Collaborative Governance-Based Fisheries Sector Development Strategy in Tulang Bawang Regency

Indonesia is known as a maritime country with abundant fishery resources. Its waters cover 75% of the country’s total area [1]. This makes it one of the main contributors to national economic development. This wealth is reflected in the extraordinary marine biodiversity, which includes 450 species of coral and more than 2,000 species of fish [2]. The interdependence between marine ecosystems and life on earth forms the conceptual foundation of the Blue Economy (BE), which advocates for the responsible and sustainable use of marine resources to promote economic growth, enhance social well-being, and safeguard ecological integrity [3].

Lampung Province is one of the provinces that has made the marine and fisheries sector a main pillar of its economy. Among the existing regions, Tulang Bawang Regency stands out as a significant contributor. Based on data from the Lampung Province Central Statistics Agency in 2024, the capture fisheries production in this regency reached 25,712 tons in 2022, making it the second highest in Lampung Province. In addition to capture fisheries, the aquaculture sector in Tulang Bawang also ranks first with a production volume of 14,201 tons and a production value of IDR 894,870,000 (Central Statistics Agency of Lampung Province, 2024). This data shows that Tulang Bawang District plays a strategic role in maintaining regional food security and the economy, but also faces challenges in BE has become a concept closely linked to marine resources, coastal communities, and economic growth. BE can be defined as the sustainable use of ocean resources for economic growth, livelihoods, better jobs, and the health of ocean ecosystems [4].

Effective fisheries management requires a holistic approach that involves various stakeholders. Law No. 45 of 2009 on Fisheries explicitly mandates optimal and sustainable management, as well as the need to consider customary law and community participation [5]. This paradigm is in line with modern trends in governance, namely collaborative governance. This approach emphasizes the importance of synergy between the government, the private sector, academics, and the community (Pentahelix-collaboration) to achieve common goals. Although this concept has emerged as an ideal solution to achieve common goals in overcoming policy failures [6], its implementation in the fisheries sector, especially at the local level, still requires in-depth study.

The literature shows that many previous studies on fisheries governance tend to be partial and have not systematically integrated the roles of actors, key factors, and collaborative policy strategies [6, 7]. Existing studies emphasize theoretical or technical aspects, without mapping the specific contributions of each actor measurably or formulating adaptive and contextual strategic priorities [8].

Collaborative governance has emerged in the last two decades as an important and ideal approach to the process of governance and public policy. Collaborative governance is like a “mantra” that can cure various policy pathologies, whether from the perspective of the politicization of regulations, budget bloat or limitations, or policy implementation failures [9].

Collaborative governance is also one of the approaches to governance that can accelerate bureaucratic reform, as explained by Adi Suryanto, Head of the State Administration Agency of the Republic of Indonesia, in a Focus Group Discussion (FGD) at Bappenas with the theme “Strategic Collaborative Governance to accelerate National Bureaucratic Reform” organized by the Vice President’s Secretariat, explained that there needs to be a paradigm shift in governance from one that is oriented towards working alone to one that is oriented towards working together to achieve common goals, also known as network government or collaborative governance. The collaborative governance paradigm means that the government, in this case, central and regional agencies, cannot work alone to solve public problems. Collaborative governance requires synergy based on a shared commitment to harmonize understanding of public issues with the involvement of various stakeholders, namely the government, the private sector, academics, the community, and the media, which is referred to as Pentahelix collaboration. This strategy is considered more effective in facing future bureaucratic challenges [10].

This study integrates the concepts of collaborative governance, public sector strategic management, and regional development and leading sector theory [11, 12]. This approach enables comprehensive analysis, starting from the understanding that regional development must focus on leading sectors such as fisheries, which are then managed strategically through collaboration between parties. Thus, this study contributes measurable instruments through the Analytical Hierarchy Process (AHP) approach to map the roles of each actor and formulate priority policy strategies that can serve as practical references for decision makers [13]. The novelty of this study lies in the synthesis and application of a strong theoretical framework for a specific context at the district level, making it a valuable contribution to the literature on fisheries governance in developing countries.

Based on the above description, this study aims to analyze the implementation of collaborative governance in fisheries sector development in Tulang Bawang District, Lampung Province. Specifically, this study will identify key factors that influence collaboration, analyze relevant parties, and formulate collaborative policy strategies that can be prioritized for sustainable fisheries sector development.

