Fragmented ecosystem, emergent roles: The limits of the penta helix model for sustainable digital resilience

Ratna Susanti; Dwi Bambang Putut Setiyadi; Dwi Iskandar; Devi Putri Febriyanti; Teisar Arkida

doi:10.31893/multiscience.2026399

Keywords:

collaborative governance

Abstract

The paradox of urban digital transformation—immense opportunity shadowed by significant risks such as digital divides, misinformation, and cybersecurity threats—requires a unified, multi-sector collaborative effort. The Penta Helix model, which theoretically convenes academia, business, government, community, and media, is a framework increasingly adopted in developing nations to organize and govern such efforts. However, its practical application and actual effectiveness in fostering sustainable digital literacy resilience, a crucial component of urban defense against digital risks, remain an underresearched topic. This study addresses this critical gap through an in-depth qualitative case study of Surakarta, Indonesia, a city actively pursuing smart city status. Drawing on semistructured interviews with seven key Penta Helix actors representing each of the five sectors, alongside a thematic analysis of public policy documents and municipal reports, this paper investigates the collaborative dynamics shaping the city’s digital literacy initiatives. The findings uncover a critical ‘evaluation gap’ across the ecosystem, defined by a profound lack of shared, outcome-based metrics and integrated monitoring processes, which prevents any collective understanding of programmatic impact. Consequently, the ecosystem operates not as a coordinated coalition but as a fragmented system with significant collaborative challenges. Actors have settled into emergent, specialized roles—such as academia focusing on foundational training and community groups on grassroots dissemination—which, while complementary, exist in programmatic silos with minimal inter-sectoral communication. This fragmentation, characterized by redundant efforts and a lack of integrated strategy, hinders the overall impact. Furthermore, this siloed approach means any alignment with broader Sustainable Development Goals (SDGs), such as SDG 4 (Quality Education) and SDG 11 (Sustainable Cities), is largely implicit and opportunistic rather than strategic. This research provides a practical, grounded critique of the Penta Helix model in action, concluding that creating a truly resilient digital community is impossible without an integrated, evidence-based strategy, one that moves beyond siloed actions toward a system-wide, data-driven governance model.
References
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This work is licensed under a Creative Commons Attribution-NonCommercial-NoDerivatives 4.0 International License.

How to cite

Susanti, R., Setiyadi, D. B. P., Iskandar, D., Febriyanti, D. P., & Arkida, T. (2025). Fragmented ecosystem, emergent roles: The limits of the penta helix model for sustainable digital resilience. Multidisciplinary Science Journal, 8(6), 2026399. https://doi.org/10.31893/multiscience.2026399

[1] Ahmed, S. K., Mohammed, R. A., Nashwan, A. J., Ibrahim, R. H., Abdalla, A. Q., M. Ameen, B. M., & Khdhir, R. M. (2025). Using thematic analysis in qualitative research. Journal of Medicine, Surgery, and Public Health, 6, 100198. https://doi.org/10.1016/j.glmedi.2025.100198

[2] Ansell, C., & Gash, A. (2008). Collaborative Governance in Theory and Practice. Journal of Public Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032

[3] Braun, V., & Clarke, V. (2006). Using thematic analysis in psychology. Qualitative Research in Psychology, 3(2), 77–101. https://doi.org/10.1191/1478088706qp063oa

[4] Braun, V., & Clarke, V. (2022). Thematic analysis: A practical guide. SAGE.

[5] Carayannis, E. G., & Campbell, D. F. J. (2010). Triple Helix, Quadruple Helix and Quintuple Helix and How Do Knowledge, Innovation and the Environment Relate To Each Other? : A Proposed Framework for a Trans-disciplinary Analysis of Sustainable Development and Social Ecology. International Journal of Social Ecology and Sustainable Development (IJSESD), 1(1), 41–69. https://doi.org/10.4018/jsesd.2010010105

[6] Cetindamar, D. (2024a). Explicating AI Literacy of Employees at Digital Workplaces. In IEEE Transactions on Engineering Management (Vol. 71, pp. 810–823). https://doi.org/10.1109/TEM.2021.3138503

[7] Cetindamar, D. (2024b). The Role of Employees in Digital Transformation: A Preliminary Study on How Employees’ Digital Literacy Impacts Use of Digital Technologies. In IEEE Transactions on Engineering Management (Vol. 71, pp. 7837–7848). https://doi.org/10.1109/TEM.2021.3087724

[8] Chamidah, N. (2020). Marketing communication and synergy of pentahelix strategy on satisfaction and sustainable tourism. In Journal of Asian Finance Economics and Business (Vol. 7, Issue 3, pp. 177–190). https://doi.org/10.13106/jafeb.2020.vol7.no3.177

[9] Cita, F. A. (2025). Pentahelix Stakeholder Analysis in Developing Ecotourism Based on Paradisaea minor jobiensis Conservation in Sawendui, Yapen Islands. In Jurnal Pengelolaan Sumberdaya Alam Dan Lingkungan (Vol. 15, Issue 1, pp. 143–153). https://doi.org/10.29244/jpsl.15.1.143

