Indonesia Government's Responses to COVID-19: A Critical Review to Pre-Crisis and Crisis Phase
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Jurnal Interaksi: Jurnal Ilmu Komunikasi
Vol. 5. No. 2, Juli 2021, hlm 117 - 132
Doi: 10.30596/interaksi.v5i2.6665
Article Submitted: 30 Maret 2021, Revised: 01 Juni 2021, Accepted: 10 Juni 2021
Indonesia Government’s Responses to COVID-19:
A Critical Review to Pre-Crisis and Crisis Phase
Setyoningsih Subroto1*, A A Istri Putri Dwijayanti2, Reza Yohanes3
Strategic Corporate Communication, LSPR Communication and Business Institute,
Jakarta, Indonesia
*
Corresponding author, e-mail: naningbroto5@gmail.com
ABSTRACT
The COVID-19 pandemic in Indonesia divides society's opinion into 2 sides. The opinion was mostly
affected by the government’s responses during the pre-crisis and crisis phase. Therefore, this study
aims to review the government’s crisis responses that already appeared. A qualitative method was
used to determine the issue. The data are taken from COVID-19 official websites and online news
portals portrayed from February until April 2020. From the data resource, the author then found that
some mistakes appeared both in the pre-crisis and crisis phase. The mistakes consist of; (1) lack of
emergency responses to crucial information, (2) inappropriate key messages, (3) inconsistent
statements from the government, (4) the changing of spokes person Further more, the author provides
several recommendations to the Indonesian government for the proper response during the pre-crisis
and crisis-phase for the other issue in the future. The recommendations are; (1) being consistent in
every information that delivers to society, (2) avoid controversial statements, (3) form a
communication task force team to develop and convey the message.
Keywords: crisis communication, Indonesia, COVID-19
ABSTRAK
Pandemi COVID-19 di Indonesia telah membagi opini masyarakat menjadi 2 sisi. Opini tersebut
secara umum dipengaruhi oleh respon pemerintah selama fase pra-krisis dan krisis. Oleh karena itu,
penelitian ini bertujuan untuk meninjau respon pemerintah yang telah disampaikan kepada masyarakat
dan muncul di media. Peneliti menggunakan metode kualitatif untuk menjabarkan masalah penelitian.
Data diperoleh dari laman resmi COVID-19 dan portal berita digital selama bulan Februari-April
2020. Berdasarkan sumber data, peneliti menemukan beberapa kesalahan di fase pra-krisis maupun
krisis. Kesalahan tersebut terdiri dari; (1) keterlambatan respon terhadap informasi krusial, (2) pesan
utama yang kurang tepat sejak awal mula, (3) inkonsistensi pernyataan dari pemerintah, (4) juru bicara
yang selalu berganti. Untuk memperbaiki kesalahan-kesalahan tersebut, peneliti memberikan beberapa
rekomendasi untuk pemerintah Indonesia agar menyampaikan respon yang lebih tepat pada fase pra-
krisis dan krisis di kemudian hari. Rekomendasi tersebut terdiri dari; (1) selalu konsisten dalam
menyampaikan setiap informasi kepada masyarakat, (2) menghindari pernyataan-pernyataan
kontroversial, (3) membentuk tim komunikasi khusus untuk merancang pesan yang akan disampaikan
kepada masyarakat.
Kata kunci: komunikasi krisis, Indonesia, COVID-19
Introduction the battle with the COVID-19 pandemic.
2020 could be the most challenging Starting in December 2019, from Wuhan,
year in world history yet it is the year of China, the pandemic then spread all over
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Setyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….118
the world, including Indonesia. In 2020, Therefore, COVID-19 could be one of the
there are 743.198 positive cases and most serious crises ever faced by
22.138 death cases (Mashabi, 2020). The Indonesian peoples.
number still can raise day by day.
