Governance of Community Learning Centers in Indonesia: A Systematic Literature Review

Dadang Yunus Lutfiansyah Dadang (Universitas Pendidikan Indonesia, Indonesia)
Hanifah Irnawati (Universitas Pendidikan Indonesia, Indonesia)
Yanti Shantini (Universitas Pendidikan Indonesia, Indonesia)
Ihat Hatimah (Universitas Pendidikan Indonesia, Indonesia)
Aqeel Khan (School of Education, Universiti Teknologi Malaysia)

Journal of Nonformal Education
Vol. 12 No. 1 (2026): Community empowerment and Adult education

Background - Community Learning Centers (PKBM) serve as critical non-formal education institutions in Indonesia, yet governance challenges persist across leadership, collaboration, accountability, policy alignment, and digital dimensions. Research Urgency - Despite growing research on PKBM, a comprehensive synthesis focusing specifically on governance dimensions remains limited. Post-pandemic digital transformation introduces new governance dynamics requiring systematic analysis. Research Objectives - This study aims to: (1) systematically review literature on PKBM governance in Indonesia; (2) identify key governance dimensions influencing implementation; (3) develop an integrated multi-level governance framework; (4) identify critical challenges; and (5) provide evidence-based recommendations. Research Method - Following the PRISMA framework, 18 studies from Google Scholar, Scopus, and ERIC (2022–2026) were analyzed using a multi-level governance theory. Thematic analysis employed an integrated deductive-inductive approach. Research Findings - Results reveal five key governance dimensions: transformational leadership capacity, multi-stakeholder collaboration, accountability mechanisms, policy alignment, and digital governance. Cross-study synthesis identifies three structural contradictions: the standardization-flexibility paradox, the accountability pluralism dilemma, and the digital equity tension. Research Conclusion - Governance plays a decisive role in shaping PKBM effectiveness, quality, and sustainability. The integrated multi-level framework illustrates complex interdependencies across micro, meso, and macro governance levels, advancing governance theory for community-based non-formal education in developing country contexts. Research Novelty/Contribution - This study provides the first comprehensive multi-level governance framework specifically tailored to community-based non-formal education in developing country contexts, synthesizing fragmented literature into a coherent theoretical model and offering evidence-based policy recommendations for strengthening inclusive lifelong learning ecosystems.