Implementation of the Job Loss Guarantee Program at BPJS Ketenagakerjaan Kediri Branch: A Legal Analysis in the Perspective of Ministerial Regulation No. 2 of 2025

The Job Loss Guarantee Program (Jaminan Kehilangan Pekerjaan/JKP), introduced under Law No. 11 of 2020 on Job Creation and recently reformed through Ministerial Regulation No. 2 of 2025, constitutes a central pillar of Indonesia's employment social security architecture. This study examines the implementation of the JKP program at the BPJS Ketenagakerjaan Kediri Branch Office and identifies the principal barriers encountered therein, analyzed through the perspective of Ministerial Regulation No. 2 of 2025. Employing a juridical-empirical approach, the research integrates normative legal analysis with qualitative field data collected through semi-structured interviews, direct observation, and documentary review at the Kediri branch. The findings demonstrate that while JKP implementation is generally functional in its cash benefit disbursement dimension evidenced by a national growth in claims from 9,794 cases (IDR 44.5 billion) in 2022 to 250,594 cases (IDR 378.8 billion) in 2024. three persistent barriers constrain its reach and effectiveness: (1) uneven dissemination of program information despite continuous multi-channel socialization efforts; (2) insufficient integration of the SIAPkerja digital platform, hindering timely claim submissions; and (3) delays in employer reporting of employment termination to the Regional Manpower Office, prolonging participant verification and creating lapse risk. The regulatory transition to Ministerial Regulation No. 2 of 2025 which introduces a flat 60% wage replacement rate, an extended six-month claim window, and simplified contribution eligibility requirements represents a substantively positive reform addressing documented deficiencies under the prior regime. Applying Edwards III's Implementation Theory and Legal Change Theory as synthesized from Roscoe Pound's sociological jurisprudence and Friedrich Karl von Savigny's historical school, this study offers four policy recommendations: optimizing JKP socialization for workers and employers; strengthening public education on the new regulatory provisions; deepening digital system integration across the JMO application, SIAPkerja platform, and employer administrative systems; and instituting continuous government evaluation of Ministerial Regulation No. 2 of 2025's implementation. This study contributes the first empirical baseline analysis of JKP under the 2025 regulatory framework and advances the application of interdisciplinary legal-policy frameworks in Indonesian social security scholarship.

Job Loss Guarantee; JKP; BPJS Ketenagakerjaan; Ministerial Regulation No. 2 of 2025; social security; labor protection; Indonesia

1. Barrio, A. (2024). Unemployment insurance for platform workers: Challenges and approaches from a comparative perspective. European Journal of Social Security, 26(2), 251–265. https://doi.org/10.1177/13882627241267989 [Google Scholar] [Crossref]

2. Badan Penyelenggara Jaminan Sosial Ketenagakerjaan. (2024). Laporan Keuangan dan Data Klaim JKP BPJS Ketenagakerjaan 2022–2024. BPJS Ketenagakerjaan. [Google Scholar] [Crossref]

3. Badan Pusat Statistik (BPS). (2023). Keadaan Ketenagakerjaan Indonesia Agustus 2023. Badan Pusat Statistik. [Google Scholar] [Crossref]

4. Cahyono, A. H. (2022). Closing the gaps: Expanding Jaminan Kehilangan Pekerjaan coverage to Indonesia's informal workers. Working Paper, Institute for Labour Studies. [Google Scholar] [Crossref]

5. Edwards III, G. C. (1980). Implementing public policy. Congressional Quarterly Press. [Google Scholar] [Crossref]

6. Eriksen, T. (2004). Social security. In Encyclopedia of Actuarial Science (pp. 1–4). Wiley. https://doi.org/10.1002/9780470012505.tas020 [Google Scholar] [Crossref]

7. Faisal, A. (2025). Peningkatan implementasi jaminan kehilangan pekerjaan dari program Badan Penyelenggara Jaminan Sosial Ketenagakerjaan. Jurnal Hukum dan Ketenagakerjaan Indonesia, 7(1), 45–62. [Google Scholar] [Crossref]

8. Gunawan, H. (2025). Legal reconstruction of the Omnibus Law on job creation for justice in enhancing investment and Indonesia's competitiveness. Jurnal Hukum Unissula, 41(2), 253–276. https://doi.org/10.26532/jh.v41i2.44442 [Google Scholar] [Crossref]