Table 1. The chronology from December 2019-April 2020
Month Detail Government’s Strategy Result
December A lot of people got
2019 infected by a
Observing the condition
mysterious virus in
Wuhan, China
China reported the
infection cases to
Preparing hospitals also
WHO
January installing a body temperature Less awareness from
A similar virus was
2020 detector in all international the society
found in few
airports and ports
countries close to
China
Stimulated the tourism
The virus started to
February sector
spread all over the
2020
world Evacuated the Indonesians
from Wuhan, China
Applying social distancing
The first case appeared
March 2020 regulation
in Indonesia
Rapid test Society was
Positive cases divided into pros
increase rapidly in and cons (during
Indonesia Applying large-scale social the pandemic)
April 2020
The first death case restrictions regulation Panic buying
happened in
Indonesia
Source: www.kompaspedia.kompas.id, www.kompas.com, and www.tirto.id
Regarding its complexity, the pandemic already reaching its maximum capacity
hits a few aspects of the daily life of (Melda, 2020). Unfortunately, the medical
society. On the health side, a lot of peoples practitioners (doctors and nurses) are also
from several backgrounds were affected by infected by the virus and became the
the virus and failed to suffer. The new victims (Supriatin, 2020). The situation
positive and death cases appear almost then getting worse because the referral
every day in every region. Even Pondok hospitals for COVID-19 are running out of
Ranggon cemetery, the “special area” for beds in a few regions, such as in Bandar
the COVID-19 victims in Jakarta, is Lampung (Yasland, 2020).
E-ISSN: 2580-6955 Publisher: UMSU Press119 Jurnal Interaksi : Jurnal Ilmu Komunikasi | Volume: 5 | Nomor: 2 | Edisi Juli 2021 | hlm 117 - 132. The economic side also got large Regarding the serious conditions, an damage. A lot of industries are affected effective crisis management plan is highly and caused many peoples to lose their job. required, especially in the area of The most affected industries are tourism, communication. Just like New Zealand that hospitality, and airlines. Those industries got appreciated by its proper crisis are most affected by the government’s communication strategy. Prime Minister policy about “large-scale social Jacinda Ardern successfully approached restrictions” (PSBB – Pembatasan Sosial her society with clear communication Berskala Besar). Not only in Indonesia but through “powerful media engagement” also in other countries applied a similar (McGuire, Cunningham, Reynolds, and policy that strictly restricts peoples to go Matthews-Smith, 2020). As the result, outside. The policy itself is applied to society put high awareness of the prevent the spread of the virus. The worst pandemic and properly managed by the condition is mentioned by the Minister of government. To support the development Finance of the Republic of Indonesia, Sri of proper crisis communication, this study Mulyani, that Indonesia is officially aims to review the Indonesian entered the economic recession in government’s responses during the November 2020 by minus 3.49% (Fauzia, COVID-19 pandemic, especially in the 2020). pre-crisis and crisis phase. This study also The other side that also got damaged is provides several recommendations to the society’s opinion, which is mostly affected Indonesian government for the proper by the government’s responses during the response during the pre-crisis and crisis- pandemic. There are 2 opinions side, the phase for the other issue in the future. The “pros and cons” or the “aware and proper response will be beneficial to lessen unaware”. Those who believe in COVID- the damage caused by the issue also save 19 followed the government’s policy the government’s reputation. (wearing the mask, washing hands, social In principle, communication is all about distancing, and report any kind of COVID- delivering messages or information from 19 indication). While for those who do not one to the others, both directly or indirectly believe, they living a life like nothing through a certain channel. Therefore, serious happen. during a crisis, communication plays a E-ISSN: 2580-6955 Publisher: UMSU Press
Setyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….120
significant role. All of the related parties possibilities that may hit the
will have needs to stay informed regarding organization. Each of them is then
the latest condition. As found in previous completed by the actions needed to
studies, there are a few researchers focused handle it. As the result, there will be a
on the area of crisis communication. set of plans already available as
Coombs and Holladay (2011) mentioned guidance.
that “the critical component in crisis b. Respond Immediately
management is communication”. The The communication team (through
statement is matched with the main the chosen spokesperson) could respond
priority, which is saving reputational assets based on the plan that has already been
(Coombs, 2009). Reputation can not be made before. It is necessary to avoid
built in a short time and takes much effort, spontaneous or unwanted responses. All
so it should be managed properly. of the prepared responses should be
Bernstein (2013) even mentioned that “the trained first before the implementation.
