CONSTRUCTION OF METHODOLOGY CONCERNING PLAN OF POLICYAND MEASURES AND ADMINISTRATIVE MANAGEMENT SYSTEM
Tsuyoshi KARIYA* , Yoshinori Nakagawa* , Seigo NASU*
Kochi University of Technology*

ABSTRACT: A number of various policy, measures and administrative works exist in local
governments in order to provide public services effectively with the resident’s demand. In
addition, they owe the obligation which makes such a series of measure system and social
capital to visible and makes it public to the resident as accountability.
This research not only proposes the methodology to plan policy and measures in the local
governments but also to set up the strategic target for measures and administrative works
quantitatively by using technological approach which includes evaluation function and toachieve it effectively.
First of all, as the method to accomplish it, this research adopts to make good use of the tools
which is called problem structuring which focused on the differences of acknowledgment
among stakeholders. By using “problems structuring”, it is possible for stakeholders to aim at
the consensus building of a common policy as well as confirm the difference of recognition
among them and then constructs administrative management system with using “logic model”.
Logic model is the framework or logical model which shows it how outputs which are method ofusing management resources, administrative works, services and measures relate to andcontribute to them to social system or outcome as management target of administrativemanagement. Furthermore, in execution system of administrative policy and plan to achieve it,
because the form of such a management system is taken in the local governments, thisresearch also describes the methodology which reviews it according to the management cyclewith measuring its performance, as it were maintains system in itself.
Therefore, this administrative management system is only methodology to effective systemthat can achieve policy, measure and administrative works quantitatively and logically.
KEYWORDS: Administrative Management, NPM, Problem Structuring, Logic Model, Policy Formation
1. INTRODUCTION
1.1 The problems in the local governments
When the administrative management system andinfrastructure management are discussed in the localgovernments, it is easy for essential problems in “theadministrative management” to tend to be mistook,
because the minus side appears remarkably representativeof the critical financial picture and collapse of various

institution that comes from social, structural background.
Today, in the local governments which are called
prefectures and municipalities(cities, towns and villages),
although administrative reform or business reform whichis administrative assessment or administrative service
assessment become popular, it doesn’t seem to exist thelocal governments which the administration is considered
as an enterprise just like the private sector and manage it
totally including from personnel management system tocost management system concerning expense accountthat requires it to serve. In “the administrativemanagement”, as the content of the approach is variously
different depending on the region and the municipality
scale, though a clear definition not only exists but also it
is often translated widely and generally as “Privatemanagement technique” etc, it is common in any local
government based on the idea and the methodology
which is called NPM (New Public Management).
Though NPM applies corporate principles in the privatecompany, the technique, and the success case, etc to thepublic sector, improves the management skills istranslated into the idea that achieves improvement andactivation basically, and understood, concretely, a throughcompeting principle is introduced by privatization etc andthe idea of the separation of the planning of the evaluationby the achievement including a quantitative analysis andthe ex-post assessment etc and the result and polices andthe execution sections is the main typical of that.
Therefore, today when the municipality management
method tries to be reviewed, such a private management
technique is taken, the method of forming a fundamental
policy and the measures is converted, and there is anecessity for groping for the development of public
services that exists in a environment and a regionalenvironment.
1.2 Objectives of this research
From the above mentioned, in this research, in themunicipality of the reality, the author also who is the staff
in the local government constructs the techniqueconcerning the plan and the measures that accompanies
the plan and plans on an actual belonging site through thedecision process of the plan to be engaged on
administrative work. Moreover, it aims to propose themethodology newly in the local government.
1.3 Composition of paper
The paper touches first about the current state and whatshould be of the plan and the plan of the policy and themeasure of the local governments, and considers where
the problems exist in Chapter 2. And the methodologythat does the plan is constructed in Chapter 3 as a casewith the method of planning the policy and the measureconcerning the policy progressed for the achievement of
the business objective, the measure, service, and theadministrative work through the execution rate
concerning special fixed health checkup and theexecution rate concerning special health guidance etc inexecution plan for special fixed heath checkup etc. And,
Chapter 4 describes the directionality of the research in
the future as a summary at the end.
2. The problem concerning plan of policy andmeasure in the local government
In the local government that is called cities, towns, andvillages, various plans set up by not only the staff of themunicipality but also by the members who are called thestake-holder participation type including citizens' of thepublic interest representative and the people fromacademic background, etc.
When many kinds of plans are settled on in the local
governments, there are some problems which are pointed
out in such a current state.
1. Neither a social structure nor the background including
the problem were recognized and had been arranged.
2. Neither a quantitative analysis nor the numerical target
that was able to be evaluated had been set.
3. From a concrete administrative work to the policy,
services and from medium outcome to final outcome, therelation between the target and the means of the plan had
not been constructed as a system.
4. To make the constructed management system anevaluation function to evaluate the measure and theadministrative work and the marketing investigation forthe citizens to invent the measure had not been executed.
5. To evaluate and to improve them after the policy, themeasure and the administrative work were executed, thesystem had not been maintained.
3. Proposal of method of planning policy andmeasures concerning the execution plan for
special fixed health checkup etc
3.1 What is the execution plan for special fixed healthcheckup etc?
First of all, it easily explains the execution plan forspecial fixed heath checkup etc treated as a case with thisresearch.
The lifestyle disease keeps increasing from the young
people generation for these several years, and the ratio of
the person who gets high blood pressure and a diabetic
increases rapidly. The reason gets such a lifestyle disease
diversifies the lifestyle by the improvement of the income,the change in the family form, and the change in a social

