Since the formation of the Social Security Agency (Badan Penyelenggara Jaminan Sosial/BPJS) for Healthcare has found the public spotlight rising with its management; including the regulatory body BPJS for Healthcare activities. BPJS for Healthcare external supervisors such as DJSN, OJK, BPK are entities established according to the Law of the Republic of Indonesia 24 Year 2011. However, there are views on neutrality, independence, and supervisor capability. By using Soft System Methodology, this research invites us to understand the problem situation and what efforts should be taken in managing the complexity. This paper will analyze the co-operation with collaborative governance perspective as a cooperative approach in overseeing BPJS for Healthcare. The focus of this paper is in the stage of identifying a series of factors that are crucial within the collaborative process itself, which includes shared understanding as stated by Ansel & Gash (2008) and Emerson & Nabatchi (2015). KEY WORDS Soft system methodology, collaborative governance, external supervisors.The Government of Indonesia seeks to improve health services for Indonesians, as evidenced by Law of Republic of Indonesia No. 24 of 2011 on Social Security Agency (Badan Penyelenggara Jaminan Sosial/BPJS) for Healthcare. Various challenges began to accompany the birth of Law No. 24 of 2011, so that social security can be immediately felt by all the people. Based on observations on the implementation of BPJS for Healthcare, the Health Insurance policy in Indonesia faces problems that can be mapped using three levels of policy level (Bromley, 1989); policy level, the organizational level; and operational level.In Organizational Level, there is factual problem ie the absence of regulation instrument formation of external BPJS for Healthcare Supervisory Board (DJSN, OJK, BPK) as mandated by the Law of Republic of Indonesia No. 24 Year 2011 regarding BPJS Article 39 paragraph (3). In the theory of collaborative governance, the absence of an ideal organizational setting is highlighted as a problem. This is because the organization BPJS is an entity in which all stakeholders in a state involved. Thus, stakeholders in other ways can also formulate, support, and become objects of strategic value management, corporate management, corporate goals (Freeman & Reed, 1983); and be the responsibility of the company for the achievement of their satisfaction (Nuralam, 2016).Collaborative Governance is the governance between institutions both state and nonstate agencies. This concept is born out of a society's view that the government has failed to represent the interests of society, and ultimately society has a bad view on the public sector and the legitimacy of the government (Hetherington, 2006). Osborne and Gaebler (1992) reveals the reason for the emergence of "reinvention" that transforms the "classical" bureaucracies that adopt organizations in the private and business sectors, so that it can change the response of the "classic" style of bureaucracy tends to be slow ...