CONSULTING PROJECT REPORT (WINTER 2012)

MARKETING STRATEGIES FOR“THE SOCIAL SECURITY AND TAX NUMBER SYSTEM”
IN JAPAN

February 11, 2013

Prepared by
HYUN JUNG LEE (SIN: PM11E002)
Candidate of Master of Public Policy
School of International and Public Policy
Hitotsubashi University

Prepared for
YOKO KOBAYASHI
Senior Consultant
Social Innovation Consulting Sector
NTT DATA INSTITUTE OF MANAGEMENT CONSULTING, Inc.
Keywords
the Social Security and Tax Number System in Japan, My Number System, strategic framework forpolicy marketing, Cash Receipt System and e-Tax Invoice System in South Korea

1

NOTE
This consulting project report is presented to the faculty of School ofInternational and Public Policy, Hitotsubashi University in fulfillment of therequirements for the degree of Master of Public Policy. And this document and its
contents are intended to be presented to Yoko Kobayashi, Senior Consultant of NTT
DATA INSTITUTE OF MANAGEMENT CONSULTING, Inc.
The material presented in this report is based on published data, references,and personal interviews coupled with my interpretation of the facts. I believe that thebasic information and recommendations presented in this document provide a basis fordesigning policy marketing strategies, but no warranty as to completeness or accuracy
is implied. And the views expressed in this report are mine and do not necessarilyreflect those of NTT DATA INSTITUTE OF MANAGEMENT CONSULTING, Inc.

2

TABLE OF CONTENTSEXECUTIVE SUMMARY ............................................................................................................................................ 4
1. Introduction ............................................................................................................................................................. 5
1.1 Objective and Scope of the Project ............................................................................................... 6
1.2 Problem Statement and Hypothesis ............................................................................................ 6
2. Situation Analysis .................................................................................................................................................. 9
2.1 Survey results ....................................................................................................................................... 9
2.2 Data for Counter Visitors at a City Hall (Machida, Tokyo) .............................................. 11
2.3 Online Service Use Rates for Administrative Procedures Related to Social Security
and Tax ......................................................................................................................................... 14
2.4 Attitude of the Japanese public towards information sharing system ....................... 17
3. Reference Data: Findings from Existing Policies ................................................................................... 19
3.1 “Cash Receipt System” in South Korea .................................................................................... 20
3.2 “e-Tax Invoice System” in South Korea ................................................................................... 23
3.3 “COOL BIZ” in Japan......................................................................................................................... 25
3.4 “Plastic Bag Reduction Campaign” in Japan .......................................................................... 27
4. Introducing a Strategic Framework for Policy Marketing ................................................................. 31
4.1 Analysis of the Findings in 3 Using the Strategic Framework ....................................... 35
5. Policy Marketing Analysis and Strategy Planning for the Social Security and Tax Number
System ............................................................................................................................................................. 39
5.1 SWOT Analysis................................................................................................................................... 39
5.2 Strategic Model.................................................................................................................................. 42
5.3 Recommendations ........................................................................................................................... 45
5.3.1 Strategy Mix and Planning ........................................................................................................ 47
Eliminating/reducing switching costs ....................................................................... 47
Targeting (achieving critical mass) ............................................................................ 50
Increasing benefits ............................................................................................................ 53
Increasing acceptance level (branding) .................................................................... 55
6. Concluding Thoughts ........................................................................................................................................ 57
REFERENCES............................................................................................................................................................. 58
APPENDIX - Hofstede Dimensions of National Culture ........................................................................... 61

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EXECUTIVE SUMMARYThe Social Security and Tax Number System (also known as My Number System) isplanned to be introduced by the Japanese government in 2015, and this project poses aquestion, “Will the policy succeed in acquiring enough number of participants?”. Withfocus on the factors that impacts individual participation behavior, I have been engaged
to assess the feasibility of the policy in terms of the current environment factors,
develop a strategic framework for policy marketing and propose a marketing plan forsuccessful implementation of STN.
Diagnosis
There is a high chance that the demand for My Portal service may be low due to thelarge start-up costs faced by individual participant. And there is no incentive systemthat can motivate people to conduct the desired behaviors. High political risk involved
with the policy and low awareness level also appear to be the major challenge.
Strategic Framework for Policy Marketing
According to the strategic framework I have developed for policy marketing, thefollowing strategies are found to be valid: switching cost strategy, targeting strategy,
and benefit/brand strategy (listed in the order of priority). The framework is found to
be consistent with the strategies of other reference policies that succeeded in marketing.
Recommendations
The recommendations that follow show a partial list of the recommendations presented
in 5.3 of this report and they are best understood in the context of the full report.
1.
2.
3.
4.
5.

Establish more methods for IC card registration
Provide one IC card reader per household at free of charge upon request
Provide electronic ID at no charge for a limited period of time (first few years)
Make it a standard that the first IC card comes with the electronic ID
Introduce short term monetary compensation systems such as tax deduction,
health care service subsidy, fee waivers for administrative procedures, andlottery system
6. Allow free access or provide preferential status to programs and activities
hosted by public institutions for card holders
7. Offer a variety of printing and payment options for My Portal services
8. Attach a positive image to the policy (i.e. close, quick and handy, smart, safe)4

1. Introduction
In 2011, the Japanese government proposed a plan to implement “the Social Security
and Tax Number System” (also known as “My Number System”, STN hereafter), as a partof the plans for “the Comprehensive Reform of Social Security and Tax”. STN isinformation sharing infrastructure designed to promote efficiency of administration of
government, and it is intended to keep track of individual’s income and provide social
security and impose tax based on the accurate income information. If the system isimplemented, each individual and corporation will be assigned a number to use whencarrying out administrative procedures for matters related to social security, tax, anddisaster mitigations. And along with the number assignment, the government will
provide an integrated online platform called “My Portal”, through which the citizens inJapan can check their information and carry out administrative procedures that are
related to the aforementioned areas (Cabinet Secretariat of Japan 2011).
According to the implementation plan, the government will assign the number
to each individual and corporation in June 2014 and introduce the system in January
2015. Meanwhile, the result of the survey conducted by Cabinet Secretariat of Japan in
December 2011 shows that the people who responded “I am aware of what the policy isabout” are as few as 16.7%. And it is found that the current policy scheme does notprovide any incentive system that can motivate people to conduct the behaviors
requested by the policy (Cabinet Secretariat of Japan 2011).
Based on these facts, this project, which is conducted under the guidance of
Yoko Kobayashi, Senior Consultant of NTT DATA INSTITUTE OF MANAGEMENTCONSULTING, Inc., begins with posing a question, “Will STN be implemented as plannedby acquiring enough number of participants?” And it further assesses the feasibility ofthe policy in terms of the environment factors, develops a strategic framework forpolicy marketing and proposes a marketing plan for successful implementation of STN.
The remaining chapters of this report are organized as follows. Chapter 1
explains the objective and scope of the project and presents the problem statement andhypothesis. Chapter 2 presents the results of the situation analysis, and Chapter 3
brings forth the cases of existing policies in South Korea and Japan for reference.
Chapter 4 describes the strategic framework for policy marketing, which is developed

5

based on the findings presented in Chapter 2 and 3. And finally, Chapter 5 proposes
marketing recommendations for STN and the last chapter concludes the report.
1.1 Objective and Scope of the Project
The objective of this project is “to develop methods for promoting widespreadparticipation in STN”. As shown in Table 1, policy promotions can be categorized into
three components: informing type, agenda-setting type, and marketing type, and thisproject will particularly involve the “marketing type” of policy promotions. Withreference to this categorical definition, I would like to clarify the meaning of theobjective by restating it as “to produce marketing strategies for STN”.
Table 1: Categories of policy promotions (based on Kitamura (2005) Figure 1.)
Category

DetailExamples (in Japan)

Informing

Provide information

Reform of Nursing Insurance System
Amendment of Antitrust Law

Agenda-setting

Ask questions on
current issues

Discussion on fair anti-takeover measures
Discussion on Government-owned property controls

Marketing

Request participation

Career support for womenFire prevention movement for the fall
Influenza prevention measures for the winterNote: Contents have been edited by author

This project is performed under the assumption that the policy will be
implemented according to the established schedule. Further, this project has a major
focus on the strategies to promote participation in STN and it does not intend to makechanges towards the core structure of the policy.
1.2 Problem Statement and Hypothesis
To clarify the problems associated with the current situation, let me begin withbrainstorming a hypothetical framework for policy marketing strategies:

6

Figure 1: Hypothetical framework for policy marketing strategies

The framework presented in Figure 1 signifies that raising the awareness level is not a
sufficient condition but a necessary condition for raising the participation level(E/(A+B)). If maximum potential of C or E is low, we cannot expect to see theparticipation rate grow much even when the level of awareness level reaches 100%.
With this idea in mind, I have taken observations on the current situation toderive reasonable expectations towards the awareness level and the practice level. The
problems are identified as follows:Firstly, the level of awareness is found to be not high at the current point.
According to the result of the survey conducted by Cabinet Secretariat of Japan in
December 2011 (which will be introduced in more detail in 2.1), the people who
responded “I am aware of what the policy is about” are 16.7% of the sample
respondents (2011). Considering the fact that the Japanese government plans toannounce the number to each individual in June 2014 and implement the system inJanuary 2015, making efforts to raise the awareness level to sufficiently high levelwithin a designated time frame (before the introduction) is deemed critical.
Next, it is expected that the practice level for STN will not reach high with thecurrent scheme. The directives requested to be performed by STN consist of thefollowing behaviors:

7







Behavior 1: When carrying out administrative procedures related to social
security, tax or disaster mitigations at public or private institutions, input theassigned number on the paperwork.
Behavior 2: Visit local government office and sign up for IC card (a fee isincurred). Carry the card at all time and present it for ID verification whenrequested by public or private institutions.
Behaviors 3: Visit local government office, sign up for electronic ID (a fee isincurred), and have it issued on IC card.
Behavior 4: Purchase an IC card reader, install in on personal computer, andperform all the preliminary tasks required for logging into My Portal using the
IC card.
Behavior 5: Use My Portal for carrying out administrative procedures related tosocial security, tax or disaster mitigations.

