JAKARTA - When Indonesian nurses and care workers decide to work abroad through government-to-government programs (or G-to-G), one of their first questions is usually how much it will cost. 

The answer varies by destination. Those heading to Tokyo may face almost no out-of-pocket expenses, while workers bound for New York can spend tens of millions of rupiah before departure, despite having the same qualifications and doing the same work.

Indonesia's Migrant Protection Agency (BP2MI) runs labor placement programs to a handful of countries under government agreements, which include the likes of South Korea, Japan, Germany, the United States, and Canada. While all are eager to recruit Indonesian workers, there is no shared agreement on who should bear the cost of migration.

The Cost Breakdown of G-to-G Migration Programs

BP2MI’s site lists at least five official placement schemes: Government-to-Government (G-to-G), Government-to-Private (G-to-P), Private-to-Private (P-to-P), placement for a company’s own interests (UKPS), and independent placement. 

Under the G-to-G model, two governments formally agree to place workers through a state-approved program to meet labour demand in the destination country. These schemes are often promoted as safer and more affordable than private recruitment. 

In practice, passport fees, visa processing, and mandatory medical examinations are costs most migrants encounter, but the amounts and payment structures differ widely by worker and destination.

“Each country has its own characteristics, adjusted to the needs of the destination country," says Seni Fitriani, who handles US, Germany, and Canada placements at BP2MI. 

While the recruitment process follows a similar arc (socialization, registration, verification, selection, departure), who ultimately bears the financial burden differs depending on where workers are headed. 

When Destination Countries Cover Most of the Bill

Japan remains one of the top destinations for Indonesian migrant workers, with thousands of young Indonesians leaving each year under the Technical Intern Training Program (TITP) and the Specified Skilled Worker (SSW) scheme. 

After decades of criticism over abuse and exploitation, TITP is set to be phased out in 2027 and replaced by a new Employment for Skill Development (ESD) program, which Japanese lawmakers say will be more humane and less restrictive.

BP2MI told Migrant Times that Japan covers around 90% of the costs of recruiting Indonesian healthcare workers as its population ages at a critical pace. The country’s dependency ratio—reflecting how many people rely on the working population—stood at 36% in 2010 and is projected to reach 78% by 2060. 

In practical terms, that would mean nearly three in four people are either too young or too old to work, which shrinks Japan’s tax base and leaves factories and care facilities short of workers to keep operating.

Candidates who pass selection get a year of training, which consists of six months in Indonesia and six months in Japan. The government covers tuition, housing, and materials, plus a $10 daily allowance for a full year. That's around Rp 150,000 a day just for showing up to language class.

If the candidates pass the Japanese language test, their medical exam costs will get reimbursed too. According to Japan International Corporation of Welfare Services (JICWELS), which runs the Economic Partnership Agreement (EPA) program for healthcare workers, employers pay about ¥583,400 (roughly $3,730) in total acceptance costs for fiscal year 2025. Workers never see that bill, and their only expenses are an Indonesian passport and BPJS health insurance.

Germany uses a similar model. Applicants can apply without any German proficiency at first, and once their documents are approved, the government puts them into a nine-month course to reach the B1 level. The program is fully paid, the airfare is covered, and the medical costs will be reimbursed after candidates are cleared to work.

South Korea, on the other hand, is different, as BP2MI tells Migrant Times. The Korean government does not pay for pre-arrival language training, but the costs of airfare and insurance are covered once workers are placed. The bar to entry is lower, and high school graduates can apply for low-skilled jobs in manufacturing, construction, agriculture, and fisheries.

The Self-Funded Migration Path

In the United States and Canada, demand for Indonesian nurses remains strong, but unlike Japan, workers are usually required to bear around 90 percent of the programme costs.

In the US, the G-to-G program is still in its pilot phase, with only 10 nurses deployed to date. 

To work in these countries, English language proficiency comes first. Nurses must score at least 7.0 on the IELTS, close to near-native fluency. Each test currently costs around Rp 3,4 million, and most candidates take it more than once.

“Because this is a professional skill and involves high-risk work, they need a strong grasp of the language,” said Fitriani. “If they misunderstand a medical order, it’s dangerous.”

After the language proficiency exam, licensing comes next. US-bound nurses must pass the National Council Licensure Examination (NCLEX), the Western equivalent of Indonesia’s Surat Tanda Registrasi (STR) for healthcare workers. About 95 percent of Indonesian nurses do not have it, and the exam costs about $200 plus roughly $150 in international fees. 

Indonesia does not currently host an NCLEX testing centre, requiring candidates to travel to the nearest testing site in Manila, the Philippines, to sit the exam, incurring additional expenses for travel and accommodation.

Official data from 2021 show a first-time pass rate for international educated registered nurse (RN) candidates at 46.8%, with an overall first-time RN pass rate of about 69%, highlighting the difficulty of the exam. 

Canada requires the same NCLEX qualification, its registration costing about CAD 360. Credential evaluation by Canadian nursing authorities adds another CAD 300 to 500, and after that, comes the visa wait.

“From application to departure, it can take one to one and a half years,” says Fitriani. “The visa process is where everything slows down.”

Canada’s immigration system processes a high volume of applications, and work permit timelines commonly stretch from several months to over a year, depending on the pathway. 

New Brunswick recruits Indonesian health workers through cooperation with BP2MI and offers immigration routes under its Provincial Nominee Program, which can be faster than federal channels. But, it still involves months of waiting after candidates complete costly certifications and assessments.

What Workers Bear Beyond Money

Beyond money, applicants also gamble their time on the G-to-G program, regardless of the destination country.

South Korea’s system splits the “passing quota” versus the “departure quota.” Candidates take a language test, then a skills test administered by HRD Korea officials who fly to Indonesia for testing. If they pass both, they can get on the roster. But roster placement doesn't guarantee departure as they still need an employer to select and issue a Standard Labor Contract. 

But that wait can be long.

In Japan, one of the biggest constraints is a two-year experience requirement for nurses. By the time nurses become eligible, many have already secured hospital jobs, built professional networks, and taken on family responsibilities, making overseas relocation less attractive. 

“Nurses who already have two years of experience in Indonesia usually feel comfortable,” Yerni says. “Their mindset is, ‘I’ll just stay in Indonesia.’”

Japan allows up to 500 Indonesian healthcare workers each year, which accounts to 200 nurses and 300 care workers. While care worker slots fill easily, nurse positions often remain vacant. 

"From the 200 nurse quota, we usually only get 20 to 30 people maximum," says Yerni from BP2MI's Japan team. "There's a huge gap."