Varieties of Local Universalism: Sectoral Adaptation of Social Policy in Decentralized South Kalimantan, Indonesia
Keywords:
Social Policy, Universalism, Policy Adaptation, Public Service, Local GovernanceAbstract
This study aims to explain how universalism in social policy is adapted at the local level in South Kalimantan Province, Indonesia, focusing on the circumstances, challenges, and gaps between the ideal of universalism and the realities on the ground. While universalism is increasingly recognized as a key principle supporting equal access, citizenship rights, and social solidarity, its application in fiscally decentralized systems remains underexplored. Using qualitative document analysis of planning documents, regulations, and reports from 13 cities and regencies, the study applies a heuristic analytical framework structured along policy content and policy process, informed by universalism literature, to systematically examine local adaptations across health, education, and social services. The findings reveal that local adaptations lead to different sectoral models: fragmented universalism in health, stratified universalism in education, and categorical universalism in social services, all deviating from the central government’s minimal service standards. These sectoral differences are further exacerbated by territorial fragmentation caused by fiscal decentralization without sufficient equalization mechanisms, which collectively undermine universal coverage. The study concludes that expanding coverage alone is insufficient, as policymakers must strengthen intergovernmental equalization mechanisms and improve sector-specific service quality to bridge the gap between policy goals and actual implementation.
References
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Kumar, M., Naincy, N., & Ranjan, R. (2018). Elementary Education in India in the Era of Universalization of Education: Instrument of Access or the Perpetuation of Inequality. Emerging Economy Studies, 4(2), 218–231. https://doi.org/10.1177/2394901518795073
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Leseman, P. P. M., & Slot, P. L. (2020). Universal versus targeted approaches to prevent early education gaps. The Netherlands as case in point. Zeitschrift Für Erziehungswissenschaft, 23(3), 485–507. https://doi.org/10.1007/s11618-020-00948-8
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Muttaqien, M., Setiyaningsih, H., Aristianti, V., Coleman, H. L. S., Hidayat, M. S., Dhanalvin, E., Siregar, D. R., Mukti, A. G., & Kok, M. O. (2021). Why did informal sector workers stop paying for health insurance in Indonesia? Exploring enrollees’ ability and willingness to pay. PLOS ONE, 16(6), e0252708. https://doi.org/10.1371/journal.pone.0252708
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Anttonen, A., & Sipilä, J. (2008). Universalism: and idea and principle in social policy. Unpublished Document. Http://Www. Nova. No/Asset/3723/1/3723_1. Pdf.
Anttonen, A., & Sipilä, J. (2014). Varieties of universalism. Draft Paper Prepared for the UNRISD Conference, New Directions in Social Policy: Alternatives from and for the Global South, Geneva, 7–8.
Armstrong, C. (2021). Key methods used in qualitative document analysis. OSF Preprints, 1(9), 1–9.
Badan Kebijakan Pembangunan Kesehatan. (2025). Survei Status Gizi Indonesia 2024.
Badan Pusat Statistik Provinsi Kalimantan Selatan. (2025). Indeks pembangunan manusia Provinsi Kalimantan Selatan 2024.
Barrientos, A. (2011). Social protection and poverty. International Journal of Social Welfare, 20(3), 240–249. https://doi.org/10.1111/j.1468-2397.2011.00783.x
Blomqvist, P., & Palme, J. (2020). Universalism in Welfare Policy: The Swedish Case beyond 1990. Social Inclusion, 8(1), 114–123. https://doi.org/10.17645/si.v8i1.2511
Bowen, G. A. (2009). Document analysis as a qualitative research method. Qualitative Research Journal, 9(2), 27–40.
Carey, G., & Crammond, B. (2017). A glossary of policy frameworks: the many forms of ‘universalism’ and policy ‘targeting.’ Journal of Epidemiology and Community Health, 71(3), 303–307. https://doi.org/10.1136/jech-2014-204311
Carey, G., Crammond, B., & De Leeuw, E. (2015). Towards health equity: a framework for the application of proportionate universalism. International Journal for Equity in Health, 14(1), 81. https://doi.org/10.1186/s12939-015-0207-6
Cook, S., Agartan, T., & Kaasch, A. (2022). Forum introduction: Revisiting targeting and universalism. Global Social Policy, 22(3), 426–433. https://doi.org/10.1177/14680181221121249
Cruz-Martínez, G. (2020). Rethinking universalism: Older-age international migrants and social pensions in Latin America and the Caribbean. Global Social Policy, 20(1), 39–59. https://doi.org/10.1177/1468018119873267
Devereux, S. (2017). The right to social protection in Africa: From CCCCDFPRTs to CLSPPPs. RiA Recht in Afrika| Law in Africa| Droit En Afrique, 20(1), 11–32.
Devereux, S., & Sabates-Wheeler, R. (2004). Transformative social protection.
