Rethinking collaborative governance through digital integration: Evidence from cultural public services in Indonesia

Abstract

Collaborative governance has become increasingly important in the management of cultural public services, particularly in contexts characterized by institutional complexity and multiple stakeholder involvement. However, existing collaborative governance frameworks have paid limited attention to the role of digital infrastructure in shaping collaboration processes, especially in developing-country contexts. This study addresses this gap by examining how institutional conditions, stakeholder relationships, and digital integration influence collaborative governance practices in cultural public services. This study aims to analyze the dynamics of collaborative governance at the North Sumatra Cultural Park (Taman Budaya Sumatera Utara—TBSU), Indonesia, and to develop a contextualized governance model that integrates digital transformation as a core enabling dimension of collaboration. This research employed a qualitative case study approach. Data were collected through in-depth interviews, non-participant observations, and document analysis. The study involved 13 informants representing key Pentahelix actors, including government officials, academics, cultural communities, media representatives, and creative industry actors. Data were analyzed using thematic analysis, with validation conducted through source triangulation and comparison between interview, observation, and documentary evidence. The findings demonstrate that collaborative governance at TBSU remains constrained by fragmented institutional coordination, unclear authority distribution, hierarchical decision-making practices, limited organizational capacity, and insufficient digital infrastructure. Stakeholder participation is still largely informal, event-based, and concentrated at the implementation stage rather than in planning and decision-making processes. Furthermore, existing digital practices remain limited to one-way information dissemination and have not yet developed into interactive governance infrastructures that support participation, coordination, and knowledge sharing. This study proposes a cyclical collaborative governance model that positions digital integration as a foundational governance infrastructure connecting institutional design, facilitative leadership, collaborative processes, and shared outcomes. Theoretically, this research extends collaborative governance literature by reconceptualizing collaboration as a socio-digital and adaptive system. Practically, the findings provide strategic insights for cultural institutions seeking to strengthen inclusive, transparent, and sustainable public service governance in developing-country contexts.