[10] Diseiye, O. (2024). Emerging Technologies: Leveraging Digital Literacy for Self-Sufficiency Among Library Professionals. In Metaverse Basic and Applied Research (Vol. 3). https://doi.org/10.56294/mr202459

[11] Donati, L., Stefani, G., & Bellandi, M. (2023). The Evolutionary Emergence of Quintuple Helix Coalitions: A Case Study of Place-Based Sustainability Transition. https://doi.org/10.1163/21971927-12340010

[12] Eshet, Y. (2004). Digital Literacy: A Conceptual Framework for Survival Skills in the Digital era. Journal of Educational Multimedia and Hypermedia, 13(1), 93–106. https://www.learntechlib.org/primary/p/4793/

[13] Etzkowitz, H., & Leydesdorff, L. (2000). The dynamics of innovation: From National Systems and “Mode 2” to a Triple Helix of university–industry–government relations. Research Policy, 29(2), 109–123. https://doi.org/10.1016/S0048-7333(99)00055-4

[14] Falloon, G. (2020). From digital literacy to digital competence: The teacher digital competency (TDC) framework. In Educational Technology Research and Development (Vol. 68, Issue 5, pp. 2449–2472). https://doi.org/10.1007/s11423-020-09767-4

[15] Getenet, S. (2024). Students’ digital technology attitude, literacy and self-efficacy and their effect on online learning engagement. In International Journal of Educational Technology in Higher Education (Vol. 21, Issue 1). https://doi.org/10.1186/s41239-023-00437-y

[16] Guess, A. M. (2020). A digital media literacy intervention increases discernment between mainstream and false news in the United States and India. In Proceedings of the National Academy of Sciences of the United States of America (Vol. 117, Issue 27, pp. 15536–15545). https://doi.org/10.1073/pnas.1920498117

[17] Hardianto, W. T. (2019). PentaHelix synergy on tourism development in Batu, East Java. In International Journal of Innovation Creativity and Change (Vol. 10, Issue 6, pp. 137–149). https://www.ijicc.net/images/vol10iss6/10618_Hardianto_2019_E_R.pdf

[18] INP. (2024, March 21). Ministry of Communication and Informatics Took Action Against 1,971 Hoax Contents | INP | Indonesian National Police. https://inp.polri.go.id/artikel/ministry-of-communication-and-informatics-took-action-against-1971-hoax-contents

[19] INP. (2025a, January 7). Digital and Communication Ministry Banned Thousands of Negative Contents | INP | Indonesian National Police. https://inp.polri.go.id/artikel/digital-and-communication-ministry-banned-thousands-of-negative-contents

[20] INP. (2025b, July 30). Indonesia Cuts Off Social Aid to 200,000 Recipients Linked to Online Gambling | INP | Indonesian National Police. https://inp.polri.go.id/artikel/indonesia-cuts-off-social-aid-to-200000-recipients-linked-to-online-gambling

[21] Lagarense, B. E. S. (2018). Digital Technology and Pentahelix Role Model for Sport Tourism Event of IVCA 2018 in Bali. In Proceedings 2018 International Conference on Applied Science and Technology Icast 2018 (pp. 263–270). https://doi.org/10.1109/iCAST1.2018.8751618

[22] Meng, Q. (2025). Human–Computer Interaction and Digital Literacy Promote Educational Learning in Pre-school Children: Mediating Role of Psychological Resilience for Kids’ Mental Well-Being and School Readiness. In International Journal of Human Computer Interaction (Vol. 41, Issue 1, pp. 16–30). https://doi.org/10.1080/10447318.2023.2248432

[23] Muhyi, H. A., Chan, A., Sukoco, I., & Herawaty, T. (2017). The Penta Helix collaboration model in developing centers of flagship industry in Bandung city. Review of Integrative Business and Economics Research, 6(1), 412–417. https://sibresearch.org/uploads/3/4/0/9/34097180/riber_th16-131_412-417.pdf

[24] Nguyen, L. A. T. (2024). Tools for assessing teacher digital literacy: A review. In Journal of Computers in Education (Vol. 11, Issue 1, pp. 305–346). https://doi.org/10.1007/s40692-022-00257-5

[25] Noviana, L. (2025). Analysis of Pentahelix Tourism Village for Ecotourism Development in Batu City, East Java. In International Journal of Sustainable Development and Planning (Vol. 20, Issue 3, pp. 1273–1282). https://doi.org/10.18280/ijsdp.200332

[26] Pool, C. R. (1997). A new digital literacy a conversation with Paul Gilster. Educational Leadership, 55, 6–11. https://scholar.archive.org/work/edyf6uxyrzbthox3ktgyia5xo4/access/wayback/http://www.namodemello.com.br:80/pdf/tendencias/tecnolnocurric.pdf

[27] PricewaterhouseCoopers. (2005). Cities of the future: Global competition, local leadership—Welcome to Foresight For Development. Foresight for Development. https://www.foresightfordevelopment.org/sobipro/54/1040-cities-of-the-future-global-competition-local-leadership