slower the response, the more damaged is c. Do Not Overtalk
incurred”. While Watson (2007) noted that Even though the immediate response
“the lack of communication preparedness is highly needed during a crisis, it does
is severally or terminally affect the not mean that the spokesperson could
organizations”. say anything. Overtalking will only give
Communicating properly should be both the stakeholders and the public the
started in the pre-crisis phase. Before the “overload” information and possibly
issue arises, it is better if the organization covering the truth. The spokesperson
already has preparation. As mentioned should be wise and proper in answering
before, early preparation is necessary to the questions or delivering information.
lessen the damage and save the d. Always Tell the Truth
organization’s reputation. Henry (2008) The organization should ensure that
presented the 10 steps as the crisis there is no inconsistency and wrong
response as listed below: information. Therefore, the
a. Anticipate and Have A Plan communication team should prepare
The crisis team should start it from a clear guidance for the spokesperson to
plan then followed by several issues deliver the correct information. If
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somehow the spokesperson delivers the h. Show Compassion and Remorse
wrong information, the public Showing compassion and remorse is
(especially the media) will tend to seek not a weakness. It is rather a brave
another resource that may unreliable. action and shows that the organization
e. Accept Responsibility cares about the tragedy that happened. It
The organization is expected to not is necessary to remember that every
covering the truth behind a “stonewall”. kind of company’s movement during a
It will be wiser if the organization crisis is under the public’s attention.
admits, accept, and take responsibility Therefore, the organization should show
as the one who is behind the crisis. The the wisest action that they could do.
act of ignoring or refusing will only let i. Build Your Reputation Before A Crisis
the public looking from other resources, A good reputation will go along the
which may unreliable and not good business operation and vice versa.
portraying the facts. A well-known reputation before a crisis
f. Select the Right Spokesperson could be used as a protection for the
“Have one individual designated as organization from any kind of negative
theprimary spokesperson and another as issues or statements. So the
the backup” (Henry, 2008). The selected organization still possibly gets the
spokesperson should be capable of public’s trust in the crisis and post-crisis
delivering information and facing the phase.
media. This position needs a person j. Listen
who has good communication skills. It is necessary to remember that the
g. Stop Rumors and Correct spokesperson needs to “listen first, then
Misinformation speak”. The spokesperson should note
There will always be a possibility that listen is a means to understand, not
that the rumors are more than one. to prepare the answer. Moreover,
Therefore, the communication team listening carefully will help the
should pay high attention and monitor spokesperson to get a deep
the daily news. Each of the rumors understanding whenever facing
should have its correction, do not let it questions from the journalists. Besides,
miss even just one.
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this kind of skill will also support consists of COVID-19 official websites
keeping the company’s reputation. and online news portals which are
Similar steps were also presented by portrayed from February until April 2020.
Bernstein (2013) with the addition to The author analyzes the responses that
“establish notification and monitoring have already been delivered to society. The
system”. It means that the communication responses were coming from the
team should establish a certain channel to representatives of the government such as
deliver any information relates to the issue. the ministers and the official task force for
This could be an official website, social COVID-19. The author then matches the
media, or even a YouTube channel. It is responses with the theory from the
necessary to remember that in this digital previous studies to find the gap. The
era, society tends to seek any information Indonesian COVID-19 Task Force is
from the internet. So it is better to utilize it chosen because it is the official team under
as one of the channels, besides the the government to handle the crisis. CNN
traditional way. Indonesia, Kompas, and Detik are chosen
yet those always appear as the top three in
Research Method the search engine (Google). While TirtoID
To reach the objective of this study, the is chosen because it is one of the popular
author uses a Qualitative Content Analysis online-based news portals.