Regarding the list above, the number attached to each behavior type not only signifies
the degree of active participation but also helps us see that a behavior can be conducted
only after having conducted the lower-order behavior(s). Here, we see the benefits thatcan be provided by STN (My Portal service) are actually delivered after conducting the
behaviors up to the 5th order. Meanwhile, monetary and nonmonetary cost factors areassociated with conducting Behavior 2, 3 and 4, while no benefit from participation is
expected. As for conducting Behavior 1, it may not involve much cost for participants
but it does not provide any benefit either. These facts suggest that unless there aresufficiently many people whose demands for My Portal service outweigh thepreliminary costs it accompanies, there is a high chance that the participation rate will
not grow high because there does not seem to be any systems that can motivate people
to conduct the desired behaviors.
With these two statements as bases, the approach and the direction of thisproject have been established as follows: as for the low awareness level, my idea is that
it will grow proportionally to the amount of inputs allocated to the promotional
activities. And having the promotional activities outsourced by professional services ofadvertising firms can in fact be more efficient than taking the lead role itself. And what I
believe we need to be focusing on is to identify the factors that will elicit theparticipation behaviors and develop specific marketing strategies for STN based on
those factors. This topic has been the major interest of this work and the hypothesis
established for this project is:8Without a valid and well-designed system exerting positive impacts on
the practice level, the participation rate of the Social Security and Tax
Number System will be at a low level.
The following chapters of this report will assess the above hypothesis by referring to
the current situations and other reference cases and develop a more detailed policy
marketing framework for STN based on the assessment results.
2. Situation Analysis
This section mainly focuses on analyzing the environmental factors that need to betaken into account when producing the marketing plans for STN. The analysis has been
performed on the following subjects:Survey results

Data for Counter Visitors at a City Hall (Machida, Tokyo)Online Service Use Rates for Administrative Procedures Related to Social
Security and Tax

Attitude of the Japanese public towards information sharing system

2.1 Survey results
Three different pieces of surveys1 have been taken as reference to learn about (i) thelevel of awareness and (ii) the level of acceptance of STN among the citizens.
Regarding the level of acceptance, the survey results show that, as of November
2011, about 16.7% of the respondents declare that they are well aware of the policy,
and the half of the rest stated they heard of the name (Cabinet Secretariat of Japan2011). As we look into the characteristics of the respondents, men tend to demonstrate
higher awareness level than women, and for men, in particular, those who belong to ahigher age group seem to demonstrate higher level of awareness. For women, there
does not seem to be a particular correlation between the age and the level of awareness.

Cabinet Secretariat of Japan (Internet survey, March 2011, n=3000)
Cabinet Secretariat of Japan (Interview survey, November 2011, n=1890 out of 3000)
Toyo Keizai (Internet survey, June 2012, n=1000)
19Figure 2: Survey results about the level of awareness towards STN(based on Cabinet Secretariat of Japan (2011))
0%
Total (n=1890)

20%
16.7

60%

80%

10.5

31.8

44.8
50.6

39.0

Aware

100%

41.5

41.8

23.3

Male (n=917)
Female (n=973)

40%

Heard of the nameNot aware

As for the level of acceptance, those who claimed to agree are found to be 57.3%(“agree”: 18.5%, “somewhat agree”: 38.8%). Regarding the specific tendencies found in
the differences in characteristics, first of all, men tend to show higher level of
acceptance than women, and for them the positive correlation between the age and thelevel of acceptance is apparent as it was the case for the level of awareness. And it isfound that the majority (69.2%) are not demonstrating a strong position towards thepolicy, and such tendency gets stronger for women (85.5%) and those in the younger
age group.
Figure 3: Survey results about the level of acceptance towards STN(based on Cabinet Secretariat of Japan (2011))
0%20%

Total (n=1000)

18.5

Male (n=482)

24

Female (n=518)

Agree

13.4

40%
38.8
36.6
40.9

Somewhat agree

60%

80%

15.3

15.1

12.2

11.1

15.9

12.3

14.4

12

19.3

Don’t know

100%

Somewhat disagree

DisagreeThose who claimed that they disagree (27.3%) give reasons such as “concerns about
privacy (i.e. income, address, behavior) violations” (55.8%), “concerns about damages
caused by illegal use of personal information” (40.9%), and “concerns about monitoringfrom government” (34.5%), and the level of concern for them is found to be about 20%
higher than the average level (Cabinet Secretariat of Japan 2011).
It is found interesting that those with higher level of awareness tend todemonstrate higher level of acceptance, but at the same time, the level of awareness10seems to be correlated to the level of concern as well. Such results may not be sufficient
to prove that there is a causal relationship between the awareness level and theacceptance level or between the awareness level and the level or concern, but I believe
it can be used as a resource for further empirical studies related to this topic.
2.2 Data for Counter Visitors at a City Hall (Machida, Tokyo)
STN is like an access key for individuals to interact with the government, and we can
expect that it would have much to do with the paperwork and the procedures required
to register for social security services and pay taxes. Therefore, in order to come up
with a good marketing plan, understanding the characteristics of the people who areclosely involved with the procedures is deemed essential. Since the availability ofmacro-level information about the visitors who carry out administrative procedures atcounters of government offices is limited, let us take a look into a micro-level data to
draw some information at our best.
The data I have referred to is the results of the survey conducted on the visitorsof the City Hall of Machida, Tokyo as of 2010 (Table 2)2. According to the demographic
information found in the results, it is conspicuous that there are more women (53.5%)
than men (39.7%) among the entire visitors, and although the degree of such tendency
varies across divisions, it is found that women outnumber men in all divisions. Further,
it is worth noting that the tendency seems stronger in intensity at welfare related
divisions, while it tends to be weak in divisions such as Civil Affairs and Tax Submission.
As for the distributions according to age, visitors in 30s or 40s are taking the largest
share (70-80%) at the divisions related to childcare assistance, and the visitors of theother general welfare related divisions are mostly in the age groups of 60s, 70s or above(70-80%) (Machida City 2010).
From this data, we can make some general inferences, one of which would bethat more women than men are involved with carrying out the administrative
procedures. The reasons for such results are not examined, but the traditional role playin a family in Japan may provide one plausible idea: men work full time and women,
who have relatively more free time than men, are charged with carrying out
administrative procedures for household.
2

The survey was conducted September 9 -18 (for 7 days).
11Plus, the results are found consistent with the general expectations that people
in the senior ages are the major beneficiaries of the welfare services.
Hence, we conclude at this point that the reference data gives support to theidea that women and seniors may be the groups that would be not only mostly likely to
become involved with STN, but also exhibit high willingness to participate in the policy
by complying with the suggested directions.

12

Table 2: Visitor counts for the City Hall of Machida, Tokyo, September 9-18, 2010 (based on Machida City (2010))
Sex (%)

Age group (%)

Counter ofdivision

VisitorcountsMale

Female

Total

4388

39.7

53.5

No
response
6.9

Civil Affairs

735

46.6

49.7

Petitions

53

34

Senior Welfare

87

18.2

70 or
above
21.2

No
response
1.9

14.6

17.3

15.2

0.4

17

13.2

32.1

18.9

-

8

5.7

4.6

20.7

59.8

1.1

-

-

14.3

7.1

35.7

42.9

-

-

3.8

19.2

20.5

12.8

17.9

24.4

1.3

8.2

-

3.4

13.6

22.4

15.6

19

25.2

0.7

76.7

-

-

13.8

51.7

26.7

1.7

4.3

1.7

-

15.4

82.1

2.6

-

10.3

51.3

38.5

-

-

-

-

423

43.3

49.6

7.1

0.2

15.8

15.8

13

13

18.4

21.3

2.4

261

38.3

57.1

4.6

1.5

10

16.1

10

13.4

16.1

33

-

Asset Tax

49

46.9

49

4.1

-

14.3

8.2

18.4

24.5

10.2

24.5

-

Tax Submission
Machida Station
Branch

29

48.3

48.3

3.4

-

10.3

10.3

37.9

24.1

6.9

10.3

-

387

30.7

56.1

13.2

2.1

9

12.4

13.4

14.7

13.4

31.3

3.6

GeneralWelfareLife Support
Welfare for the
Disabled
Childcare
Affairs
Childcare
AssistanceInsurance andAnnuity
Civil Tax

10s

20s

30s

40s

50s

60s

1.3

10.3

17.6

15.7

13.9

3.9

2.9

15.4

19.6

14.7

64.2

1.8

-

3.8

15.1

34.5

60.9

4.6

-

-

14

7.1

92.9

-

-

78

46.2

47.4

6.4

147

36.7

55.1

116

23.3

39

13

2.3 Online Service Use Rates for Administrative Procedures Related to Social Security
and Tax
The benefits that will be delivered by STN, in large part, come from the online service
provided by My Portal. And in fact, the online service counters for the social security
services and the tax payments are currently available in the forms of “e-Gov3” and “eTax4”; therefore, disregarding the fact that My Portal provides an integrated online
interface for carrying out procedures in both of the areas and requires the new IC cardfor the access, the core services that will be offered by STN are already in service for the
citizens.
According to Table 3, which illustrates the online service usage rates of the majoradministrative procedures received by the national government as of 2010, the rates
are 46.9% and 1.7% for the tax (e-Tax) and the social/labor insurance (e-Gov)
respectively. It appears that the use rate is particularly low for the online service
counter in the area of social security.
Table 4 shows more details of e-Tax use rates (as of 2011) categorized into thetype of procedures. It is noticeable that the use rates tends to be higher for the
corporate tax payers (corporate tax return: 65.4%, consumption tax return: 92.6%)
than for the individual tax payers (income tax return: 45.1%, consumption tax return:
40.1%).

3
4

Introduced in 1998
Introduced in 200814

Table 3: 71 major administrative procedures governed by the national government
and the fraction of procedures performed online (based on Ministry of Internal Affairs and Communications of Japan (2010))
Areas

Registrations

National
tax

Social insurance/labor insurance

Imports and exports/
port arrivals

Industrial property
rights/patents

Vehicleregistrations

OthersNumber ofprocedures

5

15

21

20

1

1

8

Fraction of procedures
performed online

50%

46.9%

1.7%

94.9%

93.6%

24.9%

N/A

Table 4: e-Tax use rate on the major procedures for taxation (based on National Tax Agency of Japan (2011))
Areas

Number of uses

e-Tax use rate

Income tax return

8.9 million

45.1%

Corporate tax return

1.7 million

65.4%

Consumption tax return(sole proprietor)

0.6 million

40.1%

Consumption tax return(corporation)

1.8 million

92.6%

Employment income withholding slip

1.5 million

62.4%

Payment record of interest, etc.

