Proposal ofa HumanResources
Procurement
Scheme for
the Tokyo 2020
Olympics
Leaving a Legacy to the World

Can Japan overcome
the looming difficulty ofprocuring humanresources?
As we approach the Tokyo 2020 Olympics, a need will arise for roughly 815,000 workers, mainlyin the service and construction industries; and securing such human resources is critical to thesuccess of the Olympic Games1.
However, there is currently a serious shortfall in the labor force in Japan, which is facing both adeclining population and a cyclical upturn in the economy. The effective ratio of job offers toapplicants has reached a level not seen since the late stages of the bubble economy in the early
1990s, and the current unemployment rate falls into the category of full employment as defined by
03
02

the Organization for Economic Cooperation and Development (OECD). Under these circumstances,business bankruptcies and project revisions due to labor shortage are frequently occurring2.
The need for human resources for the Olympics is notable both for its large scale andtemporary nature, in contrast to the typical need for such resources, which arises gradually
over an extended period. Moreover, a host of organizations are simultaneously seeking similar

human resources for the Olympics. Thus, if we approach the Olympics in the current employment
situation without an effective plan, we will surely fail to secure adequate human resources.
To overcome this situation and achieve success in the 2020 Olympics, the authors here propose a
new human resources procurement scheme that will improve the labor market. The scheme aims tomeet the anticipated nation-level, large-scale, temporary need for Olympics-related humanresources, while minimizing the impact on ordinary business activities not related to the Olympics.
In addition to its short-term benefits, the scheme aims to ensure that when the Tokyo 2020
Olympics have been successfully completed, a significant Olympic legacy will have been created,in the form of a human resources procurement system that can cope not only with large-scale events
such as the Olympics, but with disaster and other emergency situations.

1 Recruit Works Institute (2014), "Impact of the Tokyo Olympics on Employment: Structural Reforms to
be Made by 2020 to Overcome the Shortage of Human Resources"
2 The effective ratio of job offers to applicants in November 2015 was 1.25, a record high since January
1992, and the unemployment rate was 3.3%. Full employment does not mean that there are no joblesspeople, but rather that there are no unwillingly jobless people due to demand deficiency.

A profound need for human resources is arising,which will peak in the year of the Olympics.

Need for human resources for the LondonOlympics

250,000

Upper range
Baseline forecasts
200,000

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02

150,000

100,000

50,000

2020

2019

2018

2017

2016

2015

2014

2013

2012

2011

2010

2009

2008

2007

2006

2005

2004

0

Source: Oxford Economics (2013)Legacy of theTokyo 2020
Olympics

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04

The 2016 Summer Olympics will be held in Rio deJaneiro, and the following Olympics in Tokyo.
As the Olympic movement matures, expectations
are increasingly focused on creating Olympic
legacies that will endure after the Olympics, inaddition to achieving economic benefits during, andimmediately before and after the Olympics. The
term "legacy" is used to describe such long-lasting
positive effects, as defined in the International
Olympic Committee's (IOC) "Olympic Games:
Legacies and Impacts." Various facilities andinfrastructure are developed, and sports arepromoted on the occasion of the Olympics; and as aresult, Olympic legacies are generated, withsustainable impacts on society.
While tangible legacies tend to draw more
attention, our focus should also be on less tangible
but important legacies, such as providing solutions
to social issues in advanced countries and cities
where infrastructure and facilities have already beendeveloped. In the case of the London 2012
Olympics, for example, for which a legacy plan was
mandatory from the candidacy stage, advances weremade in the redevelopment of the poorest areas in
the region, and in the social inclusion of disabled
persons and other minorities.
The Olympic Games are a sporting event thatleaves people with enduring impressions andmemories, and also provides a rare opportunity toaddress social issues. What legacy can Japan leave?
The countdown has begun for creating such alegacy.

