Between central and regional governance: The mediating work of intermediary characters Policy changes increasingly foreground ‘the region’ as a governance object in response to pressing issues, positioning it as an alternative to centralised governance. The social domain and healthcare sector exemplify this shift toward regionalised policymaking, where the formation of regional networks is actively promoted within a context of competition and regulated market dynamics. However, the ways in which regional policy change is ‘mediated’ between central and regional governance, and how the actors who assume this mediating role operate, remain underexplored. Drawing on ethnographic research, this paper examines how ‘intermediary characters’ at the regional level help align converging central and decentralised steering processes, and the tensions inherent in this mediating work. The findings highlight the ambiguous roles and positionalities of these actors, and analyse their mediating work at the interface of policy and practice. We argue that attending to these intermediary characters, who operate pragmatically behind the scenes of regional policy change, is essential for policymakers and local actors seeking to develop more responsive forms of governance.
Civil society organizations (CSOs) are key actors in democratic governance and social development in Indonesia. However, the rapid growth in the number of CSOs has not been supported by effective governance, regulation, and institutional development. This study analyzes the dynamics of CSOs in Indonesia from a public policy perspective, with a focus on regulatory frameworks, institutional arrangements, public perceptions, and the implications of CSO development policies. It employs a qualitative approach based on policy review, drawing on more than 200 documents, including laws and regulations, government reports, internal documents from the Directorate General of Politics and General Government, academic publications, and survey data from research institutions. The findings show that, despite their significant contributions to social services and public participation, CSOs face persistent challenges, including overlapping institutional mandates, weak oversight mechanisms, and ambivalent public perceptions. Comparative analysis suggests that effective CSO governance requires a balance between freedom of association, transparency, and institutional accountability. This study highlights the importance of a more integrated and evidence-based reformulation of community organization development policies, and positions the Directorate General of Politics and General Government (BSKDN) as a key actor in shaping national CSO policy. It also contributes an analytical framework for CSO governance that integrates regulatory, institutional, and public perception dimensions within the broader context of state–civil society relations in Indonesia.
Intermediaries in wicked actor constellations Samenlevingen worden geconfronteerd met complexe maatschappelijke vraagstukken die vaak worden aangeduid als ‘wicked problems’. Dit artikel betoogt dat dergelijke vraagstukken beter begrepen kunnen worden als ‘wicked actorconstellaties’. Vanuit dit perspectief is collaborative governance een bijzondere en beperkte vorm van interactie, die wordt gebruikt om aan te duiden dat een subset van actoren tot gedeelde probleemdefinities komt of is gekomen. Iedere actor kan de rol van tussenfiguur vervullen door anderen te beïnvloeden rond een eigen probleemopvatting. Dit inzicht benadrukt dat samenwerking wordt gekenmerkt door voortdurende spanningen, positioneringsdynamieken en onzekerheid, met belangrijke implicaties voor de bestuurspraktijk en bestuurskundig onderzoek. Societies are confronted with complex societal challenges that are often referred to as “wicked problems.” This article argues that such challenges are more appropriately understood as “wicked actor constellations.” From this perspective, collaborative governance constitutes a specific and limited form of interaction, used to denote situations in which a subset of actors has arrived at, or is willing to arrive at, shared problem definitions. Any actor can assume the role of an intermediary by attempting to influence others around their own interpretation of the problem. This insight highlights that collaboration is characterized by persistent tensions, positioning dynamics, and uncertainty, with important implications for both administrative practice and public administration research.