0.2 million

76.4%

15

These data about e-Tax, in particular, do help us understand the situation of thecurrent use to a certain degree; however, we need to note that the data may not bereflecting the true usage rates, since the values include the counts of the procedures
carried out by representatives such as tax professionals.
In order to get closer to the true use rate, I have further looked into an additional
resource, a survey conducted by a private institution on the people who filed or will file
the tax return as of the year 20105. According to the results, those who responded thatthey “file the tax return by visiting tax office” took the largest portion with 32.6%, while
those who said they use e-Tax came in the second at 15.8% (see Figure 4).
Figure 4: Share of tax return filing methods (based on Rakuten Research (2010))
0%

20%
32.6

40%

60%

15.8

80%

11.5

100%

40.1

Actual visit to tax officee-Tax
Create at NTA homepage and submit the hard copy at tax office
OthersAs to the question of whether they are aware of e-Tax, about 88.3% of the
respondents said they are aware that e-Tax is available as an option for filing tax return.
Figure 5: Level of awareness for e-Tax (based on Rakuten Research (2010))
0%

20%

40%

60%

80%

88.3

100%
11.7

Aware

Not aware

And to the question asking for reasons of not using e-Tax, “procedures required forusing e-Tax are cumbersome” (28.2%), “IC card reader costs money” (15.9%),“electronic ID costs money” (10.6) were the major responses.

5

Rakuten Research (Internet survey, February 2010, n=1000)
16Figure 6: Reasons for not using e-Tax (based on Rakuten Research (2010))
0%

20%
28.2

40%
15.9

60%
10.6

80%

100%

45.3

Procedures required for using e-Tax are cumbersome
IC card reader costs money
Electronic ID costs money
OthersWhat the above results suggest are, firstly, that there exists a large gap between
the level of awareness (88.3%) and the level of usage (15.8%). And it is suspected thatthe growth of the use rate is subdued mainly due to the burden of the preliminary
procedures and the costs for purchasing the IC card and the electronic ID (Rakuten
Research 2010).
The implication of the above result towards STN would be that there is a highchance that STN would inherit the problem of low demand in the online counter
services, since STN would hold the exact same problem of posing not a few start-up
costs on the users as e-Tax and e-Gov do, which is in fact the very reason why thedemands for the aforementioned services have been stagnating.
2.4 Attitude of the Japanese public towards information sharing system
Since 1968, there had been several attempts by the Japanese government to implement
national identification number system, which would allow information sharing among
government bodies, but none have been completely successful. The reasons for the
failures were known as that the merits expected to be gained by introducing the id
number system at the times were perceived to be not large enough to cover the costs
related to the implementation (Morinobu and Kobayashi 2011). And the costs for
introducing the national id number system were largely due to the privacy concerns of
the Japanese public. It would be beyond the scope of this paper to discuss about thecultural differences on the attitudes towards the information technology, but according
to the previous studies in sociology, on the pathway that the Japanese society had
formed advanced information networks, several incidents of privacy invasion in thepast had fostered uniquely reactive attitudes towards the information technology
17among Japanese people, who have particular tendencies to cherish individual
personality and inner values (Tamura 2004). The controversy over the Juki-net, anationwide computer network, which allows the residents’ basic information to beshared among the municipal governments, partially illustrates the intensity of theprivacy concerns shared among the Japanese people (Bowe 2012)6.
It is certainly true that the privacy concerns are critical issues as far as theimplementation of STN is concerned. However, as it is shown on the survey results in
2.1, where the acceptance level of STN reached 57.3% as of 2011, just because one issensitive to the privacy protection issues may not necessarily mean that one would
automatically take the position of objection to the national ID system. Further, due tothe large penetration of the internet and social network websites, the latest trends showthat the Japanese people have become less sensitive toward the privacy protection
issues.
I would like to note that there are three major implications of theaforementioned findings towards building marketing strategies for STN:The reactive attitudes of the Japanese public towards the information
sharing system must be given due account when marketing STN. The
complexity in attitude towards the policy shared among the Japanesepeople may mean that a large investment in the marketing could yield asmall return in terms of the participation level. Or, it could mean thateven though the participation level may eventually increase to a highlevel, it may require a substantial amount of time.

6

A direct excerpt from the article reads as follows:
The Juki-net became a major source of controversy in Japan when it was
launched [2002]. A newspaper opinion poll conducted just before
implementation found that 86 percent of respondents were afraid of data leakage
or improper use of information, while 76 percent thought implementation should
be postponed. Several lawsuits challenged the new system, charging that itconstituted a violation of the right to privacy guaranteed by Article 13 of theJapanese Constitution. Protests were mounted as well; 70 municipal assemblies
and 29 mayors passed resolutions demanding the government postpone Jukinet’s implementation. In one city, whose mayor made it possible for citizens to
opt out, 839,539 citizens went to city offices to register for non-participation.
Following a Supreme Court ruling that found Juki-net to be constitutional, thecitizens who’d requested to opt out were enrolled anyway (Bowe 2012).
18



It would probably be important to take a look into the distributions of
the attitudes, as well as the average level of attitudes, and design a goodtargeting plan. The survey results suggest that the people who are taking
a strong position of objection are merely 12.2% of the entire population(Cabinet Secretariat 2011).



The fact that STN is closely related to the privacy issues is apparently aweakness. Therefore, instead of focusing on persuading the public thatthey are being over reactive to supposed dangers, it would perhaps bebetter to appeal the benefits that can be delivered by the policy and let
the public decide. If the public become to think that the privacy invasion
risks involved with STN are minimal compared to the benefits that will
be realized by the policy, they will choose to participate.

3. Reference Data: Findings from Existing Policies
In this section, I will bring forth the cases of four existing policies, which are considered
to have made a success in policy marketing, and analyze the major factors that havecontributed to the desirable outcomes. The purpose is to gain information fromreference cases and draw implications toward the marketing plan for STN, and, above
all, to verify the validity of the strategic framework I will be presenting in the next
chapter with the real world cases. The policies we will be looking into are:

“Cash Receipt System” in South Korea

“e-Tax Invoice System” in South Korea

“COOL BIZ” in Japan

“Plastic Bag Reduction Campaign” in Japan“Cash Receipt System” and “e-Tax Invoice System” are similar to STN in the sensethat they deal with information sharing infrastructure established for tax purposes.
“COOL BIZ” and “Plastic Bag Reduction Campaign” do not share much in common with
STN in terms of subject matter, but in the aspect that they all involve eliciting
participation from the identical target (basically the general public in Japan), it is foundthat referring to those two policies is worth taking into account.

193.1 “Cash Receipt System” in South Korea7
Cash Receipt System (CRS hereafter), which was first introduced by National Tax
Service of Korea (NTS hereafter) in 2005, is a policy designed to enhance transparencyof the information on the tax report and therefore bring out the notion of fair taxation. It
had often been treated as a problem by the Korean Government that the self-employedtax payers, who make estimated tax payments, were prone to provide false or
fraudulent information about the income from the cash transactions on their tax report,
while there was no realistic measure other than the ex post tax investigation to deal
with it. Such situation was thought unfair, especially when compared to the fact that theemployment income taxation is strictly executed through withholding. CRS was theninitiated as a taxation infrastructure component that can lessen such problems throughthe use of instant electronic information transfer.
The policy was designed in such a way to fulfill its purpose, and in particular, it
has proposed to do the following to the public:<Consumers> When making a cash payment at a store, request the store to print a cash
receipt and obtain ID verification.
 Register at the official homepage and check the transaction information
online.
<Retailers>
 Register as a member and have the necessary device installed on the credit
card terminal When a cash receipt is requested by a customer, verify the customer’s
identification, print it by operating on the terminal, and hand it to thecustomer
While putting aside whether the policy has served well its purpose per se, let us
now bring our attention to how much it has succeeded in getting the target audience toparticipate in the directed actions. Table 5 below summarizes some indexes that shows
the change in the participation level.
Table 5: Indexes showing the participation level of Cash Receipt System(based on National Tax Service of Korea (2012))

7 This section is written based on Lee and Watanabe (2012) and the interview with Dong Gu
Yang and Yoon Ju Park held on September 12, 2012.

20

Year

2005 (Introductory Year)2011 (7th year)

Rate of
Increase# of Member Stores

1.1 million

2.4 million

111%

Number of Print

0.45 billion

5.2 billion

1053%

18.6 zillion KRW

81 zillion KRW

335%

4.1％

12.4％

202％

Total Amount of Cash Receipted
Transactions (A)Share of (A) out of the Total
Private Consumption
Expenditure

As suggested on Table 5, the participation level for CRS has grown extensively over theyears, and it has been further noted by NTS that the retailers, who were later designatedfor obligatory membership in 20108, are showing near 100% of participation level atthe current. Overall, CRS is being evaluated as a successful project by the policy makers,
at least in terms of the participation rate of the target audience (National Tax Service of
Korea 2012).
What then would have contributed to such high penetration? CRS is , inparticular, characterized to employ various strategies for penetration purposes, but noquantitative analysis has yet to be performed as to which of them were found the mostvalid. Nevertheless, what the policy makers find as some of the most compelling
instruments, as far as CRS is concerned is, are extensive promotional activities andincentive-compatible policy architecture.
So far, no specific statistics have been provided by NTS as to how much
expenditure have been spent on what area as far as “policy marketing” is concerned;
however, it has been widely reported that NTS has made extraordinary efforts inpromoting the policy. The tools that were taken into use were ranging fromadvertisements through mass media such as television, radio, newspaper, homepage,
community paper, subway commercials, leaflets and magazines to interactive media
such as naming contests, logo contests, marketing team contests, and amateur
marketers’ blogs. As well as the ongoing advertising efforts, numerous one-time eventswere held in parallel to draw the public’s attention. To name one, a two-day street
campaigning event was held with the participation of about 17 thousand people
consisting of NTS staff, tax accountants, celebrities, and various consumer/businessassociation members. Also, managing a “30-day trial period” one month before the start
8 All corporations, self-employed businesses with sales amount greater than 2.4 million
KRW in the previous fiscal year, and businesses of certain industries designated by law

21

of the policy is another good example of NTS’s promotional efforts. NTS states that theseseries of activities aimed mainly to (i) raise the level of recognition and (ii) build apositive image towards the policy.
Another strong component that is perceived to lead to success in penetration isthe exquisitely designed “incentive-penalty” mechanism. The details are summarized assuch in Table 6.
Table 6: Incentives and penalties pertaining to Cash Receipt System(based on Lee and Watanabe (2012))
Target Audience

Incentives

Penalties

Retailers

VAT deduction

Fine
Tax investigation

Consumers

Entry to Lottery
Income tax deduction
Monetary reward for reporting violation

None

One thing that needs to be noted regarding this incentive-compatible system is that thepolicy is grouping the targets into a group that is the main target in regards to the very
purpose of the policy and a group that works as a cooperative partner. And whenallocating the incentives and penalties to each group, the “target group” confronts amenu of both incentives and penalties where more weight is being placed on the side ofpenalties, while the “partner group” is blessed with whole set of incentives. From theperspectives of the game theory, this can be interpreted as a rational strategy where thepolicy makers treat a group of less bargaining power with “stick” and a group of higher
bargaining power (or group that requires higher cost to manage) with “carrot”. It is alsointeresting to note that monetary incentives such as the lottery system ended within a
few years and sticks such as imposition of obligatory membership became strengthened
gradually, seeing that the policy settled into a usual pattern of cash transactions.

