Community empowerment is one of strategies in health development that is used by government of Indonesia. It is also one of puskesmas (primary health center) function that must be run by every primary health center in Indonesia. Though community empowerment has been used for a very long time, there is not any specific instrument to measure level of community empowerment in health sector development in Indonesia. This research aimed at measuring community empowerment at community level using neighbourhood association as work area in two cities in Indonesia, Depok and South Jakarta. Community empowerment is measured using seven community potentials including leadership, organizations, fund, resource, technology, knowledge, and decision making. The measurement method is comparing those community existed potentials with potential standard developed by researcher in 32 primary health center in Depok and 28 selected primary health center in South Jakarta. The result shows that level of community empowerment in primary health center work area in Depok is generally in good categories, but South Jakarta is generally in less category. In Jakarta, the effort of community empowerment and promotive preventive is conducted easier by village administration office than primary health center.