This study aimed to identify issues and challenges of low participation rate at the Indonesia National Agency for Labor Social Security (BPJSTK) membership. With the high number of informal sectors labor but low participation in labor social security membership, National Agency for Labor Security (BPJSTK) wants to reach those who haven ‘t subscribed as a member of BPJSTK. BPJSTK has developed Perisai, an agent system in order to reach labors who have not subscribed to BPJSTK membership. This study aims to explain on one of National Agency for Labor Security (BPJSTK) challenge to increase their subscription rate. Our findings found that there are still rooms for improvement, especially for the Perisai scheme. Issues from low compliance of social security policy, low understanding of the BPJSTK program itself, and regulation disharmony among institution has contributed to the low number of BPJSTK participants. This paper could benefit BPJSTK to evaluate the existing membership program and to improve its quality and approach. Moreover, policy makers could utilize findings and recommendation from this study to perfecting the policy based on evidence. This study is the first to investigate the issues and challenges of membership expansion in BPJSTK from various perspectives, specifically from social security perspective, economic perspective, financial perspective, and employment perspectives. Gel Classification