223.2 “e-Tax Invoice System” in South Korea9
e-Tax Invoice System (ETS hereafter) , a policy that enforces electronic endorsement oftax invoice, is designed to enhance transparency of the information on the tax invoice,reduce compliance costs, and promote fair taxation particularly in regard to the VAT.
The purpose and role of ETS is very similar to that of CRS, except for the fact that ETS is
introduced to cover the transactions between businesses while CRS is to cover the cashtransactions between retailers and consumers.
ETS was first introduced in 2001, but its use did not penetrate much except
among the large corporations and their partners. The reasons were, firstly, the first-costhurdle (i.e. personal computers, learning cost, ERP) prevented small businesses fromparticipating. Also, the paper-based tax invoice was comparatively easy to fraud andthat provided another reason for businesses to prefer the paper-based one, especiallywhen they had a right to whichever option to choose. And lastly, even if one issued a tax
invoice electronically, he or she would have had to transcribe that information into aseparate paper-based tax invoice for tax reporting purposes, which was cumbersome
and time consuming.
NTS recognized these problems and initiated the “policy marketing” of ETS
starting from 2008. The change first began with simplifying the process flow of theinvoice exchange. The new process flow, introduced by the policy, is as follows:Seller collects VAT together with the supply price of good or service frombuyer.
Seller issues an e-tax invoice using electronic ID and sends it to buyer via email.
Seller sends the issuance information to NTS electronically by a designatedday of every month.

Next, NTS came up with a plan to make the electronic endorsement of tax invoicecompulsory for all businesses by 2010; however, it has later changed so that the
obligation rule applies to large corporations starting from 2011 and to self-employed

9This section is written based on Lee and Watanabe (2013) and the following interviews:
 Dong Gu Yang and Yoon Ju Park (September 12, 2012)
 Kyung Geun Lee, Kyung Hwan Lee, and Michitaka Harayama (September 12, 2012)
 Kyu Sung Lee, Tae Jong Shin, and Hwan Soo Kim (September 18, 2012)23

businesses with sales over 1 billion KRW from the year 2012, since many businesses
were having much difficulties in adjusting to such change.
The start was not smooth, but now it has become evaluated by the policy
makers and media that it has settled well. It has been reported by NTS that those withobligatory responsibility are exhibiting near 100% of participation level and there aremany small businesses who are participating even if they are not obligated.
One reason for the success in bringing up the penetration level is, just as it was
the case for CRS, the active use of the incentive-penalty system. It includes a monetary
incentive in the form of VAT deduction and exemption of some paperwork obligations
pertaining to the paper-based tax invoice. However, what is being perceived to be themost powerful as to the impact on the target audience is the existence of strong
penalties. It first began with incentives and no penalty, and it has gradually changed sothat noncompliance would lead to additional tax that equals 0.1~0.2% of sales amount10
of applicable transaction. After giving 1 year of grace period, the tax rate boosted up to
1%, which ultimately pushed the compliance level up high. And now that thepenetration is perceived to reach saturation level, the additional tax rate has beenraised to maximum of 2%.
It is certain that the “stick strategy” has been the most powerful tool to influence
the behavior change of the target audience for ETS; however, we can infer from theresistance reactions at the introductory period that imposing obligatory responsibility
or introducing penalties alone would not have fulfilled sufficient condition for thecurrent result. In fact, substantial amount of efforts have been paid to (i) make it a userfriendly policy and (ii) improve the recognition level and image value.
How the policy has become something that grants practical values is shown by
the survey result disclosed by NTS. The survey had responses from about 62 thousandpeople representing each business and the majority raised hands to “e-tax invoice ismore convenient than the paper-based invoice and is easy to use”. And according to theestimation results published by Korea Institute of Public Finance, the net national
compliance costs saved by the introduction of ETS are calculated to be about 700 billion
KRW. Such results suggest that policy makers were actually interested in meeting theneeds of the users, and it is further proven by the facts that NTS has continued to10This amount refers to sales amount exclusive of VAT.
24

manage a variety of communication channels like opinion hearing sessions, surveys, andbulletin board system on the internet targeting tax accountants and businesses.
The promotional efforts are also found to be strategically planned. The official
homepage of ETS, where businesses can issue e-tax invoice online, is named “e-sero”
meaning “electronic pathway to tax payment”. The term “pathway” has a positive
connotation attached to it particularly in the context of Korean culture, and the nameseems to help form a positive image towards the policy and convey a message at thesame time that ETS is the right channel to use when it comes to tax. Further, it is foundthat the target audience for the promotional activities changed from indefinite whole toa specific group over time. At the beginning phase of the policy marketing, efforts weremade mainly to raise the recognition level and the mass media or campaigning eventswere the main tool that were taken into use. After the policy acquired a certain numberof users, NTS went on to specifically target the businesses that had never used the e-tax
invoice. The messages delivered to the audience were then focused on the merits andmonetary incentives, and the activities involved actual visits to each business andnumerous information sessions held at the local level. I find that such efforts to draw
participation from the target have great similarity to the sales and marketing activities
performed by private enterprises.
3.3 “COOL BIZ” in Japan11
COOL BIZ (CB hereafter), a policy introduced by the Ministry of Environment of Japan(MOE hereafter) in 2005, began as a part assignment of an environmental movement
called “Team minus 6%”. The movement, which was organized with a purpose to reduce
the greenhouse gas level by 6%, put up a slogan of “Let’s set the office temperature at 28
degrees Celsius in summer”, and CB started as a clothes suggestion for the office
workers to wear light and cool clothing that is suitable at the temperature. At first, there
was no particular dress code designated when referring to “light clothing”, but later, it
developed into indicating “open collar and no jacket or tie”.
The policy is evaluated to have penetrated well into the office culture in Japan.
Table 7 summarizes the results of the surveys conducted by Cabinet Office, Governmentof Japan, and it shows that the participation level was quite high even at the11This section is written based on Ministry of the Environment of Japan (2013).
25

introductory period, and in 2009, more than half of the target audience are found to beparticipating in the movement.
Table 7: Indexes showing the penetration level of COOL BIZ(based on Cabinet Office of Japan (2009))
2005 (Introductory Year)2009 (5rd year)

Awareness

76.6%

91.7%

Acceptance

-

81.5%

Actual practice

30.9%

57.0%

Setting the temperature at over 28
degrees Celsius (at home)

-

63.0%

What then would have given it such power to penetrate into the lifestyle in theoffice? It is assumed that there are three major components that explain why.
Firstly, substantial resources and efforts have been spent on the promotional
activities. It is reported that a wide variety of media including television, newspaper,magazines, radio, lamp-post posters, subway posters, and pc and mobile websites havebeen into use. And according to a report released to the press by MOE, it has spent
about 2.7 billion JPY a year for promoting the projects of “Team minus 6%” (2006), andwe can at least infer from this that the expenditures spent on CB would not be a trivial
amount.
Next, the policy actually supplied practical values to the target audience andthere were population of potential customers who were ready to purchase the “service”
provided by the policy. First of all, for men, the new dress code CB suggests officiallyjustifies escape from the orthodox business attire that is hot, uncomfortable andlimiting one’s mobility. Women, whose average preference for temperature tends to belower than men’s, welcomed it as well since they would no longer need to negotiate
over the setting of temperature. For businesses, some argued that not wearing suitableattire would have bad influence on them, especially when salespersons deal withcustomers. However, they rather seem to appreciate the policy that by participating,they earn better reputation as they are perceived by the public as environment-friendly
enterprise. Plus, more benefits were earned through savings on power expenses.
According to Tokyo Electric Power Company, the savings on power through the26introduction of CB for the year 2005 are estimated to be about70 million kilowatt hourin the aggregate (2005 cited in Press Net Japan 2005).
Last but not least, careful endeavors to “fine tune” the policy have been made sothat the public finds it easier to follow and participate in.
Back in 1979 after the second oil crisis, “Shou Ene Looks (SEL hereafter)”, amovement that promoted to wear half-sleeved suits and shirts in offices, wasintroduced in Japan. The methodology as to the purpose of energy saving stood in thesame line with CB but it did not spread among the public. The reasons were, firstly,
people thought the outfit suggested by the policy was silly and frumpy. The policy
makers of SEL apparently neglected to see that clothes are closely related to people’s
needs to appear fashionable and stylish. The name also had negative connotations
associated with it, since the Japanese word “Shou” gives an image of “cutting something”.
Further, the suggestions of SEL were costly and not likely acceptable for many, since
one would have to purchase a new set of clothes or cut the sleeves in half to follow thedirections (Harada 2011).
CB picked up this previous case of failure and changed these elements so that it
would match the tastes of the public while keeping the original essence. As we look at
the name “COOL BIZ”, a coined word chosen by holding a naming contest, the meaningof the adjective “COOL” is associated with not only being “moderately cold” but also
being “fashionable”. The directions have become much more simple and handy as well;
all that need to be done are, open the top button of the shirt and wear no jacket or tie(Harada 2011). It is found that such small “adjustments” that took into account the
stance of the policy participants did not involve huge invention or large cost but such
efforts allowed the target audience to find it much easier to attach themselves to it.
3.4 “Plastic Bag Reduction Campaign” in Japan12
Plastic Bag Reduction Campaign (PRC hereafter), a policy led by the Ministry ofEnvironment of Japan (MOE hereafter), began as an assignment that is bundled with aproject called “3R (Reduce-Reuse-Recycle) of Waste Containers and Packaging”.
With ever-increasing recognition that plastic bags take up a large volume ofhousehold waste, there had been voluntary movements to reduce the use of plastic bags
12

