The Role of the Ponorogo Regency Government in Strengthening the Mental Health of Migrant Workers Based on Law Number 18 of 2017 on the Protection of Indonesian Migrant Workers

1. Introduction

A migrant worker is an individual who leaves their country of origin with the primary objective of finding employment abroad to improve their quality of life and overall well-being. Migrant workers often engage in specific sectors such as domestic services, industry, and tourism, where demand for labor is consistently high. In the era of globalization, the role of migrant workers has become increasingly significant, contributing not only to the economic growth of the host countries but also to the home countries through remittances and transnational networks. Indonesian Migrant Workers (PMI) hold a central place in this context due to their large numbers and the unique challenges they face while working overseas. In 2024, data indicated that the total number of PMI reached approximately 2.3 million individuals, with most of them employed in countries such as Malaysia, Saudi Arabia, Taiwan, and Hong Kong. These workers must navigate substantial challenges, including cultural differences, language barriers, and demanding working conditions that often test their resilience both physically and mentally.

Mental health has become a critical concern for PMI, drawing increasing attention from both central and local governments in Indonesia. The cultural and linguistic gaps, combined with the strenuous work environments abroad, frequently undermine their overall well-being. Many PMI are exposed to unfavorable working conditions and unhealthy environments, leading to heightened risks of both physical and psychological harm. Access to adequate healthcare remains limited, hindered by discrimination, unaffordable costs, and a lack of information regarding their rights to health services. Psychological issues such as loneliness, trauma from mistreatment by employers, and unsafe working environments further aggravate their vulnerability, often resulting in stress, depression, and anxiety. Surveys have shown that a considerable number of PMI experience these psychological disorders without receiving sufficient support either from employers or government agencies.

The sources of psychological strain among migrant workers are multifaceted. Cultural and linguistic differences are among the most prominent, as these factors complicate adaptation and communication in the host countries. On top of that, the pressure exerted by demanding employers places migrant workers at a heightened risk of developing psychological and mental health issues. The lack of strong social support networks and feelings of isolation further intensify their vulnerability, increasing the likelihood of emotional instability and psychological disorders. This combination of challenges demonstrates the urgent need for structured interventions that address both the professional and personal dimensions of a migrant worker's life abroad.

Domestically, family dynamics and household conditions also contribute significantly to the mental health challenges of PMI. Children left behind are often cared for by grandparents or other relatives who may lack the necessary resources or knowledge to provide optimal childcare. This situation can create psychosocial issues for children, including behavioral problems and developmental challenges. At the same time, caregivers who assume responsibility for PMI's children frequently experience stress and mental health problems of their own due to the heavy caregiving burden and insufficient support. These circumstances add to the psychological stress experienced by migrant workers, as they remain concerned about their children's welfare while working abroad, creating an ongoing cycle of anxiety and emotional burden.

Strengthening the mental preparedness of Indonesian migrant workers before they leave for overseas employment is therefore essential. Comprehensive training programs aimed at bolstering their psychological resilience must be prioritized during the pre-departure stage. Robust mental health equips migrant workers to cope more effectively with the pressures and challenges they will encounter abroad. These training programs typically include modules on communication skills, stress management, emotional regulation, and cultural as well as linguistic adaptation. Furthermore, they provide education about labor rights and practical strategies for handling workplace and social pressures. Many programs are complemented by psychological support services and counseling sessions designed to prepare workers both emotionally and mentally for the realities of working in a foreign country.

Legal protection for migrant workers is clearly outlined in Law Number 18 of 2017 concerning the Protection of Indonesian Migrant Workers. This regulation governs various stages of protection, from pre-departure preparations to the employment period abroad, and finally to the reintegration process upon return to Indonesia. The law establishes the government's obligation to provide training, legal safeguards, and facilitation to ensure that migrant workers have access to decent working conditions while being protected from exploitation and abuse. This legal framework is crucial in setting standards and accountability mechanisms for all stakeholders involved in the migration process, including governments, private recruitment agencies, and employers.

Referring specifically to Chapter V of Law Number 18 of 2017, which elaborates on the duties and responsibilities of both central and regional governments, the Ponorogo Regency Government has assumed an active role in preparing prospective PMI. Given Ponorogo's status as one of the regencies with a high number of migrant workers, the local government has developed specialized training centers dedicated to equipping workers with the necessary skills and mental readiness before departure. In collaboration with psychological institutions, these centers provide counseling services and organize awareness programs about migrant workers' rights. Additionally, the local government implements initiatives to support PMI families, ensuring they have access to adequate social support during the absence of their family members. Such initiatives are designed to reduce the psychological burden of both the workers and their families, enabling PMI to remain focused and resilient while working overseas.

The research problem lies in assessing the challenges encountered by migrant workers originating from Ponorogo Regency, the obstacles faced in implementing government programs, and the potential solutions to enhance protection, particularly in strengthening mental health support for PMI. This study takes Law Number 18 of 2017 as its main legal reference, analyzing how well its provisions are being implemented at the local level. The normative juridical method, combined with a statute approach and a socio-legal approach, provides a comprehensive framework to evaluate both the legal texts and the lived realities of migrant workers. By examining the mental health problems faced by PMI from Ponorogo and evaluating the local government's role in addressing these challenges, the study seeks to highlight best practices and gaps in policy implementation.