- Declining population
threatening Japan's future
A declining population and super-aging society are
the foremost issues threatening Japan's
sustainability, and many of the social challenges
related to employment and labor stem from theseissues. One of the challenges is a serious labor
shortage. Various efforts are being made to
overcome the labor shortage, such as securing
workers from overseas and improving productivity
with technology. Nevertheless, major problems
remain.
As the Japanese labor market has matured and is
beginning to shrink, the flexibility of humanresources procurement that once existed during the
expansion stage of the labor market is now
diminishing, and it is currently extremely difficult
to secure a large quantity of human resources on atimely basis.
Many workers will be temporarily needed for the
Tokyo Olympics. As discussed in the "Impact of theTokyo Olympics on Employment", as many as
815,000 workers will be required, including indirect
demand, and securing such human resources iscritical to the success of the Olympics. With labor
shortages being manifest, then, Japan must prepare
strategic measures to meet this temporary need forhuman resources.

- Nation-level humanresources procurement
A nation-level, large-scale, temporary attempt to
procure human resources, such as that required for
the Olympics, is fundamentally different from thetypical procurement of human resources conductedby individual companies, which involves
competition between companies and ultimately
depends on salary and other factors that attract job
seekers. Moreover, blindly pursuing nation-level,
large-scale procurement of human resources canaffect the operation of existing businesses, as
workers may quit their current job to take up newly
offered employment. In addition, because of its
temporary nature, this type of employment may
depart from established norms, and the safety ofworkers may be neglected. For all the obvious
differences between the two situations, theOlympics work-related issues are expected to be
similar to those observed in the reconstruction
projects implemented after the Great East Japan
Earthquake.
Because of the temporary nature of the Olympics,
related human resources tend to be procured on an
ad hoc basis, and little knowledge has thus far been
accrued in this area worldwide. Meanwhile,according to the Boston Consulting Group’s report,"The Global Workforce Crisis: $10 Trillion at Risk",
15 of the 25 major economies analyzed, including
countries in Europe and North America, will facelabor shortages by 2030; and in any country
experiencing such shortages, an effective method
must be developed for conducting large-scale,temporary procurement of human resources for the
Olympics.

- The proposed humanresources procurement
scheme as Olympic legacy
To prepare for the Tokyo 2020 Olympics, theRecruit Works Institute proposes a human resources
procurement scheme which aims to meet the largescale, temporary need for human resources for the
Olympics, and to leave the scheme's mechanism as

an enduring legacy.
The human resources procurement scheme willproduce a breakthrough in the labor shortage
situation, which is the greatest single obstacle toachieving success in the Olympics; and labor
shortage is a social issue that not only Japan but
numerous other developed countries must
eventually face.
The Tokyo Organising Committee of the Olympic
and Paralympic Games (TOCOG) has launched thedevelopment of an Action and Legacy Plan, tocreate an Olympic legacy for the Tokyo Olympics.
The plan establishes five pillars: (1) sports andhealth, (2) revitalization of towns and sustainability,(3) culture and education, (4) economy andtechnology, and (5) reconstruction, nation-widecommitment, and conveying positive messages tothe world. The human resources procurement
scheme here proposed pertains to the fifth pillar:
reconstruction, nation-wide commitment, andconveying positive messages to the world.
The scheme aims to achieve success in the Tokyo
Olympics through nationwide commitment inJapan, where the population is declining; but it canalso be implemented in overseas countries. As
discussed below, as it is designed to meet a largescale, temporary need for human resources, thescheme can be employed not only for major events
such as the Olympic Games, but also for restorationfrom disasters such as the Great East Japan
Earthquake.
Establishing a nation-level, flexible scheme for
procuring human resources is an Olympic legacy
that Japan can uniquely create, as a nation at theforefront of dealing with declining population, anda nation promoting the "dynamic engagement of all
citizens."