Stop controlling: Let’s start using our steering-instruments again People with multiple problems get stuck in our welfare state regularly and quickly . It is precisely the families who need care and support the most that cannot find and receive this care and support in an adequately tailored form. The explanation is often sought in complex systems, complicated legislation and poor cooperation. But when asked, these families come up with solutions which are usually simple, logical and even relatively cheap. Why is it so difficult to enable simple solutions that citizens themselves come up with? Using the ‘breakthrough method’, the Dutch Institute for Public Value helped thousands of people in stalled situations over the past fifteen years. We learned that these people's simple solutions are not blocked because of a multifaceted or complicated bureaucracy, let alone because of insufficient cooperation. Citizens' solutions are much more likely to clash with what we call ‘the controlling mechanisms’ in bureaucracy. The most powerful enabling instruments available to the government (funding, legislation, governance and accountability) are set up to do exactly what we agreed beforehand. No more, no less and nothing new. As a result, public organisations do not enable or steer; instead they simply control. In this article, we search for possibilities to steer again, preferably in terms of renewal, improvement and change for the people who desperately need it.
The issue of restricting the operational space of mass organizations (ormas) has recently become a significant concern in Indonesia’s democratic discourse. The tension between the need to maintain public order and the obligation to uphold freedom of association has become increasingly evident, particularly amid the rise of coercive administrative policies. This article aims to comprehensively evaluate policies governing mass organizations in Indonesia by examining three purposively selected evaluative dimensions: policy effectiveness, responsiveness to civil society, and their impact on the social order. The study employs a qualitative-descriptive approach through a literature review, analyzing legal documents, institutional reports, and relevant academic literature. The document review focuses on policy dynamics, particularly following the enactment of Law No. 16 of 2017. The analytical method applied is thematic and evaluative document analysis. The findings indicate that policies on mass organizations in Indonesia remain partial and are predominantly characterized by an administrative-repressive approach. In terms of effectiveness, the policies emphasize formal legality rather than the substantive strengthening of organizational capacity. Their responsiveness is also limited due to the lack of public participation in both policy formulation and evaluation processes. From the perspective of social impact, these policies have the potential to constrain civic space and exacerbate social polarization. This study recommends the reformulation of mass organization policies based on the principles of due process, meaningful participation, and the strengthening of constitutional rights protection. Furthermore, insights from international practices—such as the model of militant democracy in Germany and the challenges observed in India—are presented to enrich the discourse on developing more democratic and accountable policy frameworks in Indonesia.
Towards an enriched understanding of intermediary characters Against a background of complicated policy issues, intermediary characters are increasingly being introduced: i.e. special positions situated in between (outside or at the boundaries of) formal organisations, systems or other structures. This article notes that a multitude of concepts are circulating in order to define and explain such positions, including ‘boundary spanners’, ‘public bricoleurs’, ‘policy entrepreneurs’ and ‘intermediaries’. Nonetheless, an empirical comparative analysis of 24 intermediary positions based on document study confirms an overly limited focus in the literature. This specifically relates to three aspects: (1) intermediary characters also operate at a national level where system level issues occur, beyond a mere local level focus; (2) intermediary characters not only operate through connective, but also in disruptive ways in order to achieve policy aims; and (3) intermediary characters also rely on other sources of knowledge beyond policy and/or context knowledge. Since current concepts are insufficient in capturing the wide variety of intermediary character positions and thereby describing and explaining their interconnectedness in coherent ways, we conclude that an enriched understanding of such positions is needed in order to advance theory building and to enable strategic considerations around intermediary characters in practice.
Those who make a difference and other intermediary characters This article reflects on the phenomenon of intermediary characters and the articles that have appeared on this subject in this special issue. It examines four characteristics of the literature: the assumption that addressing societal issues revolves around individuals; the large number of labels for intermediary characters; the suggestion that the work of intermediary characters mainly focuses on connecting; and the link between intermediary characters and the local. Addressing issues is about more than individuals; the labels are mainly useful, sometimes superfluous; in addition to connecting, conflict is also necessary; and intermediary characters can be found everywhere.
