<![CDATA[Digital reforms in social security agencies are visible, yet how they become embedded inservice routines, and how this relates to inclusive access, remains poorly explained. This study examines how dynamic capability configurations shape innovation trajectories and their institutionalization in Indonesia's two national social security agencies, BPJS Kesehatan and BPJS Ketenagakerjaan. A qualitative structured, focused comparison drew on interviews with 15 key informants, two focus group discussions, and document analysis. Data were coded against indicators of sensing, connecting, and shaping; capability orientations were identified by comparing the strength and consistency of evidence for each dimension across cases. BPJS Kesehatan showed a stronger sensing–shaping orientation, using service data to identify bottlenecks and redesign provider-facing workflows. BPJS Ketenagakerjaan showed a stronger connecting–shaping orientation, relying on partnerships and outreach to informal and migrant workers. Both agencies reported faster, more convenient procedures, but institutionalization remained partial: implementation varied across branches, learning transfer was limited, coordination was fragmented, and continuity depended on particular leaders or projects. The study proposes that mandate-specific service pressures channel agencies toward different capability configurations, that procedural gains do not translate into inclusive access unless learning and coordination become routine, and that DJSN’s performance indicators should assess these capabilities.]]>
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