Implementation of universal welfare policies in the Global South: a case study of Indonesia’s free nutritious meal program

Introduction Universal welfare policies are increasingly adopted by countries in the Global South as instruments for human development and state legitimacy. However, uniform policy designs often encounter diverse social, economic, institutional, and geographical conditions. This study examines the implementation of Indonesia’s Free Nutritious Meal Program (Program Makan Bergizi Gratis, MBG) in North Sulawesi Province, focusing on the interaction between national policy content and local implementation contexts. Methods This study employed a qualitative case study design. Data were collected between June and August 2025 through in-depth interviews with eight key informants, field observations in Manado City, Minahasa Regency, Sangihe Islands Regency, and Talaud Islands Regency, and analysis of relevant policy documents and official reports. Results The findings show that MBG implementation is characterized by administratively driven targeting, asymmetrical power relations among implementing actors, and limited adaptability to local social and geographical conditions. The interaction between a universal policy design and heterogeneous implementation contexts produces variations in program delivery and creates risks of social exclusion, particularly for remote island regions and vulnerable population groups. Discussion The findings demonstrate that universal welfare policies do not automatically produce distributive justice. Effective implementation requires closer alignment between national policy content and local implementation contexts, including geographically differentiated budgeting, greater operational flexibility for frontline implementers, and implementation arrangements based on empirical indicators of social vulnerability.