FO
MO(1)

S T E P ４.

S(1)Resource（Cost）

S(2)Resource（Person）

MO(2)
M(1)

M(2)

Resource（Substance）

Resource（Person）

P(8)

M
P(9)

P(5)

P(8)

P(12)

S

M
A

Outcome:O
Final Outcome:FO
Medium Outcome:MO
Measure:M
Service:S

A

P(8)

P(4)

P(10)
P(5)
P(2)

P(7)

E

P(6)

E

P(8)
P(4)

STEP1.

P(11)

P(3)
P(1)

P(9)

Problem:P
Environment:E
Attribute:A

S Framework of Logic Model

P(2)

P(7)

S T E P ２.

M
P(11)

P(3)
P(1)

S

Construction of Logic Model

P(10)

P(4)

S T E P ３.

MO(3)

P(10)
P (7)

A

Structuring of problem

E

P(12)

P(12)

P(6)

P(3)
P(1)

P(5)

Enumeration of problem

P(2)
P(9)

P(11)

Fig.1 The methodology concerning from enumeration ofproblem to construction of policy logic model
structure furthermore.
The Ministry of Health, Labour and Welfare obligatedbasic health checkup of the medical insurance subscriberfrom 40 to 74 years old to the medical insurance group toimprove the lifestyle and the disease structure of such avicious circle in April, 2008. This plan is called theexecution plan for special fixed health checkup etc fromthe combination of the execution of the special healthcheckup and special health guidance after the special
fixed health checkup.
Therefore, to achieve the control of final medicaltreatment expense that is the business objective, themethodology that plans the policy and the measure isproposed through the construction process of this plan in
K city in Kochi Prefecture in this thesis.
3.2 Method of planning policy and measures
This time, when trying for the maintenance of the healthof the resident who is the final strategic target and theimprovement by clearly setting three targets, it starts theconstruction of the administrative management systemthat aims to control the medical treatment expense by thelong range planning in K city in Kochi Prefecture thatworks to plan the policy in this research.
Then, such a problem and the target are qualitative andquantitatively analyzed and arranged and service and theadministrative work as well as the policy and measures toachieve various numerical targets additionally areplanned or the methodology is described by showing aconcrete procedure though it (Fig.1).