(QualCA) method. The data resource
Table 2. Data resource
No. Institution Website Total News
1. Indonesian COVID-19 Task Force www.covid19.go.id
2
(Satuan Tugas COVID-19)
2. CNN Indonesia www.cnnindonesia.com 1
3. Kompas www.kompas.com 3
4. Detik www.detik.com 4
5. TirtoID www.tirto.id 1
Research Findings was still no positive case in Indonesia, so
1. Pre-Crisis Phase the author mentions it as the pre-crisis
Even the COVID-19 pandemic was phase. The list of news content that was
already starting at the end of 2019, but it portrayed in February 2020 is shown in
mostly highlighted in Indonesian news Table 2.
since February 2020. In February there
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Table 3.Controversial and blunder statements in the pre-crisis phase
No Statement Spokesperson Source Type
Terawan Agus
Putranto (Minister
Indonesia is still
1. of Health of the www.detik.com Blunder
immune to COVID-19
Republic of
Indonesia)
Terawan Agus
Praying is one of the
Putranto (Minister
tools to prevent
2. of Health of the www.detik.com Controversial
Indonesia from
Republic of
COVID-19
Indonesia)
The discount plan for
tourist to keep the
3. sustainability of the President Jokowi www.detik.com Controversial
tourism industry
during the pandemic
The virus that infected Achmad Yurianto
the Japanese tourist (Spokesman of
4. after visiting Indonesian www.kompas.com Controversial
Indonesia is not COVID-19 Task
COVID-19 Force)
Saudia Arabia’s Retno L Marsudi
decision to restrict (Minister of
5. Indonesia from the Foreign Affairs of www.cnnindonesia.com Controversial
religious trip is the Republic of
improper Indonesia)
Airlangga
Hartarto
(Coordinating
The government Minister for
prepared a special Economic
6. fund for influencers to Affairs) www.tirto.id Controversial
support the tourism Wishnutama
industry (Minister of
Tourism and
Creative
Economy)
From Table 3, it is seen that there was government wants to ensure society to
no proper response to the pre-crisis phase. have no worries regarding the pandemic.
The government tended to deliver that The government did that as prevention
Indonesia will be saved from the from chaos situation. But the way they
pandemic. In principle, it is seen that the
E-ISSN: 2580-6955 Publisher: UMSU PressSetyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….124 deliver it is quite improper. The detailed c. In principle, keeping the sustainability explanation of Table 3 are listed below: of economic condition is necessary to a. The responses are listed in Table 3 be concerned. But the statement given showing that the government is not by President Jokowi considers as serious in preparing for the pandemic. belittling the pandemic yet the other The government preferred to show that leaders in many countries are already the situation is under control, rather building prevention and preparing than raising society’s awareness. Such critical steps to face the pandemic. This as the statement from the Minister of statement was getting worse by the Foreign Affairs, could be considered as following information given by the not respected the decision from Saudia Coordinating Minister for Economic Arabia’s government. What Saudia Affairs also Minister of Tourism and Arabia’s government did is part of Creative Economy regarding the special protecting its society from the fund for influencers. It shows that the pandemic, but the Minister of Foreign government did not consider paying Affairs tended to be more concerned attention to the crucial concern. The about the Indonesian religion trip government prefers to spend funds on (umrah) there. keeping the sustainability of the tourism b. The statement “Indonesia is immune to industry rather than preventing and COVID-19” followed by “praying is preparing for the pandemic. one of the tools to prevent Indonesia d. From Table 3, it is seen that the from COVID-19”is kind of a not wise spokesperson is always changing in response. At the same time, the other almost every news. It shows that the countries already starting to raising government did not have a special society’s awareness and preparing a communication team assigned to face critical plan regarding the pandemic. the media. It made the government not Especially the term “praying” that using appeared in “one voice” and the as one of the tools to face the pandemic statement may differ from one to consider as an improper response from another. the Minister of Health, yet he is the Besides the explanation above, the other representative of the government. mistake in this phase is the unavailability E-ISSN: 2580-6955 Publisher: UMSU Press
125 Jurnal Interaksi : Jurnal Ilmu Komunikasi | Volume: 5 | Nomor: 2 | Edisi Juli 2021 | hlm 117 - 132.
of the specified information center. From was launched on April 29 th, 2020. Those
the website of the Indonesian COVID-19 pieces of information appeared when
Task Force (SatuanTugas COVID-19), it is Indonesia already entering the crisis phase,
seen that the health protocol information which is already late and has no impact to
mostly appeared on March 31st, 2020. build early awareness.