9. Izzati, N. R. (2022). Deregulation in job creation law: The future of Indonesian labor law. Padjadjaran Jurnal Ilmu Hukum, 9(2), 191–209. https://doi.org/10.22304/pjih.v9n2.a3 [Google Scholar] [Crossref]

10. Mahy, P. (2022). Indonesia's Omnibus Law on job creation: Legal hierarchy and responses to judicial review in the labour cluster of amendments. Asian Journal of Comparative Law, 17(1), 51–75. https://doi.org/10.1017/asjcl.2022.7 [Google Scholar] [Crossref]

11. Meder, S. (2023). Savigny, Friedrich Carl von. In Studies in the History of Law and Justice (Vol. 23, pp. 291–299). https://doi.org/10.1007/978-3-031-19546-4_36 [Google Scholar] [Crossref]

12. Murphy, J. (2019). The historical development of Indonesian social security. Asian Journal of Social Science, 47(2), 255–279. https://doi.org/10.1163/15685314-04702005 [Google Scholar] [Crossref]

13. Nugroho, A., Ronaboyd, I., Rusdiana, E., Prasetio, D. E., & Zulhuda, S. (2024). The impact of labor law reform on Indonesian workers: A comparative study after the Job Creation Law. Lex Scientia Law Review, 8(1), 65–106. https://doi.org/10.15294/LSLR.V8I1.14064 [Google Scholar] [Crossref]

14. Pound, R. (2017). An introduction to the philosophy of law. Routledge. https://doi.org/10.4324/9781351288880 [Google Scholar] [Crossref]

15. Pound, R., & Treviño, A. J. (2017). Social control through law. Routledge. https://doi.org/10.4324/9781315129495 [Google Scholar] [Crossref]

16. Pratiwi, N. P. (2021). Tinjauan yuridis perlindungan hukum terhadap pekerja yang kehilangan pekerjaan berdasarkan PP No. 37 Tahun 2021 tentang penyelenggaraan program JKP [Undergraduate thesis]. Faculty of Law. [Google Scholar] [Crossref]

17. Republic of Indonesia. (2004). Undang-Undang Nomor 40 Tahun 2004 tentang Sistem Jaminan Sosial Nasional [Law No. 40 of 2004 on the National Social Security System]. State Secretariat. [Google Scholar] [Crossref]

18. Republic of Indonesia. (2011). Undang-Undang Nomor 24 Tahun 2011 tentang Badan Penyelenggara Jaminan Sosial [Law No. 24 of 2011 on Social Security Organizing Bodies]. State Secretariat. [Google Scholar] [Crossref]

19. Republic of Indonesia. (2020). Undang-Undang Nomor 11 Tahun 2020 tentang Cipta Kerja [Law No. 11 of 2020 on Job Creation]. State Secretariat. [Google Scholar] [Crossref]

20. Republic of Indonesia. (2021). Peraturan Pemerintah Nomor 37 Tahun 2021 tentang Penyelenggaraan Program Jaminan Kehilangan Pekerjaan [Government Regulation No. 37 of 2021 on the Organization of the Job Loss Guarantee Program]. State Secretariat. [Google Scholar] [Crossref]

21. Republic of Indonesia. (2021). Peraturan Menteri Ketenagakerjaan Nomor 15 Tahun 2021 tentang Tata Cara Pemberian Manfaat Jaminan Kehilangan Pekerjaan [Ministerial Regulation No. 15 of 2021 on Procedures for Granting Job Loss Guarantee Benefits]. Ministry of Manpower. [Google Scholar] [Crossref]

22. Republic of Indonesia. (2023). Undang-Undang Nomor 6 Tahun 2023 tentang Penetapan Peraturan Pemerintah Pengganti Undang-Undang Nomor 2 Tahun 2022 tentang Cipta Kerja [Law No. 6 of 2023]. State Secretariat. [Google Scholar] [Crossref]