3.3 Structuring the problem
First of all, to dig up the problem that a social, structural
background that the lifestyle disease contained and theregion had, the technique of “structuring the problem”
was adopted. The concept of structuring the problem isbased on Dunn assumed to be a classic textbook of apublic policy.
Moreover, the idea of making the situation that themethod of recognition to one situation is as various as asocial influence of nanotechnology depending on the
person a starting point and sharing the formulation of theproblem is attached importance, and is proposed various
techniques (Problem Structuring Methods :PSMs) in thefield of soft operational research (Soft OR) in the plan of
the strategy of the organization.
Then, the situation that the method of the interpretation
is different because it has a quite different understanding
and the cognition and it exists between staff to whom thesame fact takes charge of between stake-holders andfurthermore the same business in various problems thatpublic in the administration takes up is developed. And
moreover, the difference of recognition and theconfrontation of the opinion are caused for the matter
considered to be the final target wished to be achievement
and a solution want. Therefore, the method of structuring
the problem plays an important role for the plan of thepolicy and the measure as the first stage of the policy
analysis. By passing the work of structuring the problem,
it not only becomes easy to analyze the cause but also tounderstand the current state before public service to theresident is provided as the accountability.
3.3.1 Structuring the problem in the local government
First of all, the work of structuring the problem wasrequested to K city’s staffs who engaged in the plan, andthe problem was enumerated (Fig.2). Both of the meansof target and for the problem to achieve the target in thework of structuring the problem because structuring sucha problem has been arranged in the map so far, and there
was no experience of thinking about the problem and thetarget depending on a technological technique K city’s
staffs are included at this work. Moreover, it was shapethat the priority level and the attribute of the element arearranged in the made map at random. Moreover, undersuch a condition, the structure is not understood easily
among stake-holders, because it is difficult for them tounderstand that the problem occurs in what process as thetarget and the problem arranged at random.

S T E P.1
Decrease in nursing
supply expense
1. Enumeration of problem
Extension of healthy
life expectancy

Cooperation withmedical institution

Decrease of pertinent
Prevent the nursing
person and preliminarygroup of life style diseases care premium form
soaring
Improvement ofhealthy consideration

Consultation anddetect at early stage

Decrease in medical
expenseSpread enlightenment
to improve healthy
consideration

Control those who recognize
nursing care need

Enhancement ofsomething to live for activity
Decrease ofoverweight child
Activation of thepromotion committee
Securing of placeof senior citizen’s gathering
Enhancement ofspecific health guidance

The average life span isfollowing a nationwide average

Healthy consideration of
the individual is low

ProblemEnhancement of
nursing prevention
services

Extension of average
life expectancy

There are a lot of people whoare dialysis treatment

Decrease in weaksenior citizen

Improvement ofdaily life action

Health education for life styledisease control improvement

Consultation rate is
low in health checkup

Approach in maternal andchild health business

Promotion ofindividual consignment

Unconsultation
person’ s measures

Promotion of localorganization activity

TargetIncrease of nursing
supply expense

Decrease in localorganization activity
An extraordinary rateof the health checkup
is high

There is a differenceof the health indicatorof the district

The medical treatment
expense is highIncrease in young person’s
lifestyle disease
Increase of those who
recognize nursing care needFig.2 Enumeration of the problem (STEP1)

Fig.4 An example of structure the problem
social, general description form becomes importantbecause it should put it into the state on which thestake-holder can agree finally as a method of describing
structuring the problem at the stage in the process thatshifts from the enumeration of the problem to structuring
the problem.