While the integrated information system
Figure 1. The health protocol information
Source: www.covid19.go.id
Figure 2. Integrated information system
Source: www.covid19.go.id
E-ISSN: 2580-6955 Publisher: UMSU PressSetyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….126
2. Crisis Phase previous statement that Indonesia is
The crisis phase starting on March 2 nd, “immune to COVID-19”. The other
2020 when President Jokowi announced blunder and controversial statements are
the 2 positive cases in Indonesia (Sagita, shown in Table 4.
2020). This announcement then broke the
Table 4. Controversial and blunder statements in the crisis phase
No Statements Spokesperson Type
Terawan Agus Putranto
Society doesn’t need to put serious
1. (Minister of Health of the Controversial
attention to the two positive cases
Republic of Indonesia)
Terawan Agus Putranto
Those who infected by the virus (Minister of Health of the
2. could be “heal on their own” and Republic of Indonesia) Blunder
the fatality rate is low Tito Karnavian (Minister of
Home Affairs)
Clarification that the death case in
Achmad Yurianto (Spokesman
Cianjur is caused by COVID-19
3. of Indonesian COVID-19 Task Blunder
(previously not confirmed as the
Force)
positive case)
Mudik is different from going to
4. President Jokowi Controversial
hometown
Society should peacefully accept
5. President Jokowi Controversial
the virus for the next few months
Mahfud MD (Coordinating
6. The corona virus is like a wife Minister for Political, Legal Controversial
and Security Affairs)
The rich protect the poor so that
Achmad Yurianto (Spokesman
they can live naturally and the poor
7. of Indonesian COVID-19 Task Controversial
protect the rich from spreading
Force)
their disease
Clarification of civil emergency to
8. President Jokowi Controversial
the health emergency
The wild horse milk could be used Ma’ruf Amin (Vice President
9. Controversial
as prevention to the virus of the Republic of Indonesia)
Fadjroel Rahman (spokesman
The revision of the restriction to of the President)
going to hometown on Eid Al-Fitr Luhut B Pandjaitan
10. Blunder
2020 (previously there was no (Coordinating Minister for
restriction for going to hometown) Maritime and Investment
Affairs)
Source: www.kompas.com and www.detik.com
E-ISSN: 2580-6955 Publisher: UMSU Press127 Jurnal Interaksi : Jurnal Ilmu Komunikasi | Volume: 5 | Nomor: 2 | Edisi Juli 2021 | hlm 117 - 132. From Table 4, the statements are showing crisis phase. Previously, the Minister of the tone of belittling and inconsistency as Health and Minister of Home Affairs explained below: mentioned that those who are infected by a. Belittling - Seems like not enough the virus can heal on their own and the showing in the pre-crisis phase, the tone fatality rate is low. The statement then of belittling appears during the crisis broke by the fact that it takes certain phase. It shows that the government did medical treatment for the patients and the not put serious attention to the fatality rate is high. As mentioned in the pandemic. The statements are varied background, the positive cases still can from jokes to controversial which raise day by day. The other blunder was consider as not properly given by the delivered by the spokesman of Indonesian government’s representative. The term COVID-19 regarding the death case in “drinking white horse milk” sounds like Cianjur. Previously it was not confirmed as belittling the scientist's effort to find the caused by the virus then clarified into cure for the pandemic. While the joke of confirmation as the positive case. It “corona is like a wife” consider as an considers as the government did not have inappropriate statement. The belittling the willingness to show transparency of the tone also considers as not wise data. information yet there are many peoples are failed to suffer from the pandemic Discussion and the other countries are hardly According to the crisis response steps struggling to face the pandemic. presented by Henry (2008) and Bernstein b. Inconsistency – The inconsistency (2013), the government’s statements are shown from a few clarifications not suitable during the pandemic situation. delivered by the government’s The contradictions are listed below: representative. It considers as improper a. No anticipation – The statements shows action taken by the government, not that the government did not take the wise in creating policy, and only pandemic seriously. The terms of confused society. “immunity, praying, and tourism Besides the two points above, the author stimulation fund” are considered as not highlighted the blunders that appear in the part of the anticipation plan. As E-ISSN: 2580-6955 Publisher: UMSU Press
Setyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….128 explained by Henry (2008), there example, the COVID-19 pandemic. But should be a plan first then will be the clarification of the Cianjur case and followed by the needed response. The Japanese tourists is showing that the statements that already appeared were government has no intention to deliver showing that the government has no the right information. While Indonesian specified anticipation plan to face the society put its hope to the government pandemic and lead to inappropriate for the latest information. As explained responses. by Henry (2008), covering the truth will b. False immediate response – Actually, only lead society to seek information the Minister of Health always gave the from other sources that may unreliable. immediate response during the e. The late appearance of a spokesperson – pandemic. But unfortunately, some of During the crisis, a credible his responses were inappropriate for the spokesperson is needed to keep the pandemic situation. The statement of quality of the information delivered to “no need to put serious attention” was society. As explained by Henry (2008), not correct and made the society was one individual needs to be assigned as not built its awareness of the pandemic. the primary spokesperson and followed c. Overtalk – Henry (2008) noted that by the others as the backup. But the during a crisis, the related team, government was late when appearing especially the spokesperson, should the spokes person. Achmad Yurianto avoid overtalking when giving the was appointed as the spokesperson in response. The contradiction was shown March 2020, when the pandemic by the Coordinating Minister for already entered the country (Maharani, Political, Legal, and Security Affairs. 2020). Before his appointment, few The statements of “wife” considered out ministers appeared in front of the media of context and inappropriate when as the government’s representative. This facing a pandemic. The statement only concern then causesin appropriate shows that the government did not take responses given by the government. A the pandemic seriously. credible spokesperson is needed to keep d. Hiding the truth – Transparency is clear and understandable information highly needed during a crisis, for E-ISSN: 2580-6955 Publisher: UMSU Press
129 Jurnal Interaksi : Jurnal Ilmu Komunikasi | Volume: 5 | Nomor: 2 | Edisi Juli 2021 | hlm 117 - 132. that will be informed consistently to the with the national telecommunication public. provider was not built since the pre- f. Lack of sympathy and empathy – The crisis phase. The broadcast message statements were given by the Minister contains the prevention steps sent in of Foreign Affairs, Minister of Health, April 2020, where the pandemic has and Minister of Home Affairs is lacking already hit for a month. sympathy and empathy to those who strugglefor the pandemic. Starting from Conclusion refusing the other country’s policy This study concluded that there are 4 regarding entrance restriction until noted mistakes regarding the government’s belittling those who were affected by response during the pre-crisis and crisis the virus. phases of the COVID-19 pandemic. The g. Appearing misinformation – Henry mistakes are; (1) lack of emergency (2008) explained that the crisis team responses to crucial information, (2) should correct every misinformation inappropriate key messages carried out that is portrayed. But the opposite was ever since the first time, (3) inconsistent shown by the government. The statements from the government, (4) the statement given by the Vice President changing of spokesperson that causes regarding the medicine (Mawardi, inconsistent information and teamwork 2020) was not based on scientific among the ministries also regional leaders, research. and at the end of the day that confuses the h. Not building a reputation – From the public eye. Those mistakes then made the pre-crisis phase, it is seen that the society were not fully aware of the government lacking the effort to pandemic. The lack of effective safeguard reputation during the communication strategy also caused the pandemic. Henry (2008) mentioned that massive hoax and fake news a good reputation will help in keeping uncontrollable through many channels. society’s trust during a crisis. During the crisis, transparency, i. No early notification system –The consistency, and leadership are highly government was late in building the recommended. Therefore, this study notification system. The collaboration recommends several proper steps to the E-ISSN: 2580-6955 Publisher: UMSU Press
Setyoningsih S, dkk I Indonesia Government’s Responses to Covid-19….130
government. Firstly, being consistent in from
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