A MULTI-LEVEL COLLABORATIVE GOVERNANCE MODEL FOR TOURISM ECOSYSTEM MANAGEMENT: EVIDENCE FROM A SPECIAL ECONOMIC ZONE IN INDONESIA

Abstract

Tourism ecosystem management increasingly faces governance challenges arising from institutional fragmentation, ecological vulnerability, and multi-actor complexity, particularly in developing country contexts. This study examines how multi-level collaborative governance operates in managing and restoring the tourism ecosystem of Tanjung Lesung, a tourism-based Special Economic Zone in Indonesia. The research aims to develop a conceptual model that explains how collaboration across policy, organisational, and operational levels shapes ecosystem restoration outcomes. Using a qualitative approach grounded in Soft Systems Methodology (SSM), the study draws on in-depth interviews, document analysis, and participatory observation involving government agencies, private sector actors, community groups, and academic institutions. The findings reveal that collaborative governance in Tanjung Lesung functions as an interconnected b ut uneven system. While collaboration exists at each governance level, weak vertical coordination, overlapping authority, and limited institutional learning constrain integration across levels. Community participation and knowledge co -production emerge as critical strengths at the operational level, yet their influence on higher-level decision-making remains limited. This study proposes a multi-level collaborative governance model that integrates policy direction, organisational coordination, and operational practice through communication, trust, coordination, and learning. The model contributes to collaborative governance theory by demonstrating that governance effectiveness depends on cross-level interaction rather than isolated partnerships. Practically, the findings offer insights for strengthening ecosystem-based tourism governance in special economic zones and similar multi-actor settings.