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The purpose of this paper is to explore the relationship between fair access policies and discourses of development through a policy analysis of higher education reform in post-authoritarian Indonesia (1998-present). The method was document analysis of five laws/regulations, using the criteria of accessibility, availability, and horizontality to identify the extent of fair access for students from (1) lower socioeconomic backgrounds and (2) under-developed regions of the archipelago. The analysis demonstrates how neoliberal, human capital, inclusive development and Pancasila discourses have been called upon in the making and un-making of a higher education market, with ultimately favourable outcomes for the fair access agenda. [ABSTRACT FROM AUTHOR]