Cow Manure Management Policy Innovation Based on Co-Creation and Mass Collaboration for Sustainable Environmental Governance: A Case Study of Kuningan Regency, Indonesia

The rising population of beef and dairy cattle in Kuningan Regency, Indonesia, has generated a large volume of manure that threatens environmental quality when it is not managed properly. Although national and regional regulations already govern livestock waste, implementation at the village level remains weak, producing a persistent gap between policy on paper and practice on the ground. This study aims to describe and assess a participatory model of cow manure management policy built on co-creation and mass collaboration, and to examine how such a model can support a friendly and sustainable environment. A descriptive qualitative approach was used, and data were collected through in-depth interviews with multiple actors, field observations, and documentation studies of local regulations in Cipari Village, Cigugur District. The findings indicate that the co-creation phase established a space for equal dialogue among stakeholders, reduced sociological resistance, and produced jointly agreed standard operating procedures (SOPs) for waste management and communal pen zoning. The subsequent data-based mass collaboration strategy mobilised cross-sector support from non-governmental organisations, student volunteers, and the private sector through a blended finance scheme, enabling the construction of a village composting house and a communal biogas reactor. This synergy helped establish a circular economy ecosystem that converts waste into an economic asset, reduces air and river pollution, and supports regional food security consistent with Kuningan Regency Regulation No. 5 of 2022. Remaining obstacles include inconsistent participation among some senior farmers and the absence of a real-time digital monitoring platform. The study suggests that policy innovation grounded in co-creation and mass collaboration can shift the role of local government from a single provider (rowing) toward a network coordinator (steering), and offers a transferable, though context-dependent, reference for ecological governance in comparable regions.

policy innovation; co-creation; mass collaboration; circular economy; environmental sustainability

1. Anggraeni, E. (2021). Strategi pemerintah desa dalam penanganan pencemaran limbah peternakan sapi. Jurnal Administrasi Publik, 15(2), 45–56. [Google Scholar] [Crossref]

2. Ansell, C., & Torfing, J. (2021). Public governance as co-creation: A strategy for revitalizing the public sector and rejuvenating democracy. Cambridge University Press. [Google Scholar] [Crossref]

3. Ansell, C., Sørensen, E., & Torfing, J. (2023). The democratic quality of co-creation: A theoretical exploration. Public Policy and Administration, 39(2), 218–240. https://doi.org/10.1177/09520767231170715 [Google Scholar] [Crossref]

4. Badan Perencanaan Pembangunan Daerah Kabupaten Kuningan. (2022). Peraturan Daerah Kabupaten Kuningan Nomor 5 Tahun 2022 tentang Pembangunan Pangan Daerah. Pemerintah Kabupaten Kuningan. [Google Scholar] [Crossref]

5. Badan Pusat Statistik Kabupaten Kuningan. (2025). Kabupaten Kuningan dalam angka 2025. BPS Kabupaten Kuningan. [Google Scholar] [Crossref]

6. Bason, C. (2015). Design for policy. Routledge. [Google Scholar] [Crossref]

7. Detik Jabar. (2025, July 24). Biang kerok peternakan sapi di Lembang cemari Sungai Cikapundung. Detik.com. https://www.detik.com/jabar/berita/d-8026532/biang-kerok-peternakan-sapi-di-lembang-cemari-sungai-cikapundung [Google Scholar] [Crossref]

8. Dinas Lingkungan Hidup Kabupaten Kuningan. (2014). Peraturan Daerah Kabupaten Kuningan Nomor 7 Tahun 2014 tentang Perlindungan dan Pengelolaan Lingkungan Hidup Daerah. Pemerintah Kabupaten Kuningan. [Google Scholar] [Crossref]

9. Emerson, K., Nabatchi, T., & Balogh, S. (2012). An integrative framework for collaborative governance. Journal of Public Administration Research and Theory, 22(1), 1–29. https://doi.org/10.1093/jopart/mur011 [Google Scholar] [Crossref]

10. Handayani, R. (2024). Pemanfaatan limbah kotoran sapi menjadi pupuk organik sebagai upaya pengelolaan sampah organik di peternakan. Jurnal Agribisnis, 19(1), 77–89. [Google Scholar] [Crossref]

11. Lestari, W. D., Edahwati, L., & Harya, G. I. (2024). Pelatihan pengoperasian alat penghancur dan pengaduk kotoran hewan (kohe) terintegrasi di CV Tiga Lima Jaya Desa Jajar Gumregah. Jurnal Abdi Insani, 11(4), 1–10. [Google Scholar] [Crossref]