This section is written based on Ministry of the Environment of Japan (2013).
27

operating at the local level for years, and later MOE took the lead to develop it into anation-wide movement starting from 2006.
The campaign, which particularly involves consumers and retailers, suggeststhat they do the following:<Consumers>
 Bring one’s own bag (this is called “my bag”) when shopping at a store, andrefuse to receive plastic bag at the cashier Refrain from purchasing over-packaged products<Retailers> Set a specific goal for plastic bag reduction and plan out to achieve that goal Provide the information about the in-store campaign, and employ “carrot
and stick” methods to lead consumers to refrain from using plastic bag. The
methods would include charging money for plastic bag, distributing durable
shopping bags (“my bags”), and granting membership card points for those
who refused to receive plastic bag
 Ask each consumer at the cashier if he or she would need a plastic bag
Even under the MOE’s supervision, the campaign has basically continued tooperate on a local basis, and therefore, the participation level of the campaign isperceived to differ substantially depending on local districts. For that reason, it isdifficult to measure the aggregate estimate of the penetration level for the entire nation.
Nevertheless, it is found that the movement has expanded while major franchise storesand some municipal governments are taking active roles as co-leader, and the results
seem to have been satisfactory. Table 8 displays the change in the rate of plastic bag
refusal by consumers at the member stores of Japanese Chain Store Association (JCSA),
and it shows that the rate starts to accelerate in 2008 and continues to rise at a faster
speed.
Table 8: The rate of plastic bag refusal by consumers at the member stores of JCSA
(based on Japanese Chain Store Association (2013))
Rate ofRefusal

2006

2007

2008

2009

2010

2011

2012

13.3%

13.9%

15.7%

18.5%

25.0%

31.0%

37.4%

And as for Suginami, Tokyo, the area of which municipal government is known formaking extraordinary efforts in promoting the campaign, the rate for “my bag” usage by28

consumers is high, particularly at supermarkets, and it further experiences a rapid risefrom the year 2008 to 2009, as shown in Table 9.
Table 9: The rate of “my bag” usage by consumers at retailers in Suginami, Tokyo(based on Tokyo Metropolitan Television Broadcasting Corporation (2010))
2008

2009

Supermarket

26.2%

56.2%

Convenience Store

13.3%

13.9%

To explain about the reasons for the success of the campaign, I would like toname three things as the factors that have contributed the most.
First, the purpose of the campaign falls into the category of “environment
protection”, which is a value that is easily understood and readily accepted by the publicat large. According to a survey conducted by MOE in 2007, the results suggest that 49.4%of the population agree with the campaign while 28.9% found it disagreeable.
Second, MOE have made strategic alliances with the retailers and municipal
governments that are advanced in leading the campaign. By making the alliances, MOE
became not only strengthened in reaching out to consumers at the tangible local levelbut also able to provide good model cases for the businesses and municipal
governments in their planning and formulation of actions.
Finally, MOE has designed an effective “dual-layer” incentive-compatible
structure targeting businesses and consumers.
According to a report that analyzes consumer behavior in regard to My Bag
Campaign in particular, the effects of promoting the campaign by appealing to the moral
emotions alone were low while granting incentive compensation of various forms wasfound more effective. The incentive structure designed by MOE reflects theunderstanding of such behavior patterns (Yasuda and Marumo 2008).
The structure is constructed as follows: first, it categorizes the target audience
into “target group” and “partner group”. This pattern may have much in common with
CRS introduced in 3.1., but in contrast to CRS, that retailers are the “partner group” andconsumers are designated as the “target group”, meaning changing the consumer
behavior is the ultimate goal of the campaign. The first layer of the structure, which is a
blend of “carrot” and “stick” methods, is targeting the retailers and the municipal
29

governments, the “partner group”, and its purpose is to have them (i) make efforts toachieve the plastic bag reduction goal and (ii) take the role as agent and come up with
their own strategies to set up incentive structures towards the consumers, the “target
group”. This, in other words, implies that the second layer of the structure is created,
not directly by the policy maker, but through the principal-agent relationship formed by
the first layer of the structure. The details of the structure are summarized in Table 10.
Table 10: Dual-layer incentive-compatible systempertaining to Plastic Bag Reduction Campaign
Layer

Action Taker

TargetCarrots

Sticks1

Ministry ofEnvironment

Businesses

Deduction in theimposed charge

Imposition of legal responsibility
to recycle/reduce plastic bags
Imposition of charge in responseto the amount of plastic bags
produced and distributed
Punishment for not accomplishingthe imposed responsibility

1Ministry ofEnvironment

Municipal
Governments

Provision of subsidy

None

2

Businesses

Consumers

2

Municipal
Governments

Consumers

Distribution of “mybag”
Granting membershipcard point
Purchase discountGranting “regional
currency” that can beexchanged with trashdisposal bags

Charging money for plastic bags

None

One thing that is apparent in Table 10 is that the businesses are mainly treated by MOEwith “stick” strategies while other entities face more of “carrots”. One reason could bethat the Japanese Government is thinking the businesses are the ones who are the most
responsible for resolving the environmental problems caused by the plastic bags. On theother hand, we can think of it in a way that it is because the businesses are with lessbargaining power compared to the consumers or it is less costly, time-wise, politicallyand monetarily, for the government to manage the businesses than to manage theconsumers. Such inference is found to be consistent with the evidences drawn from theprevious cases of 3.1 Cash Receipt System and 3.2 e-Tax Invoice System.

30

4. Introducing a Strategic Framework for Policy Marketing
In this section, I will be introducing a strategic framework that can be applied to explain
the relationship between the characteristics of a policy and the level of participation to
the policy.
I would like to put forth a few propositions to the demonstration of theframework, and they are:

The participation rate toward a policy is determined by the awareness level andthe factors that impact the behavior of each individual in a society.



The factors influencing each individual’s behavior consist of three major
components:(i)

how much benefits are provided by the policy(ii)

how big is the degree of acceptance toward the participation
behavior(iii)

whether the benefits and the acceptance level mentioned in (i)and (ii) less costs of participation are large enough to elicit
participation reaching critical mass13

And since the framework is designed to focus on the effects of the behavior factors on
participation rate exclusively, it assumes that everyone in the system is aware of thedirectives of the policy and the effects of the awareness level and that the effects of the
behavior factors are mutually independent.
With these as premises, we can formulate a hypothetical framework that
explains the correlations among the three factors mentioned above. Figure 7 below
demonstrates how it works.

“Critical mass”, which is an aspect of the theory of Diffusion of Innovations, proposed by
the sociologist Everett Rogers, refers to a sufficient number of adopters of an innovation in asocial system so that the rate of adoption becomes self-sustaining and creates further growth. In
this framework, we suppose that there exists a unique and fixed point of critical mass in everysocial system (Rogers 2003).
13

31

Figure 7: Sets of acceptance level and benefits
and their relationship to achieving critical mass

The level of satisfaction derived by both the benefits and the level of acceptance can be
represented as “a point” on the plot of “benefits” versus “acceptance level” in Figure 7,
and a group of the points representing an identical level is given as “a curve” on the plot.
For the ease of exposition, let us suppose that the curve marked on the plot particularly
represents the highest possible level of satisfaction that can be earned by an individual(or by a group of individuals), given that the level of satisfaction follows a certain
distribution with finite variance among the individuals in the system.
Here, the curve denoted byrepresents the minimum level of satisfaction

required for participation to reach critical mass, with costs of participation given, andthe curverefers to the minimum level of satisfaction required for the participation

rate to stay above zero. Hence, if a point for a new policy is found in the area denoted byD, it means the participation rate would continue to be zero, and if it is located in E, therate will be somewhere in between zero and the point of critical mass. And if thebenefits and the acceptance level are sufficiently large that the point is foundsomewhere in F (the shaded area), the participation rate will gradually increase andaccelerating as the rate is pushed beyond the point of critical mass until it reaches acertain higher value. Such structure of dynamics suggests that if policymakers cancontrol the values of acceptance level (A) or benefits (B), the participation rate can goup, possibly reaching critical mass and further upwards.
32

Further, let us suppose the case where the costs of participation have been
reduced. The result is, as illustrated in Figure 8, thecurve shifts to the left and theminimum level of satisfaction required for participation to reach critical mass (decreases fromto)

. Due to the change, a policy, of which level is identified in

the area denoted by G, becomes to acquire a sufficient number of participants reaching
critical mass. Such illustration implies that policymakers can succeed in achieving
critical mass by raising the benefits or acceptance level by a small or zero increment, if itis preceded by eliminating or reducing the switching (participation) costs individuals
need to pay at the initial participation.
Figure 8: Reduction in switching (participation) costs and change in minimum level of
acceptance and benefits required to achieve critical mass

With this framework as an underlying scheme, I have structured an optimal
procedure for implementing policy marketing strategies as follows:(i) Identify the cost factors associated with participation to the policy, andeliminate or reduce the burden of the costs to the maximum possible extent(switching cost strategy).

33

(ii) Identify the groups of people who are likely to highly evaluate the satisfaction
derived by participating in the policy level and set them as major targets for themarketing plans (targeting).
(iii) Identify the degree of satisfaction individuals earn by participation anddetermine the amount of raise (target level) in the acceptance level (branding
strategy), the benefits (benefit strategy) or both, depending on the relative costof controlling each factor.
And here are a few caveats I would like to add to the above procedure:
Raising the (social) acceptance level can be difficult, costly, and time-consuming,and the outcome of a successful project can oftentimes be a small change.

“High introductory benefit strategy” (raising B substantially high by providing
momentary compensation), which involves providing monetary incentives
during the introductory period and abolishing or reducing it after theparticipation rate reaches at a sufficiently high level, is particularly considered
as an effective tool. The reason is that, existing participants are likely tocontinue to stay as long as the benefits are at least zero or above, sinceindividuals no longer take into account the switching costs they paid at theinitial participation when making decisions.



