From Fragmentation to Integration? Collaborative Governance Dynamics in Jakarta’s Metropolitan Flood Mitigation

Abstract

This paper looks into the extent to which the governance of flood mitigation in Jakarta is changing from fragmented coordination towards a more holistic collaborative mode of governance. The study, guided by collaborative governance perspectives, investigates the process of cross-sectoral and multi-level collaboration in the Jakarta metropolitan region (Jabodetabek-Punjur). A post-positivist approach with qualitative method was employed, using face-to-face interviews with 16 informants from government agencies, NGOs and experts, as well as members of affected communities. The findings indicate that although recurring flood events have fostered shared motivation and initiated cross-sectoral engagement, collaboration remains structurally fragmented. This fragmentation is evident in weak intergovernmental trust, sectoral self-interest, inconsistent resource allocation, and misaligned institutional capacities, particularly regarding land acquisition and cross-regional coordination. While intermediate outcomes such as flood control infrastructure, early warning systems, and joint action plans demonstrate progress, these initiatives are not yet supported by a fully integrated governance framework. Jakarta’s flood mitigation efforts constitute an evolving yet incomplete transition toward collaborative integration. Enhancing facilitative leadership, institutional alignment, and sustained metropolitan-scale coordination is necessary to address fragmentation and improve the effectiveness of long-term flood governance. This study also contributes to collaborative governance literature by demonstrating that collaborative governance in decentralized metropolitan settings develops unevenly across analytical dimensions, with relational collaboration advancing fasters than institutional integration.