23. Republic of Indonesia. (2025). Peraturan Pemerintah Nomor 6 Tahun 2025 tentang Perubahan atas Peraturan Pemerintah Nomor 37 Tahun 2021 tentang Penyelenggaraan Program Jaminan Kehilangan Pekerjaan [Government Regulation No. 6 of 2025]. State Secretariat. [Google Scholar] [Crossref]

24. Republic of Indonesia. (2025). Peraturan Menteri Ketenagakerjaan Nomor 2 Tahun 2025 tentang Perubahan atas Peraturan Menteri Ketenagakerjaan Nomor 15 Tahun 2021 tentang Tata Cara Pemberian Manfaat Jaminan Kehilangan Pekerjaan [Ministerial Regulation No. 2 of 2025]. Ministry of Manpower. [Google Scholar] [Crossref]

25. Saleh, C., & Umiyati, S. (2020). Quality of public services in healthcare sector: A study of BPJS inpatient poly facility in regional public hospital Surabaya. International Journal of Innovation, Creativity and Change, 13(4), 979–988. [Google Scholar] [Crossref]

26. Santoso, B., & Pati, U. K. (2024). Balancing corporate rescue and workers' protection in pandemic crises: Lessons from selected European countries. Law Reform: Jurnal Pembaharuan Hukum, 20(2), 250–277. https://doi.org/10.14710/lr.v20i2.62885 [Google Scholar] [Crossref]

27. Shabrina, D. F. (2025). Konstitusionalitas jaminan kehilangan pekerjaan dalam perlindungan hukum bagi pekerja yang mengalami pemutusan hubungan kerja [Thesis]. Faculty of Law. [Google Scholar] [Crossref]

28. Simbolon, H. M. (2022). JKP dampak Covid-19 dalam PP RI No. 37 Tahun 2021 tentang program penyelenggaraan JKP perspektif maqasid al-syariah [Thesis]. Faculty of Sharia and Law. [Google Scholar] [Crossref]

29. Soekanto, S. (2008). Faktor-faktor yang mempengaruhi penegakan hukum [Factors influencing law enforcement] (8th ed.). RajaGrafindo Persada. [Google Scholar] [Crossref]

30. Sparrow, R., Dartanto, T., & Hartwig, R. (2020). Indonesia under the new normal: Challenges and the way ahead. Bulletin of Indonesian Economic Studies, 56(3), 269–299. https://doi.org/10.1080/00074918.2020.1854079 [Google Scholar] [Crossref]

31. Susanti, G., Iva, M. I. N., Yani, A. A., & Hidayat, A. R. (2022). Assessing the national health insurance system: A study of the implementation of health insurance policy in Indonesia. Public Policy and Administration, 21(4), 511–525. https://doi.org/10.13165/VPA-22-21-4-13 [Google Scholar] [Crossref]

32. Tjokro, G., Zaenuri, Z., Yanto, H., Rokhman, F., Rajagukguk, A., & Sanni, T. (2025). Reforming legal frameworks for human capital: Digital strategies driving Industry 5.0 and sustainability. Journal of Law and Legal Reform, 6(3), 45–94. https://doi.org/10.15294/jllr.v6i3.22645 [Google Scholar] [Crossref]

33. Wijayati, R. A., & Sinaga, H. S. R. (2024). Implementation of Indonesian government regulations concerning the Job Loss Guarantee Program in the Province of the Special Capital Region of Jakarta. Khazanah Hukum, 6(1), 98–112. https://doi.org/10.15575/kh.v6i1.34235 [Google Scholar] [Crossref]

34. Zen, F., & Dita, A. (2018). Social protection system in Indonesia: An assessment. In Social Protection Goals in East Asia (pp. 98–132). Routledge. https://doi.org/10.4324/9781315232348 [Google Scholar] [Crossref]

• The Impact of Ownership Structure on Dividend Payout Policy of Listed Plantation Companies in Sri Lanka
• Urban Sustainability in North-East India: A Study through the lens of NER-SDG index
• Performance Assessment of Predictive Forecasting Techniques for Enhancing Hospital Supply Chain Efficiency in Healthcare Logistics
• The Fractured Self in Julian Barnes' Postmodern Fiction: Identity Crisis and Deflation in Metroland and the Sense of an Ending
• Impact of Flood on the Employment, Labour Productivity and Migration of Agricultural Labour in North Bihar