Ultimately, the focus of this research rests on how Ponorogo Regency can more effectively empower its migrant workers through structured mental health programs, legal protections, and family support mechanisms. Strengthening these components not only safeguards PMI but also ensures their families remain stable and supported during their absence. The findings are expected to inform policymakers, both locally and nationally, on strategies to optimize the protection of PMI. In the long run, ensuring the mental health and well-being of migrant workers is not merely a matter of individual resilience, but a collective responsibility that intersects with human rights, social stability, and economic progress for both Indonesia and the countries where PMI are employed.

2. Discussion

Indonesian Migrant Workers (PMI) make a substantial contribution to the national economy, with remittances accounting for nearly 10% of the country's total foreign exchange reserves. Ponorogo Regency in East Java is one of the regions with a significant number of PMI. In 2019, a total of 5,751 migrant workers from Ponorogo were deployed overseas, although this number fell sharply to 1,684 in 2020 due to the COVID-19 pandemic. Jambon District has consistently recorded the highest number of migrant workers, with 462 PMI departing from the area in 2022, most of whom were employed in Taiwan and Hong Kong.

Employment abroad presents both opportunities for welfare improvement and a series of challenges. PMI must adapt to unfamiliar environments, endure workplace pressures, and manage the risk of mental health problems. Families left behind in Indonesia face social consequences, especially concerning childcare patterns and household dynamics. The Ponorogo Regency Government plays an important role by offering protection programs and policies aimed at safeguarding the welfare of PMI and their families.

The migration of workers from Ponorogo is influenced by multiple interconnected factors, including economic necessity, limited local employment opportunities, the allure of higher wages abroad, and insufficient understanding of the challenges faced in host countries.

1. Economic Factors Agricultural and informal sector incomes are often insufficient to cover daily living expenses. Rising costs for education, healthcare, and essential goods compel families to seek more reliable sources of income. Working abroad provides significantly higher wages, enabling PMI to send large remittances that improve their families' living standards, finance education, and even build homes.
2. Mental Health Risks PMI are exposed to mental health risks arising from cultural and social adaptation challenges, coupled with the absence of strong social networks. The need to adjust to different norms, languages, and expectations in destination countries can generate stress and emotional strain. Moreover, separation from family and friends fosters loneliness and isolation, increasing vulnerability to psychological disorders such as depression and anxiety.
3. Limited Employment Opportunities in Ponorogo The region lacks major industries capable of absorbing a large workforce. Most residents rely on seasonal agricultural jobs with fluctuating incomes. The scarcity of formal job opportunities forces many to pursue employment abroad as an alternative to economic stagnation at home.
4. The Attractiveness of Higher Salaries Abroad Differences in currency exchange rates create financial advantages for PMI. Jobs as domestic workers or industrial laborers in Taiwan and Hong Kong offer much higher wages compared to similar roles in Indonesia. Monthly remittances are used to meet daily needs, build homes, and support children's education, making overseas employment a strong economic incentive.
5. Lack of Awareness of Migrant Challenges Prospective PMI often idealize the success stories of returnees without considering the hardships encountered abroad. Insufficient mental preparation and lack of knowledge about rights and obligations render them vulnerable to exploitation, workplace stress, and unmet expectations.

Becoming a migrant worker has far-reaching effects not only on individuals but also on their families and communities. The impacts can be positive or negative depending on the ability of PMI and their families to adapt. While remittances provide economic benefits, prolonged absence also generates social and psychological challenges. Divorce rates have risen as a direct consequence of long-term separation and limited communication between spouses, with many households experiencing conflict, eroded trust, and eventual marital breakdown.

Children of migrant workers often suffer from reduced parental attention and supervision. This condition increases their exposure to negative influences, including juvenile delinquency, substance abuse, school dropouts, and early marriage. The absence of one or both parents places an emotional burden on children and their caregivers, many of whom struggle with stress and fatigue due to the heavy responsibilities of child-rearing. The psychological strain is felt not only by those left behind but also by the PMI themselves, who worry about their families' welfare while facing difficulties abroad.

PMI working overseas encounter additional challenges, such as heavy workloads, cultural differences, limited communication, and in some cases, unjust treatment from employers, including exploitation and abuse. Some, unable to cope with these conditions, choose to flee and become undocumented workers, which exposes them to even greater risks of exploitation and legal vulnerability.

The Ponorogo Regency Government has undertaken strategic initiatives to address these issues by strengthening protection measures and improving the welfare of PMI and their families.

