This paper aims to understand the substantial reason for the surmounting arrears in GORA (government-owned rental apartment) and hypothetically conclude a newly-proposed institutional form to overcome the issue. GORA is an appropriate type of house for assisting the low-incomes to meet their housing need in Jakarta. Although the rental fee is considerably affordable and subsidized by the municipal government, the arrears are surprisingly high. This condition is burdening the municipal budget expenditure for maintenance and operational costs, which leads to degrading building conditions. Through the systematic literature review method, this paper examines the GORA affordability for the low-income tenants and the appropriate institutional form for GORA management for overcoming the arrears. The finding shows most of the tenants have potential failures to meet the affordable rental fee due to their low monthly income. Therefore, the Public Service Agency (PSA) becomes the newly-proposed institutional form for GORA management, as it is welfare-oriented with flexible financial management which allows it to generate income for subsidizing the maintenance and operational costs without increasing the rental fees.