The Implementation Gap in Poverty Alleviation Policies Based on Pentahelix Collaborative Governance at the Local Level

Abstract

Poverty alleviation policies at the regional level are increasingly directed towards a collaborative pentahelix governance approach in response to the complexity of poverty issues that cannot be resolved unilaterally by the government. However, various studies indicate a gap between collaborative policy design and its implementation practices in the field. This study aimed to empirically examine the implementation of such policies and to identify the concrete forms of the gap between policy design and practice. This study adopts a qualitative approach with a case study design. Data were collected through in-depth interviews, field observations, and document analysis, and were subsequently analyzed thematically. The results show that although regional policies have normatively adopted the principle of multi-actor collaboration, their implementation is still dominated by local governments. The participation of non-governmental actors remained constrained, fragmented, and inadequately institutionalized within decision-making processes. This implementation gap is influenced by weak cross-actor communication, limited resources, a low bureaucratic disposition to share authority, and a bureaucratic structure that remains hierarchical. These findings suggest that the effectiveness of collaborative governance was not inherent, but rather depended on the degree of institutionalization of collaborative arrangements and the strengthening of actors’ capacities within the context of local policy implementation.