This proposal is based on the Recruit Works
Institute’s 2014 report, "Impact of the Tokyo
Olympics on Employment: Structural Reforms to be
Made by 2020 to Overcome the Shortage of Human
Resources," and on interview surveys conducted
twice in 2015 on officials involved in the London
2012 Olympics. We would like to convey our
sincere thanks to all of the many organizations andpersons who have supported our study.

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Two types ofneed for humanresources for the
Olympics

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The large-scale, temporary need for Olympicsrelated human resources is of two types. The first is
the need for human resources managed directly by
the Tokyo Organising Committee of the Olympic
a n d P a r a l y m p i c G a m e s ( TO C O G ) , w h i c hadministers the Olympics in Japan. Such humanresources include the TOCOG staff and volunteers.
The second is the need for human resources thatarises mainly in private companies due to theeconomic ripple effect of the Olympics. Each is
discussed below.

- Need for humanresources under theadministration of TOCOG
In the London Olympics, the Organising
Committee for the London 2012 Olympic Games(LOCOG) administered the procurement of humanresources for the LOCOG staff, volunteers, and the
Olympic Delivery Authority (ODA), which was
responsible for stadium and other construction
work. The number of people required for eachcategory was 9,000, 100,000, and 70,000,
respectively.
Diversity and inclusion were vigorously sought in
London’s human resources procurement. LOCOG
established and achieved a numerical target for eachmain minority group; and in the case of theconstruction work, an employment target was set
and achieved for each local area, so that employing

foreigners and citizens from outside London would
not cause Londoners to lose job opportunities. In
recruiting the so-called Game Makers, thevolunteers directly administered by LOCOG,
arrangements were made to enable disabled persons
to participate in the volunteer work.
LOCOG officials unanimously asserted that
achieving diversity and inclusion in the humanresources procurement was one of the legacies
created.
As an Olympic administrator, TOCOG plays asimilar flagship role in human resources
procurement and deployment, and is firmly
expected to far exceed the goal of simply meetingthe target demand for workers.

- Need for humanresources as a ripple
effect of the Olympics
The second type of need for human resources is
new employment generated mainly in companies.
Above, we noted the estimation of 815,000 workers
being needed for the Tokyo Olympics, over theperiod of 2013 to 2020.
The need for human resources is particularly large
in the construction and service industries, and thehuman resource requirements for construction,
including stadium construction, will peak before theOlympic Games; whereas, the requirements for theservice industry, which supplies business-to-Human resources procurement for the London Olympics
under the administration of LOCOG
Employment bycompanies contractingwith ODA

Directemployment
by LOCOG

100,000

9,000

70,000persons

persons

persons

Volunteers(including 40,000 newly
employed)

LOCOG's personnel
composition

TargetResultDisabled persons

3〜 6%

9%

Ethnic minorities

18 〜29%

40%

LGBT

5〜7%

5%

Females46 〜54%46%

30 years old or under

20〜30%

36%

50 years old or under

10%

15%

Human resources
procurement by ODA

TargetResult

6 venue areas

10%

17%

Other areas in London

45%

50%

Outside London (overseas)

45%

33%

* ODA is the public organization that administered the construction of
stadiums and other infrastructure for the London Olympics.

customer (BtoC) services to visitors, will peak inthe year of the Olympics.
Both the construction and service industries havebeen facing labor shortages since before Japan’s
decision to bid for the Olympics, but the two
industries have different employment structures. In
the construction industry, skilled workers are
required, and such workers are often difficult to
recruit. In the service industry, on the other hand,similar jobs are consistently abundant in the market,
and job separation rates are high. However, thehuman resources procurement systems are not welldeveloped in the construction industry, which has
been in decline for many years, since the collapse of
the bubble economy.
Thus, as we approach the Olympics, drastic

measures are required in the construction industry,
and flexible approaches are required in the service
industry (refer to "Impact of the Tokyo Olympics on
Employment").