Historical records have repeatedly revealed the empirical reality that Civil Society Organizations (CSOs) in Bali, which initially emerged as unifying platforms, have instead transformed into sources of conflict. The lack of deep-rooted local wisdom in Bali—which is inherently harmonious—has become one of the primary factors contributing to these issues. Given this situation, the researcher is interested in conducting a comprehensive study of CSO structures based on local wisdom in Bali. Analytically, this study aims to present the essence of Balinese local wisdom as an integral part of Balinese society, its implementation within the structure of Civil Society Organizations in Bali, and its implications in addressing the threat of conflict while serving as a means to strengthen harmony. Methodologically, this study employs a qualitative research approach based on a case study methodology. Research data were derived from observations and interviews as primary data, supplemented by literature reviews and documentation as secondary data. Using the Miles and Huberman analytical approach, the findings of this study indicate that the structure of Civil Society Organizations based on Balinese local wisdom generally aligns with five concepts: 1) Tri Hita Karana, 2) Menyama Braya, 3) Matulung, 4) Makasah, and 5) Ngrombo. The application of this community organization framework based on local wisdom has the potential to strengthen harmony in Bali, serving as a philosophical foundation for social movements, a bond of solidarity, a foundation for humanistic movements, a manifestation of love for Bali’s natural environment, and a catalyst for unity and social justice. The contribution of this research is intended to serve as an academic guideline for strengthening the governance of Civil Society Organizations based on local wisdom to foster harmony.
Laypeople or experts? Knowledge and expertise of national and local representatives What kind of expertise do elected officials in parliaments and city councils need to be considered ‘experts’ at their job? The public administration literature on concepts such as knowledge, expertise and professionalism generally focuses on the civil service rather than political bodies. The expertise of elected officials, however, has a significant influence on the functioning of governments. In this article, we present a conceptual framework for mapping and analysing the expertise of local and national representatives. We distinguish four types of expertise: subject-matter expertise, field expertise, process expertise and implementation expertise. We also present several factors that affect the development and maintenance of these types of expertise. Among other things, we observe that the reduced term of office of representatives and increased political fragmentation place higher demands on the expertise of members of parliament and councillors.
Ministerial dossier holders: In search of the logic of departmental policy work Research into the nature of policy work within ministries, as described and recounted by civil servants whose job title is ‘policy worker’, is scarce. Given the relevance of their work for the quality of policy, this is surprising. Our research shows that policy work is predominantly dossier oriented: policy workers spend most of their time and attention on maintaining and developing the individual and specific dossiers assigned to them. A ‘dossier’ (as it is commonly called in Dutch) refers to all relevant information, developments and activities related to a specific policy area for which a policy worker – or a team of policy workers – is made responsible. There is great variation in how they execute their work, how they perceive the progress of their work and how they assess their work results. This variation largely depends on the characteristics and dynamics of the dossiers themselves.
The decision of Indonesia’s largest religious mass organizations, Nahdlatul Ulama (NU) and Muhammadiyah, to accept coal mining business permits has sparked extensive critical discourse. Such criticism comes from environmental activists, academics, and the general public, highlighting ecological risks due to mining activities and potential conflicts of interest that may undermine the moral authority of these religious organizations. This study aims to analyze various criticisms directed at NU and Muhammadiyah in relation to their acceptance of mining business permits, as well as to evaluate the ecological risks and implications for the interests and integrity of these religious organizations. This study employs a qualitative approach through a literature review and discourse analysis of primary and secondary sources, including government regulations, statements from organizational leaders, academic perspectives, environmental reports, and public responses in the form of petitions and protests. Findings reveal that although the religious organizations strive to optimize economic roles through environmentally friendly mining management models, empirical evidence and field experiences indicate significant risks of environmental damage, water source pollution, and adverse social impacts on local communities. Strong criticism arose concerning potential conflicts of interest, weak technical and financial capacity, and contradictions with the core values of the religious organizations, which should uphold sustainability and morality. The strongest opposition came from young members and environmental activists within the organizations who want them to remain focused on advocacy and social empowerment.