3.1 Result

3.1.1 Collaborative governance in fisheries development in Tulang Bawang Regency

The implementation of fisheries sector development using a collaborative governance approach has been carried out by the fisheries agency as mandated by: (1) Law Number 45 of 2009 concerning Amendments to Law Number 31 of 2004 concerning Fisheries [6]; Law Number 25 of 2004 concerning the National Planning System, Government Regulation of the Republic of Indonesia Number 8 of 2008 concerning the Stages, Procedures for Formulating, Controlling and Evaluating the Implementation of Regional Development Plans, as well as existing regulations and cooperation programs [2]. The implementation or application of collaborative governance in various dimensions of the fisheries sector development strategy in Tulang Bawang Regency, Lampung Province, which has been carried out by the Tulang Bawang Regency fisheries service, is considered to be ineffective, partial, unintegrated, not systematically programmed, and lacking measurable targets [9, 20].

The key factors influencing the implementation or application of collaborative governance in the Fisheries Sector Development Strategy in Tulang Bawang Regency, Lampung Province, can be seen in Figure 2.

Figure 2. Key factors of collaborative governance in fisheries sector development in Tulang Bawang District, Lampung Province

In Figure 2, the analysis results indicate that the implementation of collaborative governance in the fisheries sector is influenced by different priorities in each dimension [6]. In the initial conditions, the highest priority was achieving a balance between resources, with a percentage of 51.7%, indicating the importance of empowering disadvantaged parties to ensure meaningful participation [21]. Meanwhile, in the collaborative leadership facilities dimension, the factor of ensuring that collaboration is empowered to make credible decisions was the most crucial, with a percentage of 44.90%. This confirms the role of leadership in uniting stakeholders and forming a common agenda [7]. In the institutional design dimension, the top priority (66.10%) is the opportunity for every actor to communicate about policy outcomes, which is essential for building synergy [10]. Finally, the collaborative process dimension highlights commitment to process and results as the highest priority (50.90%), which stems from a belief in good-faith negotiation to achieve common goals [22].

The significant gap between Institutional Design and Collaborative Process indicates a ‘policy-implementation decoupled’ phenomenon. While the formal rules and legal framework are well-established, the actual collaboration remains ceremonial [16]. This failure is rooted in deep-seated sectoral egoism within the local bureaucracy, where agencies prioritize internal KPIs over collective goals [10]. Consequently, the collaborative process becomes partial and non-continuous, lacking the ‘trust-building’ mechanism necessary for long-term sustainability [6].

3.1.2 Actors of collaborative governance in fisheries sector development in Tulang Bawan District, Lampung Province

To understand the roles and contributions of each actor in the implementation of collaborative governance in Tulang Bawang Regency, a quantitative analysis was conducted through a survey using the AHP approach [13]. The results of this analysis identified the relative level of influence of each actor in each dimension of collaborative governance that was measured. The various roles of each actor or stakeholder in the collaborative governance-based fisheries sector development strategy in Tulang Bawang Regency, Lampung Province, can be seen in terms of their influence or percentage of their role in various dimensions of collaborative governance, as shown in Table 2.

Table 2. Stakeholders or actors of collaborative governance in fisheries sector development in Tulang Bawang Regency, Lampung Province

Table 2 shows that the government is the most dominant actor in the collaborative governance-based fisheries sector development strategy in Tulang Bawang District. Based on the data, the government has the strongest influence in almost all dimensions, with a total score of 3240, placing it at the top of the list. This is in line with the views of experts who state that the government plays a central role as a stabilizer, investor, modernizer, and coordinator in the development process [20, 23]. The government has a responsibility to maintain peace and security, as well as provide public services, so its dominance in the collaboration process is very important [11].

Below the government, the business world ranks second with a total score of 2638. Their role includes being a partner that fosters business and economic opportunities, as well as making important contributions in terms of financing, technology, and marketing [5, 12]. Third place is occupied by the banking sector, with a total score of 2024, which shows its crucial role in facilitating financing and capital, especially through programs such as People’s Business Credit (KUR) [24].

Next, higher education institutions are just below the banking sector with a total score of 1396, which confirms their role as providers of knowledge, mentors, and sources of information [18]. This role is important in supporting innovation and technological development in the fisheries sector. Finally, the mass media, with a total score of 1150, and the Fisheries Group, with a total score of 553, are at the bottom, indicating their role in publishing information and directly representing the fishing community.