12. Kuningan Mass. (2024, May 2). Kotoran hewan ternak di Kecamatan Cigugur capai 248 ton per hari. Kuningan Mass. https://kuninganmass.com/kotoran-hewan-ternak-di-kecamatan-cigugur-capai-248-ton-per-hari/ [Google Scholar] [Crossref]

13. Miles, M. B., & Huberman, A. M. (2002). Analisis data kualitatif: Buku sumber tentang metode-metode baru. UI Press. [Google Scholar] [Crossref]

14. Muliawaty, L., Ruyani, N. R., & Nasuha, C. N. (2024). Animal waste policy innovation. Publica: Jurnal Ilmu Administrasi Negara, 17(1), 283–305. [Google Scholar] [Crossref]

15. Oyedun, A. O., Salami, H. A., Odewole, M. M., Lawal, L. O., Akpenpuun, T. D., & Adebayo, H. O. (2025). A review of emerging trends in circular manure management and the role of digital solutions. Journal of the Saudi Society of Agricultural Sciences, 24(4), 21. https://doi.org/10.1007/s44447-025-00029-4 [Google Scholar] [Crossref]

16. Prabowo, H., Suwanda, D., & Syafri, W. (2022). Inovasi pelayanan pada organisasi publik. Remaja Rosdakarya. [Google Scholar] [Crossref]

17. Ruyani, N. R., Susilowati, E., Muliawaty, L., Nasuha, C. N., & Wigati, R. (2025). Sinergitas kelembagaan antar UPTD dalam penanganan dan pengelolaan limbah kotoran hewan: Studi kasus di Kelurahan Cipari Kabupaten Kuningan. Kebijakan: Jurnal Ilmu Administrasi, 16(2), 1–15. [Google Scholar] [Crossref]

18. Sugiyono. (2001). Metode penelitian administrasi. Alfabeta. [Google Scholar] [Crossref]

19. Sururi, A. (2016). Inovasi kebijakan publik (tinjauan konseptual dan empiris). Jurnal Sawala, 4(3), 1–14. [Google Scholar] [Crossref]

20. Sururi, A. (2017). Inovasi kebijakan dalam perspektif administrasi publik menuju terwujudnya good public policy governance. Spirit Publik: Jurnal Administrasi Publik, 12(2), 14–31. [Google Scholar] [Crossref]

21. Tapscott, D., & Williams, A. D. (2010). Innovating the 21st-century university: It's time! EDUCAUSE Review, 45(1), 16–29. [Google Scholar] [Crossref]

22. Torfing, J., Sørensen, E., & Røiseland, A. (2019). Transforming the public sector into an arena for co-creation: Barriers, drivers, benefits, and ways forward. Administration & Society, 51(5), 795–825. https://doi.org/10.1177/0095399716680057 [Google Scholar] [Crossref]

23. Tyran, J.-R., & Sausgruber, R. (2003). The diffusion of policy innovations: An experimental investigation (Discussion Paper No. 2003-14). University of St. Gallen, Department of Economics. [Google Scholar] [Crossref]

24. Undang-Undang Nomor 32 Tahun 2009 tentang Perlindungan dan Pengelolaan Lingkungan Hidup [Law No. 32 of 2009 on Environmental Protection and Management]. (2009). [Google Scholar] [Crossref]

25. Wahab, S. A. (2012). Analisis kebijakan: Dari formulasi ke implementasi kebijakan negara. Bumi Aksara. [Google Scholar] [Crossref]

26. Wicaksono, H., Sofian, E. A., Huda, N., Pujiwati, R., & Pradhani, F. A. (2024). Peningkatan kapasitas masyarakat dalam pengelolaan limbah kotoran hewan di Desa Galih. Jurnal Kreativitas dan Inovasi (Kreanova), 4(3), 79–85. [Google Scholar] [Crossref]

• The Indirect Effect of Liquidity and Activity on Company Value with Profitability as an Intervening Variable
• Effect of Financial Skills, Knowledge, and Attitude on The Financial Behaviour of Clergy
• A Decade of Review: Trends in Budget Execution and Financial Performance of Development Projects in Tanzania (2014/15-2023/24)
• The Influence of Pre-Project Planning on the Budget Absorption Rate of Public Funded Infrastructure Projects in Kenya a Comparative Case Study of Narok, Migori, and Kisii County Government Projects
• Assessment of Factors Influencing Digital Transformation in Hotels’ Facility Management in Abuja Metropolis, Nigeria