Abstract
Hajj health services represent public service delivery within an international mass gathering, demanding cross-sectoral coordination, resource rediness, service continuity, and legal certainty. These complexities escalated in 2026 due to institutional restructuring and regulatory dynamics in Indonesia. This study evaluates the coherence among legal frameworks, institutional governance, and health practices at Surabaya Embarkation and Debarkation. Using a qualitative evaluative design based on document analysis and secondary data, the research found that while services operated through an inter-institutional network, gaps persisted in health assessment continuity, ambulance capacity, transitional logistics, staff facilities, and information system integration. Legal audits revealed that revoked regulations remained referenced in operational documents and organizational changes occurred during active debarkation, creating variable legal certainty. These findings highlight the need for regulatory harmonization, clear authority interfaces, transitional SOPs, resource strengthening, and data interoperability for future Hajj health governance.