Civil-service craftsmanship as protection against arbitrariness: A neo-republican approach This article develops a neo-republican, rule-of-law framework for how civil-service craftsmanship can be institutionalised at a national level. In the neo-republican tradition, freedom is understood as not being subject to arbitrary power. Government power is legitimate only insofar as it is organised so that citizens are not exposed to arbitrariness. We translate this ideal into five testable design criteria (duty to give reasons, contestability, correctability, anti-corruption and integrity of office). We use New Zealand’s Public Service Act 2020 as an illustrative case and assess the Dutch civil service (law, soft law and institutional design) against it. New Zealand functions as a design reference, showing several institutional levers for organising the rule of law in a durable way, notably statutory principles/values and the independent position of the Public Service Commissioner alongside ministerial responsibility.
There is no neutral oversight: on the professional and normative legitimacy of public oversight Over the past two decades, significant investments have been made in strengthening public accountability in the Dutch public and semi-public sectors. The professionalisation of internal and external supervisors and safeguarding their independence have been central objectives, aimed at improving the quality of supervision and protecting supervision authorities from undue political pressure. These developments have usefully created more space for supervisors’ autonomous, professional judgment. Drawing on a variety of examples from the Dutch context, this article argues that the underlying technocratic approach to the craft of supervision, however, risks overlooking the politicisation of public supervision that accompanies the focus on serving ‘the public interest’. While supervisors derive much of their legitimacy from their apolitical role, they are increasingly required to make political choices. This creates the risk of a democratic deficit and a loss of legitimacy and public trust, which calls for an understanding of supervision that recognises both its technocratic and normative dimensions. Such a conception acknowledges that supervision is indeed a craft requiring independent expert judgment but also that it is never neutral and has a normative dimension. Consequently, supervising authorities cannot do without democratically anchored ideal norms and need to be democratically accountable themselves as well.
The use of AI recommendations by emergency dispatchers: accepting, ignoring or reflecting? AI and algorithms are rapidly changing the public sector. These changes are usually hinted at in big words and promises. To truly understand the impact of AI in the public sector, we need to look at actual organisational practices. We do this through an ethnographic study at an ambulance dispatch centre that has been using an AI system to allocate ambulances as efficiently as possible since 2014. These decisions are made using AI when under severe time constraints. We conclude that dispatchers neither blindly adopt nor ignore AI recommendations. Dispatchers use their tacit knowledge (the situation on the ground and human factors) to supplement AI and make decisions about the proper allocation of ambulances based on this knowledge. There is ‘critical reflection’ on and with AI systems. This interaction modality has hardly been recognised in public organisations.
Intermediary characters in public administration In public administration research, increasing attention is being paid to intermediary characters, variously conceptualised in the literature as ‘boundary spanners’, ‘public bricoleurs’, and ‘intermediaries’. They are increasingly seen as a potential response to policy challenges that are difficult to address within existing legal frameworks, across distinct governmental levels or within siloed organisational structures. Intermediary characters are figures that guide collaboration across organisations, domains, and systems, driven by the ambition to enhance public service delivery and to generate public value. They operate alongside formal roles and responsibilities, developing new practices and strategies to achieve objectives that are difficult to realise from established institutional positions. In doing so, they seek to open up alternative pathways to issues that have become stalled, either by complementing or challenging prevailing institutional arrangements. This special issue aims to advance our understanding of intermediary characters as a distinct phenomenon within public administration. The contributions speak not only to such figures, but also to other professionals, policymakers and civil servants, as well as to public administration scholars and students who are engaged in addressing intractable problems, and in that pursuit increasingly rely on or encounter intermediary characters.
The art of balancing behind the Golden Wall: An administrative perspective on civil service leadership The ongoing discussion regarding political-bureaucratic relations illustrates the importance of a refined and balanced approach to civil service leadership, without calling into question the essential premise of political primacy. In this article, we develop an analytical framework for civil service leadership and apply it to the Dutch and the (federal) American prison systems. A plea is made for the emancipation of civil service leadership: it is time for senior civil servants to exercise their leadership duties within the rules of the political-bureaucratic game.