Doucet, A. (2021). Socially Inclusive Parenting Leaves and Parental Benefit Entitlements: Rethinking Care and Work Binaries. Social Inclusion, 9(2), 227–237. https://doi.org/10.17645/si.v9i2.4003
Dumont, D. (2022). Universal basic income as a source of inspiration for the future of social protection systems? A counter-agenda. European Journal of Social Security, 24(4), 299–318. https://doi.org/10.1177/13882627221138599
Fanggidae, V. (2022). Workers’ risk rationales, life experiences and insurance decision: paving Indonesia’s path to universal social security coverage?
Fischer, A. M. (2018). Poverty as Ideology: Rescuing Social Justice from Global Development Agendas. Bloomsbury Publishing.
Fossati, D. (2017). From periphery to centre: Local government and the emergence of universal healthcare in Indonesia. Contemporary Southeast Asia: A Journal of International and Strategic Affairs, 39(1), 178–203.
Francis-Oliviero, F., Cambon, L., Wittwer, J., Marmot, M., & Alla, F. (2020). Theoretical and practical challenges of proportionate universalism: a review. Revista Panamericana de Salud Pública, 44, 1. https://doi.org/10.26633/RPSP.2020.110
Franzoni, J. M., & Sánchez-Ancochea, D. (2016). Achieving universalism in developing countries. Background Paper for Human Development Report, UNDP.
Grosh, M., Leite, P., Wai-Poi, M., & Tesliuc, E. (2022). Revisiting targeting in social assistance: A new look at old dilemmas. World Bank Publications.
Hastings, A., Bailey, N., Gannon, M., Besemer, K., & Bramley, G. (2015). Coping with the Cuts? The Management of the Worst Financial Settlement in Living Memory. Local Government Studies, 41(4), 601–621. https://doi.org/10.1080/03003930.2015.1036987
Indriana, I. S., & Hartarto, R. B. (2024). Reducing Catastrophic Health Costs: The Role of Public Insurance in Eastern Indonesia. Jurnal Ekonomi Pembangunan, 22(2), 253–262. https://doi.org/10.29259/jep.v22i2.23178
Jacques, O., & Noël, A. (2021). Targeting within universalism. Journal of European Social Policy, 31(1), 15–29. https://doi.org/10.1177/0958928720918973
Jahan, S. (2019). Human Development and Universalism: From Ideas to Policies. Journal of Human Development and Capabilities, 20(2), 233–250. https://doi.org/10.1080/19452829.2019.1574726
Kaasch, A., Sumarto, M., & Wilmsen, B. (2018a). Global social policy actors and factors in Indonesian social policy making. UNRISD Working Paper.
Kaasch, A., Sumarto, M., & Wilmsen, B. (2018b). Indonesian social policy development in a context of global social governance. UNRISD Working Paper.
Kabeer, N. (2014). The Politics and Practicalities of Universalism: Towards a Citizen-Centred Perspective on Social Protection. The European Journal of Development Research, 26(3), 338–354. https://doi.org/10.1057/ejdr.2014.10
Kumar, M., Naincy, N., & Ranjan, R. (2018). Elementary Education in India in the Era of Universalization of Education: Instrument of Access or the Perpetuation of Inequality. Emerging Economy Studies, 4(2), 218–231. https://doi.org/10.1177/2394901518795073
Künzler, D., & Nollert, M. (2017). Varieties and drivers of social welfare in sub-Saharan Africa: A critical assessment of current research. Sozialpolitik.Ch, (2/2017). https://doi.org/10.18753/2297-8224-94
Leseman, P. P. M., & Slot, P. L. (2020). Universal versus targeted approaches to prevent early education gaps. The Netherlands as case in point. Zeitschrift Für Erziehungswissenschaft, 23(3), 485–507. https://doi.org/10.1007/s11618-020-00948-8
Leubolt, B., Fischer, K., & Saha, D. (2014). Are targeting and universalism complementary or competing paradigms in social policy? Insights from Brazil India and South Africa. International Journal of Labour Research, 6(1), 75.
Li, T. (2017). Financial Decentralization and Geographical Stratification of Access to Higher Education in China: The Case of Shanghai. Chinese Sociological Review, 49(3), 212–238. https://doi.org/10.1080/21620555.2016.1271701
Mackenzie, M., Hastings, A., Babbel, B., Simpson, S., & Watt, G. (2017). Proportionate Universalism as a Route to Mitigating Health Inequalities? Exploring Political, Policy and Practice Uncertainties in Times of Austerity. In Inequalities in the UK (pp. 217–231). Emerald Publishing Limited. https://doi.org/10.1108/978-1-78714-479-820171010
Maulana, N., Soewondo, P., Adani, N., Limasalle, P., & Pattnaik, A. (2022). How Jaminan Kesehatan Nasional (JKN) coverage influences out-of-pocket (OOP) payments by vulnerable populations in Indonesia. PLOS Global Public Health, 2(7), e0000203. https://doi.org/10.1371/journal.pgph.0000203
Mkandawire, T. (2004). Social Policy in a Development Context (T. Mkandawire, Ed.). Palgrave Macmillan UK. https://doi.org/10.1057/9780230523975
Mkandawire, T. (2005). Targeting and universalism in poverty reduction.
