Abstract
How people make initial and collective sense under crises remains unanswered. This paper addresses this question using the control of COVID-19 in Vietnam as a case study. Our results suggest that sensemaking under crises is influenced by an institutional propensity for prevention that has developed gradually over time. Local governments play a vital role in fostering collective sensemaking which enables concerted actions in epidemic control. However, biases are inherent in sensemaking, including a delay in access to vaccine and a violation of privacy. For policy makers, this study suggests that developing specific prevention policies and programs, building large-scale coordination capacity, and promoting local initiatives are necessary for coping with epidemics. For theory development, the study explores how institutions condition sensemaking and specifies several mechanisms in which local authorities could facilitate collective sensemaking in crises.