Some may argue that switching cost strategy is one kind of benefit strategy andthe effects of both strategies are identical as long as the change is made in thesame amount in the monetary form. One reason that I can give for distinguishing
the switching cost strategy from the benefit strategy is based the idea that thewillingness to pay (WTP) differs in the size from the willingness to accept (WTA)(Robinson and Hammit 2010), where WTP corresponds to switching costs andWTA corresponds to benefits received by participating14. A number of empirical

The direct excerpt from Robinson and Hammit (2011) for the definition of WTP and WTA
is as follows:
WTP and WTA can be used to value beneficial or harmful changes. For a beneficial
outcome, WTP represents the maximum amount of money an individual would be
willing to give up in exchange for the amenity, while WTA represents the minimum
amount he would need to be paid to forego, rather than gain, the amenity. For aharmful outcome, WTP is the maximum an individual would pay to avoid the harm,and WTA is the minimum he would require to accept the harm (2011: 11).
14

34

studies in behavioral economics have found that there are substantial
differences between WTP and WTA and behavioral economists argue that thesegaps cannot be fully explained by income and substitute effects and emphasize
the implications of the prospect theory15 for this divergence as opposed to the
expected utility theory. Knetsch (2005, 2010), in particular, notes that given thereference state is one’s current status, WTP for a gain is smaller than WTA for aloss of the same magnitude. This, in other words, means that people value thechange more highly if it is viewed as a loss from the reference state rather thanas a gain. I believe this supports the idea that one unit decrease of switching costhas a stronger impact on the participation decision than the increase of benefit
in the identical amount.
4.1 Analysis of the Findings in 3 Using the Strategic Framework
In this section, I will analyze the findings stated in “3. Reference Data: Findings from
Existing Policies” by applying the strategic framework for policy marketing introducedin the previous section.
(a) “Cash Receipt System” in South Korea
CRS is introduced to capture cash transactions for tax purposes, and the policy itself
does neither offer much benefit for each participant nor does it present values that arecharming enough to attract the general public to participate. Therefore, we can locate
the starting point in the area of low benefits and low acceptance level on the plot of thestrategic framework. And for CRS, what is considered to be the most powerful strategy
among all the efforts made to raise the participation rate is the active use of the
incentive (benefit) strategy, characterized by income tax deduction, lottery system, andmonetary reward for violation report. The lottery system, in particular, was later
abolished after the level of participation rose substantially high. Therefore, as depicted

According to the prospect theory, a behavioral economic theory proposed by Daniel
Kahneman and Amos Tversky, people evaluate losses and gains expected from making adecision using certain heuristics (1979). And “heuristics”, in psychology, are defined as certain
rules that determine how people form judgments and make decisions. These rules work
consistently with logic, probability, or rational choice theory for most cases, but they can also
lead to systematic deviations from what are considered as rational choices. These errors arecalled “cognitive bias” (Lewis 2008: 43).
1535

in (a) of Figure 9, the high introductory benefit strategy is perceived to be the major toolthat was used to boost the participation rate.
(b) “e-Tax Invoice System” in South Korea
At the beginning, how ETS first appeared to the businesses, which are used to the papertype tax invoice, may be expressed with the words “burdensome” and “difficult tofollow”. Not only it was low in the aspect of benefits or acceptance level, but also did it
pose high switching costs (high learning costs and equipment costs in particular). How
the Korean government coped with the barriers was to extensively raise non-switchingcosts (this would have an identical effect with “reducing switching costs”) by imposing
strong penalties for not participating. There had been some political resistance during
the initial period, particularly from small businesses, and the policymakers gave one
year “learning period” until they become used to the “new rule”. The penalties for
nonparticipants were weak at the beginning and the government made it graduallystrong as the participation level grew. Now most businesses under the regulations aredemonstrating a high level of compliance to the directives of the policy, and they now
report that the benefits of using the e-Tax invoice surpass that of the paper-type invoice.
All in all, the switching cost strategy is found to be the strongest factor that helped ETS
penetrate into the business environment. The marketing scheme for ETS within thisframework is illustrated in (b) of Figure 9.
(c) “COOL BIZ” in JapanLet us first consider the case of SEL as the mother form of CB. Due to the fact that SEL
was a policy pursuing environmental sustainability, which is a value easily understoodand readily accepted by the public, it is conjectured that the acceptance level for SEL
may have been at least at a moderate level. However, the style of outfit suggested by thepolicy was found “unstylish” and “hard to follow” by many, which had posed a great
impediment (high switching cost) to participation, and for the public, the acceptancelevel and the size of the benefits associated with participation were not great enough tocover the costs. The fact that CB picked up the essence of SEL and revolutionized theoutfit suggestion so that it would be consistent with the preference people have towardfashion, is found to be corresponding to the strategy of reducing switching costs. As
illustrated in (c) of Figure 9, lowering barriers to participation (switching cost strategy)36followed by a slight increase in the acceptance level (branding strategy) is considered tohave had a major impact on the substantial growth in participation rate.
(d) “The Plastic Bag Reduction Campaign” in JapanAs it was the case for CB, PRC is a policy purposed to protect the environment, andtherefore, it is speculated that the initial position of the policy on the plot within the
proposed framework is at a moderate or higher level in the degree of acceptance.
Meanwhile, potential participants were facing barriers (switching cost), such as theburden of carrying My Bag and expressing the intent to reject the use of plastic bags at
each time of purchase. And in the midst of all the marketing strategies adopted to raise
the participation level, what appear to be the major contributing factors are the efforts
to eliminate the burden of addressing the rejection by making the shopping places
campaign-friendly environment (low switching cost strategy) and raise the cost of notparticipating in the campaign by taking the initiative to charge money on plastic bags
(high non-switching cost strategy). Under that foundation, a slight increase in the levelof benefits (benefit strategy), which would include providing trash bags and local
currency, is deemed to have had a major impact on the participation rate growth. The
strategic scheme for PRC analyzed in this part is illustrated in (d) of Figure 9.

37

Figure 9: Analysis of marketing strategies of the four policies introduced in 3
within the context of the strategic framework

The implications derived from the analysis of the findings are listed as follows:

As it was discussed in the strategic framework, eliminating or reducing theswitching cost to the largest possible extent needs to precede all otherstrategies for the maximum results.

After applying the switching costs strategy to the maximum extent, the way todesign the strategy mix will depend on its current position on the proposed plot
and on the relative cost of raising one unit of acceptance level/benefit level. Fora policy of which initial position is low in both acceptance level and benefit andthe relative cost of raising acceptance level is high, implementing the highintroductory benefit strategy is recommended.

38

5. Policy Marketing Analysis and Strategy Planning for the Social Security and Tax
Number System
In this section, I will employ the strategic framework of policy marketing introduced in
the previous chapters to perform marketing analysis and strategy planning of STN.
5.1 SWOT Analysis
With reference to the results of the situation analysis and the strategic framework ofpolicy marketing, I have performed the SWOT analysis of STN. The results of theanalysis, presented in Table 11, can be summarized as follows:

STN has strengths in providing the benefits of convenience and reduction in
use/compliance costs in carrying out administrative procedures related tosocial security, tax and disaster mitigation programs by offering an
integrated online platform (My Portal). Further, it has large potential increating new benefits in more various areas due to its characteristics ofbeing information sharing infrastructure.



The major weakness of STN is the fact that the policy is closely related to theprivacy protection issues, towards which the Japanese people are exhibiting
particularly high level of concerns. And there is a high chance that thedemand for My Portal service may be low due to the large start-up costs,
because that is in fact the major reason why the demands for e-Tax and eGov (social security) are running low. Also, the awareness level appears to be
not sufficiently high.



According to cross-cultural studies in social psychology, research has shownthat collectivist countries tend to show higher levels of conformity than
individualistic countries (Bond and Smith 1996). Japan is classified as acollectivist country when measured on an individualism-collectivism scale(Hofstede 2001; Hofstede, Hofstede, and Minkov 2010; Westerman et al.
2007; see Appendix for more detail) and the Japanese people are often
described by Asia experts as being particularly obedient (Dower 2012). Thiscan support the idea that strong positive feedback will be in effect if the39

number of participants increases so high that the behavior of participating in
STN challenges the current norm (nonparticipation) in Japanese society.


Meanwhile, theory of international marketing addresses that a culture’s
behavioral attitude can be measured in terms of attitude toward change, andsocieties that are resistant to change are usually less willing to adopt new
products or product processes (Kotabe and Helsen 2010: 118). And theJapanese society is oftentimes identified by cultural studies as “peculiarlychange-resistant” (Hofstede 2001; Hofstede, Hofstede, and Minkov 2010;
Dower 2012). In this understanding, we can conjecture that the social
switching cost faced by the Japanese people for participating in STN may not
be small.



Due to the large penetration of the internet and social network websites, thelatest trends show that Japanese people have become less sensitive toward
the privacy protection issues than they were before. Therefore, there is achance that the implementation of STN may not be as difficult as it was for
the Juki-net.

Nevertheless, there always is a chance that the level of concerns about
privacy invasions rises up when the implementation is close at hand.

40

Table 11: SWOT analysis of Social Security and Tax Number System
Positive factors

Benefits
Benefits
Internal
Factors

Benefits

Negative factors

Provides an online platform (My Portal) for
administrative matters related to social security, tax,
and disaster mitigation programs, which promote
convenience and reduction in use/compliance costs
Can deliver push-type, personalized services tousers
Has large potential in creating new benefits in morevarious areas due to its characteristics of being
information sharing infrastructure

Switchingcosts
Awarenesslevel
AttitudeBenefits
The level of social interdependence and theSocialmagnitude of peer effect are found high in Japan; it isInterdeexpected that the network effect will exert positive
pendence impact on the participation level

External
Factors

Attitude

OthersOthersOthersDue to the large penetration of the internet andsocial network websites, Japanese people havebecome less sensitive about the privacy protection
issues
Not much opposition from small businesses

Attitudetoward change(socialswitching cost)
Awareness
Level
Attitude

Most political parties are supporting the idea of
introducing STN
The local governments at the Shi/Ku/Chou/Son levelare showing interest and willingness to support

41

High switching costs (costs for IC card reader andelectronic ID), the main bottleneck for penetration of eTax, exist in the same way for STN
Level of awareness is not highJapanese people are exhibiting particularly high level ofconcerns over privacy invasions, and the notion of“national identification number” carries relatively
negative connotations for Japanese people in general(government monitoring, monitored society, etc)
Not many example cases have been provided toillustrate how it can be used to meet the needs of thepeoplePeople have gotten used to the administrative routinesthat require no number for a long time, and it isexpected that it would require extraordinary efforts tochange such habitual patterns. And the Japanese society
is often said to be exhibiting high level of resistance tochangeSince there is no active discussion about the privacy
issues, we cannot expect to see the awareness levelgrow as a side effect
There always is a chance that the level of concerns
about privacy invasions further rises before the policy
is introduced

5.2 Strategic Model
The ultimate purpose of the policy marketing is to raise the participation level to thehighest possible level. And as we employ the policy marketing model introduced in theprevious chapters as a strategic tool to accomplish that purpose, our objective takes amore specific form: it is to design strategies so that “the participation level for STN
reaches critical mass”. The value of critical mass for STN is not particularly known, but
we can presume that it is determined by the relative size of the magnitude of peer effectand the degree of resistance to change in the Japanese society.
And within the context of the strategy model, the current position of STN can be
described as in Figure 10. (a) of Figure 10 illustrates the hypothetical demand curve of
the participation toward STN, extrapolated based upon the results of the SWOT analysis,
and the resulting level of participation, denoted bydifferent levels of private switching costs, denoted byusers of e-Tax or e-Gov face lower switching costs (. The fact that there are twoand, indicates that the) because they have already madeinvestments in completing the preliminary procedures for online platform use andpaying the costs for purchasing the IC card and the electronic ID. In other words, thedifference between

andrefers to the costs related to the prearrangements

required for using the online platform of the government services. The point on (b) of
Figure, denoted by ⓪, is to mark the current level of attitude toward participation (A)and benefits from participation (B) for individual in the Japanese society and its relative
position to the level () required to achieve critical mass(the threshold level

where positive network effect is triggered). To sum up the current situation with theuse of the model, the level of AB is not sufficiently high (oris not sufficiently low) toelicit participation demand from new users, and those who form the participant
network will mostly be composed of the existing users of the currently available online
platform (e-Tax or e-Gov).16

16 The reasoning is based upon the assumption that the distribution of demand for e-Tax or
e-Gov is identical to the distribution of demand for My Portal.

