Bureaucratic Capacity, Spatial Order, and Urban Image: Civil Servants and the Transformation of the Royal Baroe–Pasar Lama–China Town Area in Serang City

Abstract

This article analyzes how civil servants contribute to spatial order and urban image formation in the Royal Baroe–Pasar Lama–China Town area of Serang City. The study is grounded in the assumption that urban restructuring is not solely a matter of physical improvement, but also a political and administrative process through which local government constructs legitimacy, coordinates actors, and shapes public perception. Using a descriptive qualitative method, this research examines area transformation through policy narratives, institutional arrangements, public reports, and documented developments related to the revitalization of Royal Baroe and its surrounding corridor. The findings show that civil servants played four major roles. First, they acted as administrative coordinators who aligned traffic regulation, trader arrangement, public order, and event organization. Second, they served as symbolic agents who helped produce a more attractive image of the city through cleanliness, visual improvement, and public activation. Third, they operated as institutional connectors by encouraging a more integrated management model for the area. Fourth, they facilitated the relationship between local economic actors, relocated traders, visitors, and investment interest. Based on these findings, the article argues that the success of urban restructuring in secondary cities depends on the capacity of civil servants to maintain continuity between policy design, public communication, and area management. The study recommends stronger place-based governance, sustained support for small businesses, and institutional consolidation to ensure that the improved image of the area is socially inclusive and administratively sustainable.