Why collaboration alone is not enough: quadruple helix, innovation ecosystems and digital governance in Philippine cities

Purpose This study aims to examine how quadruple helix (QH) collaboration among government, industry, academia and civil society influences digital transformation in local governments, and whether these effects are contingent on internal absorptive capacity and the strength of external innovation ecosystems. Situated within debates on digital governance and collaborative policymaking, the study investigates the boundary conditions under which multi-sector collaboration translates into improved digital governance in Philippine cities. Design/methodology/approach Grounded in innovation systems theory and open innovation frameworks, the study uses moderated regression analysis using cross-sectional data from 143 Philippine cities drawn from the 2023 cities and municipalities competitiveness index. The analysis tests interaction effects between QH collaboration, internal open innovation (IOI) capacity and external open innovation (EOI) ecosystem strength to assess their joint influence on digital government outcomes. Findings The results indicate that QH collaboration is positively associated with digital government performance; however, this association is highly conditional. At low levels of internal absorptive capacity or external innovation ecosystem strength, QH collaboration is not significantly associated with improvements in digital public services. As IOI and EOI increase, the association between QH collaboration and digital performance becomes substantially stronger, indicating that collaboration functions as an enabling structure rather than a sufficient driver of digital transformation. EOI exerts a significantly stronger moderating effect than IOI, highlighting the particularly important role of ecosystem-level resources and networks in amplifying collaborative governance effects in resource-constrained settings. Research limitations/implications The study relies on cross-sectional data, which limits causal inference and the assessment of dynamic learning effects over time. Future research may use longitudinal or mixed-methods designs to examine how collaborative capacity and innovation ecosystems evolve and interact with regulatory reforms. Practical implications For policymakers and regulators, the findings suggest that investments in collaborative platforms alone are unlikely to yield substantial digital governance gains. Effective digital transformation requires parallel and strategically sequenced investments in internal administrative capacity and, critically, in the development of external innovation ecosystems, including sustained engagement with private firms, universities and civil society actors. Social implications By highlighting the conditions under which collaboration improves digital government performance, the study informs more inclusive and effective digital governance strategies. Strengthening innovation ecosystems can enhance access to digital public services, particularly in cities facing institutional and resource constraints, thereby supporting more equitable digital development. Originality/value This study advances theory by demonstrating that collaborative governance arrangements are conditionally, rather than universally, associated with digital government performance, specifying that QH effects emerge only when complemented by absorptive capacity and ecosystem embeddedness, thereby qualifying assumptions in collaborative governance and smart cities literatures about collaboration as inherently beneficial. It provides rare large-N quantitative evidence on subnational innovation systems in a developing-country context.