Collaborative Governance of the Pentahelix Model in Tuberculosis Control Programs in Palopo City, Indonesia

Abstract

Tuberculosis (TB) remains a significant public health issue in Indonesia, especially in Palopo City, South Sulawesi, where TB incidence has risen sharply in recent years. Effectively tackling TB necessitates integrated, cross-sectoral governance that fosters sustained collaboration among various stakeholders. This study explores the implementation of collaborative governance in the TB control program through a pentahelix framework. A qualitative case study design with a phenomenological approach was employed. Data were gathered via in-depth interviews with pentahelix stakeholders, including representatives from government, academia, industry, community organizations, and the media. Data analysis was conducted using content analysis based on Miles and Huberman’s interactive model. The findings reveal that cross-sectoral collaboration has improved coordination, heightened public awareness, and enhanced the effectiveness of the TB control program. However, the collaborative process remains predominantly government-driven, with non-governmental actors' involvement being more formalistic than substantively institutionalized. In Palopo City, pentahelix collaboration is mainly focused on procedural coordination, while essential aspects of systemic transformation—such as shared authority, joint decision-making structures, and institutional sustainability—are still underdeveloped. Collaborative governance in Palopo City's TB control program has made measurable progress in strengthening cross-sectoral coordination. Nonetheless, moving towards participatory, adaptive, and sustainable TB governance requires further institutional consolidation and enhanced collaborative capacity across all stakeholder groups.