The Administrative-Substantive Paradox in Collaborative Governance: A Case Study of University-Regional Government Collaboration in Indonesia

Abstract

This study evaluates the collaboration between the Research and Community Service Institute (LPPM) of Universitas Jenderal Soedirman and the Secretariat of the Regional House of Representatives (DPRD) of Cilacap Regency in developing Academic Manuscripts for Regional Regulation Drafts (Raperda) in 2024. Employing a descriptive-evaluative qualitative approach within a Collaborative Governance framework, this research analyzes the subst antive quality of outputs, the alignment of research team competencies, and the dynamics of collaborative processes through in-depth interviews with key stakeholders. Findings reveal a paradox between high administrative efficiency and low substantive quality, whereby none of the three Academic Manuscripts produced advanced to the promulgation stage. Critical issues include the utilization of outdated regulations, competency gaps in teams not based on needs analysis, and collaborative processes that remain transactional rather than deliberative. Power asymmetries were reflected in partners' limited authority to determine team composition, while the absence of multi-layered quality assurance mechanisms and periodic evaluations resulted in problems remaining undetected until the final stages. The study recommends an ideal cooperation model founded on five pillars: paradigm transformation toward collaborative partnership, competency-based team formation with active partner participation, implementation of multi-layered quality assurance, strengthening of deliberative communication, and development of continuous learning systems. This transformation requires institutional commitment to positioning partnership, quality, participation, and continuous learning as core values in academic-local government collaborations, with success evaluation based not solely on administrative efficiency but also on output quality and tangible contributions to regional regulation improvement.