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Estimated need for human resources for the Tokyo Olympics
No. of additional
workers required

Current no. of
workers

Ratio of additional
workers (%)

Service industry (total)

289,160

23,240,000

1.2%Service businesses

167,530

9,060,000

1.8%

Restaurants and hotels

36,1903,760,000

1.0%

Wholesale and retail services

85,44010,420,000

0.8%Construction industry

335,300

5,030,000

6.7%

Manufacturing industry

44,130

10,320,000

0.4%Transportation industry

26,7803,400,000

0.8%

Information and communication industry

20,2401,880,000

1.1%

Finance and insurance industry

16,5801,630,000

1.0%

Medical and welfare industry

20,4307,060,000

0.3%

Others62,6409,520,000

0.7%815,250

62,700,000

1.3%

Total

Table: Simulated need for human resourcesin different industries (unit: workers)（persons）

100,000

Service businesses
90,000

Restaurants and hotels
80,000Wholesale and retail services
70,000Construction industry
60,000

Manufacturing industry
50,000Transportation industry
40,000Information and communication industry
30,000Finance and insurance industry
20,000

Medical and welfare industry
10,000

Others

Source: "Impact of the Tokyo Olympics on Employment", Recruit Works Institute

2020

2019

2018

2017

2016

2015

2014

0

2013

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08

C●lumn

Looks small, but a large
impact on employment
Is the need for 815,000 workers large or small? As it
is only 1.3% of the over 60 million people currently
employed in Japan, this percentage may look small.
In reality, however, a difference of 1% in
employment has a vast impact. With the onset of the
global financial crisis in 2008, the employment
situation deteriorated quickly and significant
employment issues emerged, such as the dismissal of
non-regular employees. The rate of unemployment
increased from 3.8% in October 2008 to 5.5% in July
2009, and this 1.7 point increase in 9 months had aserious impact on social stability.
The employment situation later improved with theonset of Abenomics, and the rate of unemployment
decreased to 3.1% in October 2015; however, this 2.4
point drop over the seven-year period from 2008,
resulted in an increasing number of companies
suffering labor shortages, and even some companies
going bankrupt due to such shortages.
1% change in employment over a short period
should therefore have a substantial societal impact.

Change in the unemployment rate
（％）

6.0

5.0

4.0

3.0

2.0

1.0

June 2015

November 2015

January 2015

March 2014

August 2014

May 2013

October 2013

July 2012

December 2012

February 2012

April 2011

September 2011

June 2010

November 2010

January 2010

March 2009

August 2009

May 2008

October 2008

July 2007

December 2007

February 2007

April 2006

September 2006

June 2005

November 2005

January 2005

March 2004

August 2004

May 2003

October 2003

July 2002

December 2002

February 2002

April 2001

September 2001

June 2000

November 2000

January 2000

0

Source: "Labor Force Survey", Ministry of Internal Affairs and Communications

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Issues in humanresources
procurement for
the Olympics
Hosting the Olympic Games creates a largescale, temporary need for human resources.
Key issues to be addressed in humanresources procurement are discussed below,
mainly based on the surveys conducted in
London.

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Issue 1:
Difficult to secure
human resources
The foremost concern is that it may not be
possible to procure the human resources
necessary for the Olympics. Shortly before
the London Olympics, it was found thatsufficient security personnel could not be
procured. As a result, 3,500 military
personnel were mobilized two weeks before
the opening of the Olympics, and this action
was criticized in parliament. The initial plan
was to procure security personnel solely
through the security company G4S, but theplan failed as the number of required
personnel increased fivefold due to a needfor heightened security against the risk ofterrorism. In addition, though G4S expectedt o hire students as part-time workers, thecompany failed to procure enough students
for security work, as it was less attractive tothem than other Olympics-related

