How and when does affirmative action emerge in different national contexts? This paper is the first to analyze the emergence of affirmative action in higher education across national contexts. We find that three distinct clusters of affirmative action policies developed historically: (1) early nation-building projects, (2) mechanisms to attenuate social inequality in response to identity-based social movements, and (3) twenty-first century 'indirect' affirmative action policies. These clusters differ not only in the goals of their affirmative action policies, but also in how those policies are implemented, and the circumstances under which they emerge, as we show. The findings suggest that once provisions for underrepresented groups becomes part of the repertoire of actions universities or countries can take to solve a variety of national and university problems, affirmative action develops as a means to further a variety of organizational and national goals.