Introduction
In examining the reasons for the failure of development programs in different countries in the world, the neglect of development governance has been emphasized. Considering that the implementation of development policies is challenging for activists, there is a need for innovative governance models of the public and private sectors to go beyond traditional thinking. In examining the new governance paradigms, network governance, as one of the emerging models with the premise of the complexity of issues and the inability of institutions to solve issues independently, emphasizes the cooperation and participation of key stakeholders in the decision-making process, including government and non-government actors and society. In this form of governance, government agencies directly engage non-government actors in decision-making by consultation and negotiation and take collective action. This governance model reflects the participation of the non-governmental sector, government sector, and society in a decentralized structure. Network governance describes the improvement in the ability to solve sustainable problems in social systems by empowering the capabilities of various stakeholders, and strengthens the response to the problems of social and environmental systems by supporting participatory and collective actions.
Tehran city’s fourth development plan has been compiled based on the opinions of experts in Tehran municipality and by paying attention to the shortcomings of the previous plans and the need to be problem-oriented and avoid inefficient expansion. This plan has determined five key domains: transportation/traffic, environment/air pollution, urban safety/worn-out fabric, cultural/social issues, and intelligentization/management improvement. In examining the current situation in the field of safety and disaster management in Tehran, in addition to the existence of worn-out urban fabrics, more than 33,000 high-risk buildings in terms of fire hazards, unsafe buildings of shopping, medical, educational, industrial, and warehouse centers, more than 100 high-risk unsafe pits, accident-prone passages, lack of standard fire-fighting machines, failure to complete the dredging of roads, river valleys, and city canals, and lack of attention to the city’s safety measures against floods, earthquakes and land subsidence have been reported.
Considering the emphasis on participatory governance in the fourth development plan of Tehran city, this study aims to analyze the network governance of safety and disaster management in Tehran by examining the laws of the fourth development plan and with emphasis on the participation of key actors, including government institutions, private sector, public institutions, and local communities using social network analysis.

Methods
In this study, 22 laws with 101 issues were identified, and 47 involved organizations, including 26 internal institutions of Tehran Municipality and 21 external institutions involved in the safety and disaster management program in the areas of transportation/traffic, urban safety/worn-out fabric, cultural/social issues, and intelligentization/management improvement were evaluated. The organizations and institutions were considered as the rows and columns of the governance network matrix, and the number of times of cooperation between organizations and institutions was considered as the entries of cells of the matrix. The matrix of actors’ cooperation network was analyzed based on the degree centrality, betweenness centrality, geodesic distance, density and cohesion.

Results
The results of the analysis of the degree centrality index for the safety and disaster management actors’ cooperation network showed that among the internal organizations of Tehran Municipality, the Crisis Prevention and Management Organization, the Deputy of Urban and Environmental Services, and the Information and Communication Technology Organization had the highest scores, followed by the Fire Department and the municipalities of 22 districts of Tehran. The internal organizations with the lowest degree centrality were the General Department of Citizenship Education, University of Applied Sciences and Technology, Neighborhood Management Headquarters, Deputy of Finance and Urban Economics, and the Renovation and Administrative Transformation Center.
Regarding the betweenness centrality index, the Crisis Prevention and Management Organization, the Information and Communication Technology Organization, the Deputy of Urban and Environmental Services, the Deputy of Urban Planning and Architecture, and the municipalities of 22 districts of Tehran had the highest scores, while the Urban Research and Planning Center, the General Department of Citizenship Education, University of Applied Sciences and Technology, and the Neighborhood Management Headquarters had the lowest scores.
In general, the results of the analysis of the governance system of Tehran city showed the planners’ belief in participatory governance for solving the safety and disaster management issues of the city. However, the participation of citizens, local communities, non-governmental organizations, and the private sector requires improvement and expansion of legal cooperation such that the lack of transparency in determining the roles, responsibilities and powers of institutional actors outside Tehran Municipality, such as executive, legislative and supervisory institutions, and absence of policies for facilitating and encouraging the participation of private sector, economic institutions, universities, scientific and research centers, local communities and citizens need to be addressed by legislators and planners. They should support the network governance in solving disaster management issues in Tehran.

Conclusion
The recommendations for improving the governance system of disaster management in Tehran for balancing the distribution of legal power among the responsible institutions and actors of Tehran’s safety and disaster management program include: Strengthening the cooperation of municipal and inter-institutional actors to solve key issues of safety and disaster management; strengthening the communication network and continuously exploiting the capacity of academic elites and consultants; strengthening the mechanisms for the participation of citizens, non-governmental organizations and the private sector; rising awareness and strengthening citizens’ trust in safety and disaster management programs using social media, developing incentive policies to utilize the capacity and participation of knowledge-based organizations and new and creative firms in solving safety and disaster management issues; developing incentive policies for the participation of managers and employees; strengthening the legal communication of financial and economic institutions and financing projects; and transparency and accountability of responsible institutions.

Ethical Considerations

Compliance with ethical guidelines
All ethical principles were observed in this study .

Funding
This research received no specific grant from any funding agency in the public, commercial, or not-for-profit sectors

Authors' contributions
All authors equally contributed to preparing this article.

Conflicts of interest
The authors declare no conflict of interest.

Acknowledgments
The authors would like to thank Tehran Disaster Mitigation and Management Organization (TDMMO), Dr. Amir Shahrabi Farahani (Head of the Plan and Budget Organization of Tehran Municipality), and Mr. Soheil Kosari (Deputy Technical and Executive Manager of the Plan and Budget Organization of Tehran Municipality) for their cooperation.



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