International Journal of Human Capital in Urban Management
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Asymmetric collaborative governance in Indonesia’s new capital: A quasi–public–private partnership approach to regional financial institution engagement


Articles in Press, Accepted Manuscript
Available Online from 28 November 2025
International Journal of Human Capital in Urban Management

Document Type : ORIGINAL RESEARCH ARTICLE

Authors

E. Maradona
B. Ngarawula
T. Hariyanto

Department of Social Science, Faculty of Social and Political Sciences, University of Merdeka Malang, Malang, Indonesia

Abstract
BACKGROUND AND OBJECTIVES: This study examined the implementation of the BPD Kaltimtara headquarters project in Indonesia’s New Capital City (Ibu Kota Nusantara/IKN) as a pioneering quasi-public-private partnership (quasi-PPP) model. Unlike conventional PPPs that emphasize formal risk-sharing and standardized regulation, this initiative reflected an adaptive, trust-based collaboration among actors with asymmetrical resources and authority. The research aimed to describe actor collaboration patterns, assess adaptive coordination mechanisms addressing regulatory uncertainty, and evaluate intermediate outcomes in institutional trust, financial commitment, and project readiness.
METHODS: A descriptive qualitative design with an exploratory orientation was employed. Data were collected from February to July 2025 through four integrated techniques: in-depth interviews with ten key informants, one focus group discussion involving eight participants, participatory observation of coordination meetings and project sites, and comprehensive documentary analysis. Institutional trust was measured using a 5-point Likert scale, financial commitment was verified through internal capital budgeting documents, and project readiness was assessed across five critical dimensions. Data were analyzed using the interactive model of Miles et al., (2014) with four triangulation strategies to ensure credibility, transferability, dependability, and confirmability following Lincoln and Guba’s (1985) criteria.
FINDINGS: The study revealed five operational principles of asymmetric collaborative governance: complementary asymmetry, adaptive coordination, shared value creation, flexible accountability, and iterative trust building. Quantitatively, the project achieved a trust index of 4.2 (provincial government–BPD) and 3.1 (IKN Authority–partnership). BPD Kaltimtara financed 100% of the IDR 85 billion investment, reallocating 8% of its annual capital budget. Despite regulatory delays, the partnership achieved full technical design completion, environmental assessment approval, and institutional alignment through adaptive coordination mechanisms led by the Tim Percepatan IKN Kaltim task force.
CONCLUSION: The findings demonstrate that asymmetric collaborative governance, anchored in shared value creation and adaptive coordination, enables regional institutions to sustain strategic infrastructure development under uncertainty. This quasi-PPP model offers theoretical insights for governance innovation and practical guidance for designing flexible, trust-based frameworks in decentralized and polycentric development environments.

Keywords

Asymmetric Collaborative Governance
Quasi-Public-Private Partnership
Institutional Trust
Adaptive Coordination
Place-Based Governance
Subjects
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  • Receive Date 17 July 2025
  • Revise Date 10 October 2025
  • Accept Date 25 November 2025

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