1. Solutions for PMI Families in Indonesia Pre-departure counseling programs are provided to couples living apart to reduce the risk of divorce. The Social Affairs Office offers education on childcare to ensure children receive proper guidance and care, even when their parents are working abroad. The government also promotes the use of digital technology—such as video calls and instant messaging—to maintain emotional connections between PMI and their families.
2. Solutions for Prospective PMI Prior to Departure Training programs are prioritized to ensure that workers are mentally and technically prepared before departure. Article 13 of Law No. 18 of 2017 obliges local governments to provide training on language skills, cultural knowledge, and rights and obligations of PMI. Awareness campaigns are carried out to protect workers from exploitation. Article 6 of the same law guarantees PMI's legal protection and access to social security during employment abroad. Financial support schemes are also introduced to prevent workers from falling into high-interest debt traps, as regulated in Article 37.
3. Pre-Departure Skill and Education Programs Language training, technical skills development, and cultural orientation are provided to prepare prospective PMI for the challenges ahead. Simulations of daily life in destination countries help workers adapt more easily and build resilience against culture shock. Such programs strengthen confidence and mental readiness, improving their chances of success abroad.
4. Psychosocial Support and Family Empowerment Counseling services and psychological assistance are offered before departure, during employment, and upon return. These services help workers manage stress and recover from traumatic experiences such as exploitation or unfair treatment. Families of PMI also benefit from education in parenting, stress management, and access to healthcare, which helps maintain family well-being in the absence of migrant members.
5. Strengthening Communication Networks and Legal Protection Encouraging the use of communication technologies enables PMI to maintain close ties with their families, reducing loneliness and promoting mental health. Overseas PMI communities are also supported as platforms for mutual assistance. Legal protection is reinforced through bilateral agreements with destination countries to safeguard workers' rights and minimize exploitation. Broader access to legal aid ensures PMI have recourse when disputes arise abroad.

The policies adopted by Ponorogo Regency align with the framework of Law No. 18 of 2017 on the Protection of Indonesian Migrant Workers, reflecting efforts to institutionalize legal safeguards at the local level. According to Soerjono Soekanto's theory of legal effectiveness, a policy is deemed effective only if it can be consistently implemented and adhered to by the community. Programs such as Desmigratif (Productive Migrant Villages), mandated by Minister of Manpower Regulation No. 2 of 2019, aim to enhance migrant welfare through training and entrepreneurship development. Its implementation in Paringan Village, Jenangan District, demonstrates progress in family empowerment, although limited resources and low public participation remain obstacles.

Drawing on George C. Edwards III's theory of policy implementation, effective policy depends on communication, resources, disposition, and bureaucratic structure. Weaknesses in communication and resource allocation in Ponorogo hinder optimal implementation. Similarly, Philipus M. Hadjon's theory of legal protection distinguishes between preventive measures (monitoring recruitment agencies) and repressive measures (legal recourse when problems occur). Yet, persistent issues such as illegal migration, identity fraud, and weak supervision illustrate failures in preventive protection, leaving PMI vulnerable to abuse.

Lawrence M. Friedman's theory of legal compliance emphasizes that the success of law depends not only on substantive rules but also on legal structures and cultural attitudes. In Ponorogo, ineffective supervision reflects weaknesses in legal structures, while a permissive social culture toward illegal migration exacerbates the problem. Non-state actors, including NGOs such as JKPS Cahaya, provide vital legal assistance and migrant education, filling gaps left by government inaction. This aligns with John Locke's theory of the state, which obliges governments to protect citizens; when the state falls short, civil society assumes a more active role.

An overall analysis based on legal effectiveness, legal protection, and policy implementation theories suggests that Ponorogo's migrant protection framework has not yet reached optimal performance. Barriers include weak supervision, low legal awareness, and limited resources. To improve effectiveness, stronger regulations, enhanced supervisory capacity, and more responsive empowerment programs are needed. Policies must move beyond formality and directly address the real needs of PMI and their families to ensure genuine, sustainable protection.

3. Conclusion

Based on the previous discussion, it can be concluded that the protection policies for Indonesian Migrant Workers (PMI) in Ponorogo Regency still face various challenges in their implementation. Economic factors, limited job opportunities, and the appeal of higher salaries abroad are the main drivers for people to work as migrant workers. However, the lack of understanding regarding the challenges they will face leads many PMI to encounter problems in destination countries, such as exploitation, high work pressure, and even legal issues. On the other hand, the families of migrant workers in Indonesia also experience significant social impacts, including increasing divorce rates and problems in child care. The policies implemented by the Ponorogo Regency Government, such as pre-departure guidance programs and skills training, have provided benefits but have not been fully effective in protecting PMI and their families.

The effectiveness of PMI protection policies in Ponorogo can be analyzed through the theory of legal effectiveness, the theory of legal protection, and the theory of policy implementation. The main obstacles in implementing these policies include weak supervision, low public legal awareness, and limited resources. Oversight of labor recruitment agencies remains weak, leading to rampant departures of PMI through illegal channels. In addition, education about migrant workers' rights has not been evenly disseminated, making them more vulnerable to violations in destination countries. To improve policy effectiveness, the government needs to strengthen regulations, enhance supervisory capacity, and optimize empowerment programs for PMI and their families. A more responsive and field-based approach should be prioritized so that the policies implemented are not merely formalities but truly provide tangible protection for migrant workers and their families.