Local Governments Face a Common Challenge
Village institutions play a critical role in Indonesia's public administration. Community leaders, Neighborhood Association (RT) heads, Citizens' Association (RW) heads, Village Consultative Body (BPD) members, Community Empowerment Institutions (LPM), and Youth Organizations (Karang Taruna) help maintain public services, social cohesion, and local development.
Despite their responsibilities, many of these workers have historically lacked employment social security protection because they are not classified as formal civil servants. As a result, injuries or deaths occurring while performing community duties often created financial hardship for their families.
To address this gap, the Mojokerto Regency Government introduced Regent Regulation No. 36 of 2022, transferring the responsibility for Employment Social Security (BPJS Ketenagakerjaan) premiums from village budgets (APBDes) to the Regional Revenue and Expenditure Budget (APBD). This financing innovation enabled every eligible village ecosystem worker to receive protection without imposing additional costs on village administrations.
How the Research Was Conducted
The research used a descriptive qualitative design to examine how the policy was implemented and why it achieved widespread acceptance. Data were collected through in-depth interviews, field observations, and document analysis involving officials from the Community and Village Empowerment Office (DPMD), BPJS Ketenagakerjaan Mojokerto Branch, and representatives of village institutions.
To evaluate the program, the researchers applied Everett M. Rogers' Diffusion of Innovations Theory, which explains why new public policies are accepted or rejected based on five characteristics: relative advantage, compatibility, complexity, trialability, and observability.
Full Coverage Across Mojokerto Regency
The study reports that the program achieved 100 percent participation across all 299 villages in Mojokerto Regency, covering 15,587 village ecosystem workers.
The participant distribution included:
- 6,892 Neighborhood Association (RT) leaders (44.22%)
- 3,043 Youth Organization (Karang Taruna) members (19.52%)
- 1,997 Village Consultative Body (BPD) members (12.82%)
- 1,874 Citizens' Association (RW) leaders (12.02%)
- 1,781 Community Empowerment Institution (LPM) members (11.43%)
The research also found that all 18 sub-districts in Mojokerto reached complete BPJS Ketenagakerjaan membership coverage, making the program one of the most comprehensive village-level employment social security initiatives documented in Indonesia.
Why the Program Was Successfully Adopted
According to Wahyu Priyo Utomo and colleagues from Universitas 17 Agustus 1945 Surabaya, the program spread successfully because it demonstrated all five characteristics of an effective public-sector innovation.
The first factor was clear public benefit. Since the regional government fully financed BPJS Ketenagakerjaan premiums through the APBD, participants received employment protection without paying monthly contributions themselves. Workers became eligible for Work Accident Insurance (JKK) covering medical treatment and Death Benefits (JKM) worth IDR 42 million for eligible beneficiaries, providing meaningful financial security for rural families.
The second factor was policy compatibility. The researchers found that the program aligned well with Indonesia's culture of gotong royong (mutual cooperation) while also complying with national, provincial, and local regulations governing employment social security. This combination strengthened public trust and institutional support.
A third factor involved administrative simplicity. Registration was coordinated collectively through village governments and the Community and Village Empowerment Office, reducing paperwork for individual participants. Although some bureaucratic challenges remained, the overall enrollment process was considered accessible and practical.
The researchers also identified trialability as an important contributor to success. Early implementation allowed government agencies to test data verification, payment systems, and administrative procedures before expanding the program to all villages. Successful benefit claims further demonstrated that the policy worked in practice rather than remaining a theoretical government initiative.
Finally, observability accelerated adoption. BPJS membership cards, successful compensation payments, and positive experiences shared through village meetings and social media made the program highly visible. As more communities observed tangible benefits, confidence in the initiative continued to grow.
Remaining Challenges
Although the program achieved universal participation, the study identifies several operational challenges.
Updating participant records remains relatively slow because changes in village leadership require multiple administrative approvals before new members can officially receive protection. The researchers also note occasional delays in premium payments from the regional budget and limited understanding of claim procedures among some village officials.
To improve long-term effectiveness, the authors recommend developing an integrated real-time digital data management system, accelerating premium disbursement procedures, and expanding community education on BPJS Ketenagakerjaan claim processes. These improvements would help ensure that eligible participants receive uninterrupted protection whenever workplace accidents occur.
Implications for Public Policy
The Mojokerto experience demonstrates that local governments can expand social protection through innovative financing rather than increasing financial burdens on villages. By shifting premium payments to the regional budget, the government created an inclusive protection system for frontline community workers who play an essential role in village governance.
As ethically summarized from the study, Wahyu Priyo Utomo, Dr. Endang Indartuti, and Dr. Rachmawati Novaria of Universitas 17 Agustus 1945 Surabaya conclude that the program's long-term sustainability depends not only on broad participation but also on digital governance, efficient administration, and continuous public education. Their findings suggest that Mojokerto's approach could serve as a practical policy model for other Indonesian regions seeking to strengthen employment social security for village-level workers.
Author Profiles
Wahyu Priyo Utomo is a researcher in the Master of Public Administration Program at Universitas 17 Agustus 1945 Surabaya, specializing in public administration, local government innovation, and public policy.
Endang Indartuti is a lecturer in the Master of Public Administration Program at Universitas 17 Agustus 1945 Surabaya. Her expertise includes public service innovation, local governance, and administrative reform.
Rachmawati Novaria is an academic at Universitas 17 Agustus 1945 Surabaya whose research focuses on public administration, governance, and public policy development.
Source
Utomo, W. P., Indartuti, E., & Novaria, R. (2026). Employment Social Security Protection Program for Village Ecosystem Workers as a Local Government Innovation in Mojokerto Regency. International Journal of Sustainability in Research (IJSR), Vol. 4, No. 4, pp. 273–286. DOI: https://doi.org/10.59890/ijsr.v4i4.5.
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