The analysis reveals a stark power asymmetry, where Government dominance contrasts sharply with the low involvement of the fisheries Community. Interviews with local fishermen and women in fish processing groups highlight that their participation is often limited to the planning phase without real influence in decision-making [21]. The informal actors face digital literacy barriers and limited access to formal forums [25]. This finding challenges the ‘Pentahelix’ ideal, suggesting that in the Indonesian fisheries context, the model still operates under a state-centric shadow rather than a truly egalitarian partnership [6]. Although collaboration between parties is at the core of collaborative governance, these findings underscore that in Tulang Bawang Regency, collaboration is still driven by the highly centralistic role of the government as the main actor [10].

3.1.3 Fisheries sector development strategy in Tulang Bawang District, Lampung Province

Local governments can enhance development in accordance with their respective potentials [1]. With the emergence of a new paradigm in development, the fisheries sector has become a focus in development plans [2]. The depletion of land and the enormous potential of Indonesia’s fisheries have shifted the government’s development focus from agriculture to the fisheries sector [26]. Tulang Bawang Regency in Lampung Province, which has a geostrategic location, has considerable potential in both capture fisheries and aquaculture [4]. Based on the results of interviews and the processing of a combined matrix from 14 (fourteen) informants using the AHP technique, the results of the study show that the priority order of collaborative governance-based fisheries sector development strategies in Tulang Bawang Regency, Lampung Province, which can be implemented by each actor or stakeholder, can be seen in Figure 3 [17, 19]. These strategies, which include technical to managerial aspects, are expected to be a reference in strategic decision-making for the welfare of local communities and the sustainability of resources [27].

Figure 3. Fisheries sector development strategies in Tulang Bawang Regency, Lampung Province

Strategy Description

A = Improvement of Human Resource Quality and Institutions

B = Increase in Fisheries Product Processing Business Activities

C = Enhancement of Aquaculture and Capture Fisheries Technology Utilization Capabilities

D = Increasing Market Share and Expansion

E = Improving Financing and Capital Facilitation

F = Increasing the Application and Utilization of Information Technology

G = Increasing Research and Innovation in Product Development

H = Establishing Business Partnership and CSR Forums

I = Improving Supporting Facilities and Infrastructure

Figure 3 shows that the priority strategies in the development of the fisheries sector based on collaborative governance in Tulang Bawang Regency, Lampung Province, are as follows:

1. Improvement in Financing and Capital Facilitation with a value of 0.803.
2. Improvement in the Ability to Utilize Aquaculture and Fishing Technology, with a value of 0.796.
3. Improvement in the Processing of Fishery Products with a value of 0.754.
4. Increased Market Share and Expansion with a score of 0.750.
5. Increased Application and Utilization of Information Technology with a score of 0.719.
6. Improved Quality of Human Resources and Institutions with a score of 0.678.
7. Increasing Research and Innovation in Product Development with a score of 0.584.
8. Establishing Business Partnership Forums and Corporate Social Responsibility (CSR) with a score of 0.499.
9. Improving Supporting Facilities and Infrastructure with a score of 0.414.

The development of the fisheries sector based on collaborative governance in Tulang Bawang Regency, Lampung Province, requires policies that focus on improving the facilitation of financing and capital for fisheries businesses in various dimensions of collaborative governance [24]. Based on the Banking Law and the 2020-2024 National Medium Term Development Plan (RPJMN), the development of the fisheries sector greatly requires funding support from banking institution through special schemes such as the KUR [2, 26]. In the KUR program, the government acts as a risk guarantor while banks act as fund providers, which aims to improve the standard of living of fishermen and micro-entrepreneurs in coastal areas [27]. Financing for capture fisheries businesses through the banking sector is provided through the KUR and the Non-KUR Credit Program. In the KUR Program, the Indonesian government targets KUR distribution of Rp 20 trillion. Regarding KUR, the government has made a policy that if the credit application is less than Rp 20 million, fishermen do not need to provide collateral; the collateral is the fishermen’s business itself. In KUR, the bank is the executor and provider of funds, while the government acts as the risk guarantor.