42

Figure 10: Current position of Social Security and Tax Number System
within the context of the strategic framework (based on Lee (2013))17

Next, as illustrated in Figure 11, the strategic model suggests performing thefollowing series of strategies: low switching cost strategy, targeting strategy, highintroductory strategy and branding strategy (strategies listed in the order of execution).
First, after examining the level of switching costs faced by each new participant, it isrecommended to design plans to reduce the costs to the possible extent while giving
consideration to the budget constraint. And once the degree of reduction in switchingcosts is determined, identify the group of people with high demand for participation andset them as targets. Then, the efforts to raise B (benefits from participating in STN) andA (attitude toward participating in STN)

ill be followed. As shown in (b) of Figure 11,

the level of AB required to achieve critical mass () is reduced fromtodue to the discount in the switching costs, and therefore, the target increase will be
from

to

.

As for the branding strategy, which aims to raise the acceptance level toward
the participation in STN (A), increasing one unit of the acceptance level for STN is in fact
difficult to accomplish and expected to be high in costs—both monetarily and time17 Refer to the reference article for the detailed description of the model illustrated in (a) of
Figure 10 and 11.

43

wise.18 Therefore, putting a higher emphasis on the high introductory benefit strategy,
while performing the branding strategy at a moderate level (“⓪⟶①” in (b) of Figure11), would become a key tactic. As the name suggests, the high introductory benefit
strategy refers to the plan that provides monetary incentives to each individual
participant during the introductory period (rapid and momentary raise of B), andabolish it after the participation level reaches at a higher level atOnce the participation level reachesin (a) of Figure 11.

, we do not expect to see the participant network

for STN shrink even after AB decreases fromto, because it would be still

better for them to remain in the system than exit after having paid the entire switchingcosts.
Figure 11: Goal (target) position of Social Security and Tax Number System
within the context of the strategic framework (based on Lee (2013))

The cost ratio of A and B is expressed by the magnitude of slope of the isocost line
denoted by .
18

44

5.3 Recommendations
With reference to the scheme discussed in 5.2, the framework of the marketing plans for
STN has been developed as in Table 12. The framework consists of three tasks, which
are: (i) Enhancement of awareness level, (ii) Enhancement of practice level and (iii)enhancement of the effects generated by (i) and (ii). Starting from the next section, I will
focus on explaining the task of (ii) (the parts marked by the bold box in Table 12), which
particularly deals with the factors that would influence the participation behavior, since
it is the part pertaining directly to the major interest of this report.

45

Table 12: Recommended Tasks for Social Security and Tax Number System

Tasks

Plans
Sub-tasks

I
Enhancementof awareness
level

Cost
Targeting(achieving critical
mass)

II
Enhancement
Benefitof practicelevel
Acceptance level(branding)
Expectation
III
Enhancementof the effects
generated by I
and II

Third party
cooperation
Communication
Expandapplication areas

19

Sell the name ”My Number”
Sell the specific contents (what is suggested to do; what are the benefits; how muchmonetary incentives are provided for how long; how to use My Portal; in what areas
the number can be used)
Eliminate or reduce switching costs
Impose monetary/nonmonetary penalties (if possible)
Designate e-Tax users, beneficiaries of the social security services, income tax payers,
and corporations as major target groups

Level of emphasis 19
in each time frame (L/M/H)
Introductory
Post
introductory
Pre
H

H

L

M

H

H

H
-

H
(L)

H

M

Provide monetary incentives

H

Provide additional nonmonetary benefits
Apply constraints in receiving some benefits when the number is not used
Enhance the system so that it could provide more benefits in terms of convenience
Create positive brand image
Create an image that not participating in the policy is not catching up with the latest
trend
Foster expectation that participation level will go up
Introductory period: municipal governments, tax offices, financial institutions andother institutions that are involved with taxation and social security service(which would include health care services and nursing homes)
Post introductory period: enterprises in communication industries and otherapplicable institutions that deal with electronic money
Manage communication channels that individuals can reach easily, such as websites,
e-mails, or phone calls

H
H
H

Gradual or
immediate
abolition
H
(L)
H
H

L

H

H

M

H

H

H

H

Develop more micro-level example cases with the help of the cooperative partners

H

H“L” refers to “low”, “M” to “medium”, and “H” to “high” in the intensity of emphasis respectively.
46

5.3.1 Strategy Mix and Planning
In this section, I will discuss the specific planning that I have developed within thecontext of the strategy mix introduced in 5.2.
Eliminating/reducing switching costs
As discussed in the previous sections, the highest cost factors for STN are identified tobe the administrative procedures and the monetary costs required to prepare for the IC
card, IC card reader, and the electronic ID; hence, the plan is designed mainly toeliminate or reduce such costs.
I have structured the plan into two parts: one is for the case of low budget andthe other is for the case of high budget (Table 13). For the low budget case, the plan is
focusing on reducing the monetary or nonmonetary burden involving the use of theonline platforms to a feasible extent, given the current system. If the plan is
implemented, citizens can instantly start using My Portal without having to bear
monetary costs or paying several visits to local government offices. The plan for the caseof high budget case takes one step further; it suggests that, instead of designating the IC
card as the only medium for the electronic ID, a new system for the electronic ID be
developed so that it can be downloaded on PC or mobile phones. If it is made possible,
IC card reader will no longer pose impediment to the demand for My Portal, and further,users will gain access to My Portal from their mobile phones.
The switching cost strategies do not only involve eliminating or reducing thecosts for switching to participate but also include the tactics of raising the costs for notswitching. I have also devised a plan of “high non-switching cost strategy” for STN andthe details are illustrated in Table 14. Nevertheless, I would be in fact hesitant torecommend this strategy, because it has potential in causing the adverse politicalactions, especially in the case of STN. If the situation allows that the plan be considered,
I would recommend that it is implemented some time after the participation is spreadto a substantial degree, by which the social acceptance level toward the STN would havebeen much higher than the current level.

47

Table 13: Planning of the low switching cost strategy
Suggestion

Current situation
Low budget
Issuance fee is charged for the IC
card
The IC card can be issued at thedesignated counter of local
government offices only

Details

IC card reader needs to be purchased
individually (priced at around 2000
JPY or above) in order to use My
PortalThe electronic ID (for individual use)
is charged at the minimum of 500
JPY/3 years

The electronic ID (for individual use)
can be issued on IC card at thedesignated counter of local
government offices only

⤏
⤏
⤏

⤏

⤏

No fee (determined as of March 2012)
Establish more options for the IC card registration such as:each individual goes through a certain ID confirmation
process by making phone calls or using the internet andobtain the card in the mailFor a limited period (first 1 or 2 years), provide one reader
per household at free of charge upon request(Individuals make a request by making phone call or
submitting request online and the readers are delivered
to each household)
Provide it at no charge for a limited period of time (first few
years)On My Portal, evaluate the available functions and services
based on the importance of ID verification, and forservices requiring relatively low level ID verification,
make them accessible if correct ID and password
information are obtained.
Make it a standard that the first IC card comes with theelectronic ID (the registration process would include thenecessary processes required for the electronic ID), sothat it is not necessary to visit another counter just for
the e-ID

48

High budget
Same as the case of low
budgetSame as the case of low
budgetDevelop a new electronic ID
system, so that the IC card is
no longer required forcarrying the electronic ID.
Same as the case of low
budget except that provide
the ID for individual use at
no charge permanently
Develop a new electronic ID
system, through which the
ID can be downloaded on PC
or mobile phones

Table 14: Planning of the high non-switching cost strategy (if enforceable)
Type

Introductory Period

Nonmonetary costs-

Monetary costs-

Post Introductory Period
Set expiration date on the current health insurance card and start accepting the IC card as the
only standard(designate a certain period of time as “trial period”, during which both are accepted)
For enterprises to qualify for sales tax deductions, make it as a rule to input My Number on theapplicable document; otherwise, allow partial amount for the deduction(start with large corporate)
To qualify for dependent spouse tax deductions, make it as a rule to input My Number of eachdependent; otherwise, allow partial amount for the deduction49

Targeting (achieving critical mass)
The targeting strategy involves identifying the groups of potential participants withhigh demand for the policy, and it is significant not only in the sense that theparticipation level goes up by acquiring marginal participants, but also in the idea thatthe absolute size of the participation level in the introductory period would determine
whether or not critical mass would be achieved at the macro level.
With this idea in mind, I have designated three groups as the target formarketing STN: they are (i) e-Tax users, (ii) social security service beneficiaries, and (iii)
employment income earners and corporations.
First of all, there are two reasons that e-Tax users are chosen as target: the firstreason is that they are facing significantly lower switching costs compared to others
because they have already made investments in all the procedures and tools required
for using online service counters. And secondly, the fact that they are exhibiting demandfor e-Tax service implies that they would also have high willingness to pay for other
online tools. And in fact, the services provided by e-Tax will be transferred to My Portal;
hence it is no exaggeration to expect that the users of e-Tax may continue to use thesame service provided by My Portal. According to the demographic breakdown of the eTax users (Table 15), it is found that females in 20s and 30s and males in 60s (60.5% of
the entire users) are particularly taking a large share of the user group.
Table 15: Target group 1 – e-Tax users
e-Tax users

Targets

Female in 20s and 30s(41.1% among all e-Tax users*)
Male in 60s(19.4% among all e-Tax users*)
OthersTotal

15.8% of those who filed for final income tax return*(about 5.6% of the population**)* Based on Rakuten Research Survey (2010)** Calculated based on the data provided by National Institute of Population and Social
Security Research of Japan (2012) and National Tax Agency of Japan (2010)50

Next, those with high demand for social security services are designated as target
for the following reasons. The benefits offered by STN are earned when one is carryingout administrative procedures, and therefore, those who need to visit the government
office counters more often to receive the social security services are more likely tocapitalize on the benefits provided by STN (This can also mean that people who do notneed to visit the courters often may be indifferent about the services provided by STN).
In addition, the fact that people in this group are the major beneficiaries of the services
provided by the government implies that they may exhibit a high level of individualcompliance towards the directives of the government. Table 16 shows the beneficiariesof the social security services, largely divided into the group of females in 30s and 40s(child-caring mothers) and the group of seniors. Since the target demographic accounts
for about 44.2 percent of the population, designing a good strategy to acquire sufficientparticipants from these groups is expected to contribute largely to achieving criticalmass.
Table 16: Target group 2 – Beneficiaries of the social security services
30s ~ 40s

60s ~ 70s or above

Male

Male

FemaleFemaleTotal

17.3 million*(13.5％ of the population)

39.3 million*(30.7％ of the population)

Notes

Active users of child-care services
provided by the social security system

Active users of senior care services
provided by the social security system

Targets* Calculated based on data provided by National Institute of Population and Social Security
Research of Japan (2012)

Lastly, employment income earners and corporations are selected as target for
the following reasons: Being categorized as tax payers, they are potential consumers of
the online tax services offered by STN. And since they are both subject to the wage
withholding tax system regulations, it is expected that they will exhibit higher level ofcompliance to STN than others, at least up to Behavior 2.

