical structure together with a network approach. To unveil theoretical models of how learning may occur and evolve during a crisis, we employ a policy learning model combining the network perspective and the four Cs model (cognition, communication, coordination, and control). We analyse the change in government manuals, response policies, and agenda streams observed in government documents. This analysis reveals far more complex interactions among actors and policies, both flexible and rigid at different phases of COVID-19. On top of policy learning, we conclude that it is necessary to rediscover the power of citizen voluntary responses and collaboration among actors of the response network through value change.

Intercrisis learning in disaster response network: experience of Korea from MERS and COVID-19