Bureaucratic Fragmentation and Externalities of the Free Nutritious Meals Program (MBG): Integration of the Edward III Model in Surabaya

The Free Nutritious Meals Program (MBG) is a national strategic intervention; however, implementing it in densely populated urban areas such as Surabaya faces complex operational and bureaucratic challenges. This study analyzes the effectiveness of implementing the MBG policy in Surabaya using George C. Edward III’s implementation model. The study used a descriptive qualitative approach, combining the Edward III macro-policy evaluation framework with the Visual Comstock micro-measurement instrument, and analyzed data using NVivo 15. The study involved a multi-stakeholder group, including the National Nutrition Agency (BGN), the city government (Pemkot), catering vendors, workers from the Nutrition Education Service Unit (SPPG), school principals, teachers, and students, as well as observations of food waste. The research findings reveal disparities across the four dimensions of implementation: the Communication dimension, where role ambiguity was identified, with teachers burdened with the task of disseminating technical information without government support for standardised media; the Resources dimension, where logistical constraints caused by urban traffic congestion reduced the quality and suitability for consumption during distribution, leading to high levels of food waste; particularly in vegetable-based dishes; the Disposition dimension: frontline practitioners (teachers) demonstrated full support for pedagogical aspects, yet were cut off from information regarding budget management; and finally, the Bureaucratic Structure dimension: fragmentation was found in the management of packaging waste residues and quality control. Strengthening the tripartite oversight model involving the BGN, the city government, and schools is crucial for the success of the MBG program. Keywords: Edward III implementation model, Food waste, Free nutritious meals (MBG); Visual comstock.