The second aspect that must be considered is improving aquaculture and capture fisheries technology capabilities. Based on the location of cultivation, there are three types of aquaculture businesses, namely marine aquaculture (mariculture), brackish water culture, which uses a mixture of seawater and freshwater as its medium, and freshwater culture, which is usually carried out in lakes, rivers, and reservoirs. According to Boyd [28], aquaculture management has three basic principles, namely the regulation/management of environmental quality (water quality), the regulation/management of supplementary feeding, and the control of pests and diseases affecting cultivated biota. Collaborative application of these principles between academics and practitioners is essential to maintain the sustainability of coastal ecosystems [19]. However, technically (in terms of applied technology), there are several differences in the application of these three principles.

In order to increase added value in the development of the fisheries sector based on collaborative governance, the third priority aspect is to increase the processing of fishery products. Fishery product processing activities or fishery agro-industry can be grouped into three categories [5], including:

1. Primary industry, including live fish handling, fresh fish handling, freezing, and fish refrigeration industries.
2. Secondary processing industry, including canned fish and other packaged fish processing industries, as well as traditional processing industries such as salting, curing, pindang, and others.
3. Tertiary processing industry, including any form of industry that uses fish as an additional ingredient, such as shrimp paste, petis, abon, fish meal, and others.

In order to increase the sales value of fishery products, more intensive efforts are needed to market them. Therefore, the fourth priority strategy is to increase market share and expand the market [4]. Marketing strategies for fishery products to help increase sales include:

1. Identifying target markets
2. Improving product quality and safety
3. Diversifying products
4. Building partnerships and distribution networks
5. Improving branding and promotion

The development of information technology must be utilized in the development of the fisheries sector, not only to expand the market but also to increase the productivity of the fisheries sector in Tulang Bawang Regency [13]. Therefore, the sixth priority strategy is to increase the application and utilization of information technology. Information technology also aims to ensure that access to information is fast, accurate, and secure, and can assist in decision-making based on valid data. Here are some other objectives.

The next strategy that needs attention is improving the Quality of HR and Institutions, Enhancing Research and Innovation in Product Development, Establishing Partnership Forums and CSR, and Improving Supporting Facilities and Infrastructure [14, 15]. Through the Pentahelix approach, it is hoped that all of these strategies can be systematically integrated to realize the welfare of coastal communities in Tulang Bawang Regency [10, 17].

3.2 Discussion

3.2.1 Analysing key factors and priority strategies in the fisheries sector

This study departs from the core question: How can we formulate effective fisheries sector development strategies through collaborative governance at the local level? To answer this question, we integrated an in-depth analysis of the factors that influence the implementation of collaborative governance with the determination of priority policy strategies [6, 12].

Table 3. Summary of key findings

This study systematically analyzes several interacting factors in the implementation of collaborative governance for fisheries sector development in Tulang Bawang Regency. This analysis provides an in-depth understanding of the dynamics of local governance and formulates the most relevant priority strategies, as shown in Table 3.

There is a notable paradox where high production doesn’t translate into financial independence, making ‘Financial and Capital Facilitation’ the top priority (0.803) [24]. This occurs because the majority of fishers in Tulang Bawang act as raw material suppliers with minimal value-added processing [5]. Without adequate capital for post-harvest technology, they remain trapped in low-margin cycles [1]. The high priority of financing reflects a structural need to bridge the gap between high biological productivity and low economic welfare through integrated credit schemes involving the Banking sector [26, 27].

3.2.2 Policy implications and scientific contributions

Overall, this analysis has significant implications for policy formulation at the local level. A one-size-fits-all approach has not proven effective [16, 20]. Instead, policies must be contextual and adaptive, with strategic priorities tailored to specific needs on the ground [4]. This requires a shift from a top-down model to a more participatory approach, where the government, business, academia, and the fishing community collaborate equally [6, 10].

This research contributes to the literature by providing a measurable model for analyzing and formulating effective development strategies in the context of developing countries [19]. By integrating the collaborative governance framework and AHP analysis, this study provides practical guidance for decision makers to identify strategic priorities and manage the dynamics between actors, ensuring that development efforts not only run smoothly but also achieve optimal and sustainable results [13, 14]. This ensures that development efforts not only run smoothly but also achieve optimal, inclusive, and sustainable outcomes for both coastal ecosystems and communities [17, 24].