[28] Prior, D. D. (2016). Attitude, digital literacy and self efficacy: Flow-on effects for online learning behavior. In Internet and Higher Education (Vol. 29, pp. 91–97). https://doi.org/10.1016/j.iheduc.2016.01.001

[29] Rahatmawati, I. (2021). Pentahelix management model for the development of cave geo-ecotourism in Ngestirejo, Tanjungsari district, Gunungkidul Regency, DIY, Indonesia. In Aip Conference Proceedings (Vol. 2363). https://doi.org/10.1063/5.0065789

[30] Rahayu, S. W. (2024). A Synergy of Halal Tourism Regulations and Tourism Rights Protection in Aceh: Pentahelix Model. In Samarah (Vol. 8, Issue 3, pp. 1454–1475). https://doi.org/10.22373/sjhk.v8i3.23495

[31] Rathje, S., Roozenbeek, J., Van Bavel, J. J., & van der Linden, S. (2023). Accuracy and social motivations shape judgements of (mis)information. Nature Human Behaviour, 7(6), 892–903. https://doi.org/10.1038/s41562-023-01540-w

[32] Rusmana, R. (2025, July 10). Half a Million Social Assistance Recipients Involved in Online Gambling, UGM Sociologist: Society is the Victim. Universitas Gadjah Mada. https://ugm.ac.id/en/news/half-a-million-social-assistance-recipients-involved-in-online-gambling-ugm-sociologist-society-is-the-victim/

[33] Soemaryani, I. (2016). Pentahelix model to increase tourist visit to bandung and its surrounding areas through human resource development. In Academy of Strategic Management Journal (Vol. 15, pp. 249–259). https://www.researchgate.net/profile/Aldrin-Herwany-2/publication/311927795_Impact_of_coffee_product_labeling_and_packaging_on_purchase_behavior_with_mediating_of_brand_image_and_brand_trust/links/5e252b01458515ba209644d3/Impact-of-coffee-product-labeling-and-packaging-on-purchase-behavior-with-mediating-of-brand-image-and-brand-trust.pdf#page=256

[34] Spante, M. (2018). Digital competence and digital literacy in higher education research: Systematic review of concept use. In Cogent Education (Vol. 5, Issue 1, pp. 1–21). https://doi.org/10.1080/2331186X.2018.1519143

[35] Sturesson, E., Lindmark, A., Nilsson-Roos, M., & Edvinsson, L. (2009). Collaboration for Innovation—A study in the Öresund Region [Master Thesis, Lund University]. https://lup.lub.lu.se/luur/download?func=downloadFile&recordOId=1437850&fileOId=2435467

[36] Subagyo, A. (2021). The implementation of the pentahelix model for the terrorism deradicalization program in Indonesia. In Cogent Social Sciences (Vol. 7, Issue 1). https://doi.org/10.1080/23311886.2021.1964720

[37] Subair, N. (2025). The Dynamics of No One Left Behind: Contestation of Pentahelix Actors in Sustainable Tourism Governance in the Coastal Area of Tanjung Bunga, Indonesia. In Grassroots Journal of Natural Resources (Vol. 8, Issue 1, pp. 1–36). https://doi.org/10.33002/nr2581.6853.080101

[38] Sumarto, R., Sumartono, S., Muluk, M., & Nuh, M. (2020). Penta-Helix and Quintuple-Helix in the management of tourism villages in Yogyakarta City. Australasian Accounting, Business and Finance Journal, 14(1), 46–57. https://www.academia.edu/download/88820001/viewcontent.pdf

[39] Surakarta, S. (2023, August 26). Solo Smart City: Transformasi Teknologi Kota Budaya Menuju Masa Depan. SETDA | Kota Surakarta. https://setda.surakarta.go.id/page/detail_berita/solo-smart-city-transformasi-teknologi-kota-budaya-menuju-masa-depan

[40] Susanti, M. H., & Khu, S. (2025). The 2024 Indonesian presidential election in the accounts of millennials: A case study of Prabowo Subianto and Gibran Rakabuming Raka voters in Semarang, Central Java. Social Sciences & Humanities Open, 11, 101629. https://doi.org/10.1016/j.ssaho.2025.101629

[41] Thomson, A. M., & Perry, J. L. (2006). Collaboration Processes: Inside the Black Box. Public Administration Review, 66(s1), 20–32. https://doi.org/10.1111/j.1540-6210.2006.00663.x

[42] UN. (2015). Transforming our World: The 2030 Agenda for Sustainable Development. United Nations. https://sdgs.un.org/publications/transforming-our-world-2030-agenda-sustainable-development-17981

[43] Widhiasthini, N. W. (2025). Pentahelix model and Tri Hita Karana for Bali sustainable tourism. In Tourism and Hospitality Research. https://doi.org/10.1177/14673584251340046

[44] Zhang, J. (2024). AI in teacher education: Unlocking new dimensions in teaching support, inclusive learning, and digital literacy. In Journal of Computer Assisted Learning (Vol. 40, Issue 4, pp. 1871–1885). https://doi.org/10.1111/jcal.12988

Abstract

References

How to cite