51

Table 17: Target group 3 – Employment income earners and corporations
Individual

Corporation

Employment income earners

Corporation with capital of 100 million
JPY or above

Targets

Corporation with capital of between 10
million and 100 million JPY

Others

Total
Notes

Corporation with capital of less than 10
million JPY

45.5 million*(35.5％ of the population)

1.1 million**(39.7% of the population)

Parties subject to the wage withholding tax system regulations* National Institute of Population and Social Security Research of Japan (2012)** National Tax Agency of Japan (2010)52

Increasing benefits
The plans for the benefit strategy I will introduce are composed of three primaryelements: increasing monetary benefits, increasing nonmonetary benefits, and reducing
benefits for nonparticipants (see Table 18).
The plans corresponding to monetary benefits, which I have previously termed
as “high introductory benefit strategy”, involves running incentive systems, such as tax
deductions, fee waivers, health insurance subsidies, and lottery system, for a designatedperiod. The point of this strategy is to abolish the whole plans or gradually reduce thesize of the benefits after the participation rate has reaches a sufficiently high level.
Improving nonmonetary benefits, the second component of this strategy, is thepart that requires steady and continuous efforts from the policymakers of STN. During
the introductory period, it is recommend that improvements are made in the areas ofprocess speed, service hours, payment options, and printing services. In particular, I
would like to stress the importance of advancing the services in terms of payment
options and printing service, because such advancement will allow the administrative
procedure to be completed at the point of the initial access, boosting the quality of theonline platform service to a level that is nearly identical to the services provided at theactual office counters. And for the later period, I would like to suggest introducing theelectronic transfer system of supplementary documents and developing the mobile
version of My Portal, which would allow exceedingly higher level of convenience andmobility. The details are explained in Table 18.
Lastly, I have suggested a few plans for reducing benefits of nonparticipants, as
shown in Table 18, but as I have mentioned in the previous section, such plans may
require thorough evaluation of the current level of social acceptance and extra prudence
and consideration in implementation, because implementing plans that are
disadvantageous to nonparticipants are politically risky, particularly in the case of STN.

53

Table 18: Planning of the high benefit strategy
Type

Monetary benefits

Nonmonetary benefits

Introductory Period

Post Introductory Period

Apply a certain amount of tax deduction if the tax return is filed
on My Portal
Provide application fee waiver or discount for various public
services, if submitted on My Portal
Subsidize a certain amount for health care services so that
individuals pay slightly less amount of deductible of thehealth insurance if they present the IC card
Establish a lottery system that picks its winners based on the login access counts or process confirmation numbers on My
PortalAllow free access or provide preferential status to programs andactivities hosted by public institutions (i.e. libraries, cultures
centers, museums) for card holders
Expedite the process of the income tax refund for those who filed
their tax return on My Portal(and provide a confirmed date for the refund)
Allow 24-hour access to My Portal(for services requiring the confirmation of staff, set therequest on a pending status and send out a confirmation
email if the request is completed)
For certificate issuance, allow that the issuance is performed
electronically and printing can be done either at home or at
the convenience stores
Offer a variety of payment options, which would include credit
card, electronic money and mobile money, so that therequests and payments can be made at once

Abolish the benefits proposed in the introductory
periodAllow that supplementary documentations that areoften required by government are directly andelectronically submitted from the related
institutions to government(Individual users are not required to submit them;
all they would need to do is confirm the records on
My Portal. If not found on the record, they would
just need to select the institution code on the
dropdown menu and key in the document code)
Develop “Mobile My Portal” for easy access frommobile phones

Limit the use of the “One-stop Counter” at local
government offices and the automatic certificate
issuance machine to users of My Number only

Reduced benefits for
non-participation

54

Increasing acceptance level (branding)
The plans for the brand attitude strategy consist of two main components: one is toattach a positive image to the behavior of participating in STN and the other is to attacha negative image to the behavior of “not” participating in STN.
The plans in the first category involve enhancing or creating images that arelinked to the major strengths possessed by STN. To name a few, the strengths may bedescribed with the words such as “convenient”, “handy”, and “easy access”. And since
My Portal is the only tool that allows citizens to autonomously manage and control theiraccount of the social security, tax, and disaster mitigation, the image of being “smart” or“safe” can also be included. Together with the images mentioned above, it would be
important to send a message that many people are (will be) participating in STN since itwould stimulate the tendency to follow the behavior spread among the people (thiscorresponds to the strategy of “increasing expectation level of participation rate”
mentioned in the previous chapters).
While designating the plans of positive brand image strategy as the priorassignments, working on plans that would attach a negative image to nonparticipation
behavior may magnify the effects to include the broader public. The messages to be sent
need to mainly emphasize that the values earned by participating in STN will not bedelivered if one does not participate. And attaching the image of being “old” tononparticipation can help people consider that the system without the use of My
Number is no longer current. The details of the plans are explained in Table 19.

55

Table 19: Planning of the branding strategy
Plans

Attach a positive image toparticipating in STN

Attach a negative image to
not participating in STN

DetailsType
Create new image“something close and near”, “quick and handy”, “smart”, “in latest trend”, “safe”

Naming“My Card” or “Ma I Ka” for IC card

Message to be sent

Send a message that the public services have come into a form that is near and handy“Your smart lifestyle partner, My Number”

Create new image“old”, “time consuming”, “not being smart”, “left behind the trend”

Naming“the former system”

Message to be sent

“Without the use of My Portal, the registration process will take much longer and I would be
wasting my time”“It is difficult to find out what services are readily available to me, without the use of My
Portal”“Many people have started using My Number already”

56

6. Concluding Thoughts
According to a recent article by the Ibaraki-Shimbun (2012), the penetration rate ofJuki-Card in Koga City reached 21.8% as of June 2012, while the average of Ibaraki
Prefecture was at 4.3%, and the national average at around 5%. Koga City explainedthat the high penetration was due to their efforts in employing various small methods
that can lead to increased convenience. The very purpose and scale of Juki Card System
and STN may be different but I believe this case highlights the implication that making
sufficient efforts to meet the needs of a sufficient number of citizens using the available
tools can make a difference in the penetration level of a policy and indeed reinforces thereliance of the recommendations presented in this report. And the reason that those
extra efforts to promote the policy become necessary is because no matter how thepolicy per se is viable and beneficial for many, as quoted by Rohlfs (1979: 33), it will notacquire users by itself without sufficient amount of start-up costs being paid until it
becomes self-sufficient.

57

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Asch’s (1952b, 1956) Line Judgment Task'. Psychological Bulletin Vol. 119 No. 1
1996, 111-137 available from<http://www.radford.edu/~jaspelme/_private/gradsoc_articles/individualism_coll
ectivism/conformity%20and%20culture.pdf>
Bowe, R. (2012) 'In Japan, National ID Proposal Spurs Privacy Concerns'. Electronic
Frontier Foundation 13 June 2012 available from<https://www.eff.org/deeplinks/2012/06/japan-national-id-proposal-spursprivacy-concerns>
Cabinet Secretariat of Japan (2011) ‘Implementation Schedule for the Social Security
and Tax Number System’. Cabinet Secretariat of Japan [official homepage] available
from <http://www.cas.go.jp/jp/seisaku/bangoseido/dai14/siryou3.pdf>
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112-132

60

APPENDIX - Hofstede Dimensions of National Culture

Hoftede distinguished countries from one another using statistical data in his studies
and categorized them into groups based on four distinctive dimensions: power distance(PDI), individualism versus collectivism (IDV), masculinity versus femininity (MAS), anduncertainty avoidance (UAI) (Hofstede 2001; Hofstede, Hofstede, and Minkov 2010).
This page presents a part of his study results regarding the differences in national
culture measured in terms of IDV and UAI.
Individualism versus Collectivism (IDV)
The fundamental issue addressed by this dimension is the degree ofinterdependence a society maintains among its members. It has to do withwhether people´s self-image is defined in terms of “I” or “We”.
In Individualist societies people are supposed to look after themselves andtheir direct family only. In Collectivist societies people belong to ‘in groups’
that take care of them in exchange for loyalty (Hofstede 2001; Hofstede,
Hofstede, and Minkov 2010). [The higher the score is, the stronger the
degree of individualism is.]Individualism versus Collectivism (IDV)(based on Hofstede (2001); Hofstede, Hofstede, and Minkov (2010))
100

89
76

80

67
54

60

46

35

40
20

91

20

25

18

0

61

Uncertainty Avoidance (UAI)
The dimension Uncertainty Avoidance has to do with the way that a society
deals with the fact that the future can never be known: should we try tocontrol the future or just let it happen? This ambiguity brings with it anxiety
and different cultures have learnt to deal with this anxiety in different
ways. The extent to which the members of a culture feel threatened by
ambiguous or unknown situations and have created beliefs and institutions
that try to avoid these is reflected in the UAI score (Hofstede 2001; Hofstede,
Hofstede, and Minkov 2010). [The higher the score is, the stronger the
degree of uncertainty avoidance is.]Uncertainty Avoidance (UAI)(based on Hofstede (2001); Hofstede, Hofstede, and Minkov (2010))
112

120
100

81

80

80

92

85
75

65

60
40

46
35

30

20
0

62