Analisis Collaborative Governance dalam Proyek Strategis Nasional Pengolahan Sampah Menjadi Energi Listrik (PSEL) di Benowo, Kota Surabaya

(Studi Kasus Model KPBU)

Abstract

This study examines the effectiveness of collaborative governance at the Benowo Waste to Energy facility following the 2025 Surabaya administrative court ruling. The facility represents a policy paradox where the success of the public private partnership scheme in attracting hundreds of billions of rupiah in investment is accompanied by escalating social conflicts and information transparency disputes. Utilizing a descriptive qualitative method based on field research this study dissects the collaborative failure through the theoretical framework of Ansell and Gash. Data collection was conducted through in depth interviews with government officials private operators environmental activists and affected residents. The analysis results indicate that the collaboration failed structurally due to severe power asymmetry since the initial planning phase. This failure was exacerbated by a flawed institutional design that legitimized bureaucratic information centralism and the dysfunction of facilitative leadership by the local government which prioritized investment stability over the fulfillment of citizens ecological rights. Ultimately the interaction process at the grassroots level was reduced to a transactional relationship where corporate social responsibility programs were merely used as instruments of social pacification to suppress temporary protests. This research concludes that the Benowo facility operates under a highly fragile closed governance model that sacrifices public legitimacy. As a solution the researcher recommends the need for an institutional design reconstruction that integrates guarantees of environmental justice and mandatory independent information transparency in future green infrastructure projects.