Morgan, H. (2022). Conducting a Qualitative Document Analysis. The Qualitative Report. https://doi.org/10.46743/2160-3715/2022.5044
Muttaqien, M., Setiyaningsih, H., Aristianti, V., Coleman, H. L. S., Hidayat, M. S., Dhanalvin, E., Siregar, D. R., Mukti, A. G., & Kok, M. O. (2021). Why did informal sector workers stop paying for health insurance in Indonesia? Exploring enrollees’ ability and willingness to pay. PLOS ONE, 16(6), e0252708. https://doi.org/10.1371/journal.pone.0252708
Oppel, A. (2022). Social protection floor gaps and pandemic relief measures: a case for universalism? Exploring scalability through targeted versus universalist approaches. https://doi.org/10.35188/UNU-WIDER/2022/260-7
Roca, T., & Ferrer, H. (2016). Resilience to crisis through social protection: Can we build the case? (Vol. 2016). UNU-WIDER. https://doi.org/10.35188/UNU-WIDER/2016/139-0
Rolleston, C., Oketch, M., Tiruneh, D. T., & Rossiter, J. (2025). Rising access and falling outcomes: educational change and the GEQIP reforms in Ethiopia. Journal of International Cooperation in Education, 27(2), 203–222. https://doi.org/10.1108/JICE-03-2024-0012
Salinas, P., & Solé-Ollé, A. (2018). Partial fiscal decentralization reforms and educational outcomes: A difference-in-differences analysis for Spain. Journal of Urban Economics, 107, 31–46. https://doi.org/10.1016/j.jue.2018.08.003
Suharto, E. (2009). Development of Social Welfare in Indonesia. International Conference on Building Capacity and Policy Networking for Effective Welfare Development, Jakarta, Indonesia.
Susilo, D., Wulandari, L. P. L., Sukmayeti, E., Asante, A., Jan, S., Thabrany, H., Tangcharoensathien, V., Wiseman, V., & Liverani, M. (2025). Can Indonesia achieve universal health coverage? Organisational and financing challenges in implementing the national health insurance system. SSM - Health Systems, 5, 100138. https://doi.org/10.1016/j.ssmhs.2025.100138
Thrupp, M., Seppänen, P., Kauko, J., & Kosunen, S. (2023). Finland’s famous education system: Unvarnished insights into Finnish schooling. Springer.
Trebilcock, M. (2016). Between universalism and relativism: Reflections on the evolution of law and development studies. University of Toronto Law Journal, 66(3), 330–352. https://doi.org/10.3138/UTLJ.3622
Van Lancker, W., & Van Mechelen, N. (2015). Universalism under siege? Exploring the association between targeting, child benefits and child poverty across 26 countries. Social Science Research, 50, 60–75. https://doi.org/10.1016/j.ssresearch.2014.11.012
Vogel, B., & Henstra, D. (2015). Studying local climate adaptation: A heuristic research framework for comparative policy analysis. Global Environmental Change, 31, 110–120. https://doi.org/10.1016/j.gloenvcha.2015.01.001
Wilmsen, B., Kaasch, A., & Sumarto, M. (2017). The development of Indonesian social policy in the context of overseas development aid. UNRISD Working Paper.
Witter, S., Bertone, M. P., Baral, S., Gautam, G., Pratap, S. K. C., Pholpark, A., Saputri, N. S., Darmawan, A. B., Toyamah, N., Fillaili, R., de Oliveira Cruz, V., & Sparkes, S. (2025). Political economy analysis of health financing reforms in times of crisis: findings from three case studies in south-east Asia. International Journal for Equity in Health, 24(1), 34. https://doi.org/10.1186/s12939-025-02395-5
Zhang, Y., Dong, D., Xu, L., Miao, Z., Mao, W., Sloan, F., & Tang, S. (2021). Ten-year impacts of China’s rural health scheme: lessons for universal health coverage. BMJ Global Health, 6(4), e003714. https://doi.org/10.1136/bmjgh-2020-003714
Published
2026-11-06
How to Cite
Rahman, M. I., Sa’roni, C., Nur, M. A., & Saleh, M. (2026). Varieties of Local Universalism: Sectoral Adaptation of Social Policy in Decentralized South Kalimantan, Indonesia. Journal of Social Development Studies, 7(2). Retrieved from https://journal.ugm.ac.id/v3/JSDS/article/view/30825
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