ADAPTIVE GOVERNANCE IN VILLAGE-LEVEL PUBLIC ADMINISTRATION: EMPOWERING BUMDES TO ENHANCE LOCAL REVENUE DURING THE COVID-19 PANDEMIC IN INDONESIA

Abstract

The COVID-19 pandemic has posed unprecedented challenges for village governments in developing countries, forcing them to safeguard both social welfare and economic stability under conditions of uncertainty. While adaptive governance has been widely studied in urban and environmental contexts, its application at the micro level of village-owned enterprises (BUMDes) remains underexplored. This study investigates how adaptive governance practices supported the empowerment of BUMDes Makmur Sejahtera in Wonorejo Village, East Java, during the pandemic, and the extent to which these practices contributed to increasing village-generated revenue (PADes). Employing a descriptive qualitative single-case study, data were collected through in-depth interviews, participatory observation, and document analysis, and analyzed using Miles and Huberman’s interactive model. The findings reveal that adaptive governance was manifested through participatory recruitment, continuous capacity building, and flexible cross-sector collaboration. As a result, BUMDes contributions to PADes increased from IDR 40.9 million in 2020 to IDR 60.7 million in 2021, positioning Wonorejo among the top-performing villages in Kediri Regency. However, structural limitations persist, including the absence of a merit-based recruitment system and the lack of formal partnership agreements. This study extends the literature on adaptive governance by demonstrating its relevance in strengthening institutional resilience at the village level. It also offers policy implications for institutionalizing adaptive practices through regulatory reforms, formalized partnerships, and integration with broader post-COVID rural resilience and SDG agendas.