Fig.3 Structuring the problem (STEP2)

Therefore, the enumeration of this problem issystematically arranged based on the causal relation, andthere is a necessity for clearly tracing tracks of themechanism where the problem occurs (Fig.3). And then,the state that the staff arranged based on this causal
relation is structuring of the problem (STEP2) it is in
Figure 4.
It is a level by which whether the problem's how still
setting up the order among stake-holders with different
method of the level of recognition and the interpretation,
being generated, and where the root of the problem of theplan exists is not understood easily from this state.
Therefore, the chain of this causal relation is needed toclearly compare with the problem in the background of
the social structure and to reflect on the problem in thedistrict, in addition, there is a necessity for the faithfularrangement. In this case, expressing the problem by a

3.3.2 Consensus building of policy by hearing
From the result of work by the staff of structuring such aproblem, to clarify a final business objective and to plan
based on common recognition, the consensus building of thepolicy becomes necessary indispensable here.
Therefore, the consensus building was achieved byinvestigating hearing for each staff based on structuring theabove-mentioned problem (Fig.5). Some having turned out
through this work of hearing investigation is recorded asfollows.

Fig.5 Structuring the problem concerning the lifestylediseaseFig.6 Part of recognition of individual concerning thespecial fixed health checkup
1. The process of structuring the problem can sharedifferent recognition in individual person.
2. It is necessary to become a common content almost
about the content of the goal setting also between
different staff.
3. Interest in the analysis of the structure of the problem
to use such a technological technique.
To change it from structuring the problem to the logic
model described in the next paragraph at the end of thisparagraph, structuring the problem made thus shows thatthe outcome that is the business objective of the plan, theoutput, the resource, the environment, and the attribute,etc. exist together.
Therefore, it is necessary to distinguish the environment
and the attribute from structuring the problem next, and toconstruct the administrative management system whoselects it , as it were, the policy logic model.
3.4 Construction of the policy logic model
Then, it explains in detail about the policy logic model
which becomes an administrative management systemfrom structuring the problem. Figure 6 is a model bywhom the structure of the consideration of the object
person is extracted to improve the execution rate ofspecial fixed health checkup, and the problem isstructured from structuring the problem of constructing it
faithfully in the part in step 3 in Figure 1.
It is necessary to reflect the model of structuring thisproblem in the questionnaire survey, to construct theevaluation function concerning the consultation rate, andto construct the logic model to propose the measure andFig.7 Structuring the problem concerning the special
fixed health checkup
the administrative work (Fif.7).
Here, it is necessary to explain what the logic model is.

Fig.8 An example of typical logic model concerning theadministrative management system
3.4.1 Logic modelTo achieve strategic target efficiency and effectively inadministrative management, knowing what strategic
target and logical relation the resident service, theinvestment in the infrastructure etc. , and the control ofmaintenances are finally becomes important from various
aspects.
In this research, for example the logic model is defined
as follows. And fig.8 is an example of typical logic model
concerning the administrative management system.
1. With the shape of a system chart or a logical model,
the logic model shows the structure of themanagement system.

REFERENCES
Dunn, W.N. Public Policy Analysis (2003). An
Introduction. Third edition, Prentice Hall,
Rosenhead, J, and Mingers, J.(ed.): Rational Analysis fora Problematic World Revisited, Second edition, Wiley(2001)
W.K.Kellogg Fundation:Logic Model Development
Guide (1998)

Fig.9 Logic model to improve the execution rate
concerning the special fixed checkup
2. It functions as a tool of the achievement levelevaluation and the performance evaluation to thetarget of the management system because the logic
model shows a qualitative relation, and shows aquantitative relation.
3. Finally, the administrative work selected by the logic
model, the combination of service and measures
show the portfolio to achieve the business objective.
3.4.2 Logic model concerning the special fixed healthcheckup
Figure 9 from structuring the problem of paying attention
to such an object person’s consideration structure, the logic
model is shown in health checkup that is one of the concrete
outcome indices, the measure that should give priority byleading the evaluation function and the administrative work
are decided from the analysis result of the questionnaire
survey to be supposed to execute it in the future.

4. Future research
It works on making the questionnaire survey tablebecause there is a necessity for investigating needs for the
citizens to construct the evaluation function, and citizens'needs will be reflected in the measure and theadministrative work in the future.
Moreover, it tries to maintain the system by themeasuring the performance of the administrative workand the service to achieve it objective according to theconstructed logic model.