employment, while various other companies
were also trying to secure human resources
for the Olympics.
In contrast, the Organising Committee forthe London 2012 Olympic Games (LOCOG)
moved into action 15 months before theopening of the Olympics to procure 5,000
staff on a 6-month contract basis. LOCOG's
human resources procurement wascommissioned to the human resource
consulting company Adecco, which set up a
website in April 2011, began a large-scalec a m p a i g n i n M a y, a n d a c h i e v e d f u l lprocurement of the planned workers by
March 2012. In addition, over the long leadtime between the informal appointments andthe opening of the Olympics in July 2012,
additional procurement was conducted tocompensate for decliners. Officials noted that
attention was required in order to eliminated i s c r i m i n a t i o n a n d a c h i e v e t h e t a rg e t s o fdiversity and inclusion.
In fact, the procurement of security staff
was initiated one and a half years before theopening of the Olympics. Nevertheless, G4S
failed in the procurement. One reason for the
failure was the aforementioned substantial
increase, over this time, in the number ofworkers required; but another was the lack ofknowledge regarding human resourcesp r o c u r e m e n t , w h i c h i n c l u d e d i n s u ff i c i e n t

follow-up communication after the informal
appointments, and a lack of foresight inestimating how many of the informallyappointed workers would actually work
during the Olympic period.
Compared to ordinary human resources
procurement, large-scale procurement
requires a long-term commitment, and it islikely that human resource procurement
knowledge and management skills are crucial
to achieving success in such procurement.

Issue 2:Lack of experienced
workers and need fortraining
The next issue is the lack of experienced
work ers and the need for training. As theextent of training is roughly proportional tothe extent of the need for human resources, itis necessary to develop a method for
conducting large-scale training efficiently for
the Olympics.
All things considered, the likelihood of
employing inexperienced workers will tend
to increase in areas where human resourcesa r e d i ff i c u l t t o p r o c u r e . W h i l e e n h a n c e deducation and training are expected in theservice and construction industries, theseindustries include many small- and mediums c a l e c o m p a n i e s t h a t a r e n o t s u ff i c i e n t l yskilled in cultivating human resources.
Training programs developed specifically for
the Olympics will also be required. Thus, it
is desirable to expand cross-industrial
training, public occupational training, andjob assistance programs.
LOCOG began leader training and rolespecific training in April 2012, and on-sitetraining in June. They found that hands-on
training was indispensable in addition topreliminary study.
The London Underground, which recorded arecord number of passengers during the
Olympic period, did not recruit motormen
and other personnel for whom significant
training time would be required; andexternally procured human resources for its
service-related jobs. They procured 450
contract employees and 2,000 volunteers for
the Olympics. While three-week training was
given to the contract employees, the training
given to the volunteers was successfully
reduced to a three-day on-line trainingp r o g r a m . A c c o r d i n g t o o ff i c i a l s f r o m t h e
London Underground, the development oft h e s e e ff i c i e n t t r a i n i n g p r o g r a m s w a s a n

Human resources procurement by the London
Underground
Highly skilled human resources(Motormen, etc.)

No recruiting was conducted. Adjustments were made by increasing the working
hours of existing employees, arranging shifts, and raising retirement ages.
Preliminary discussions were held with the labor union.
Deployed at stations to guide passengers.

Customer service assistants

450 one-year contract workers were recruited (all of them remained employed after
the Olympics).
Three-week training was conducted.

Incidental customer service assistants

Provided tourist information using iPads.

It was initially thought that800

three-week training wasnecessary; however, theprograms were eventually

Travel ambassadors

Aided passengers in finding lost property

reduced to a three-day on-

and buying tickets.

line training program.

1,200

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Olympic legacy that they createdunexpectedly.

Issue 3:
Difficult to anticipate
all possibilities

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12

It is impossible to anticipate all theincidents that may occur before or during the
Olympics. What is important is to develop
plans with the understanding that unexpectedcircumstances can and do occur, no matter
how well-constructed the plans may be.
What was most unexpected in the humanresources procurement for the London
Olympics was the failure to procure security
workers, as described above. The shortage of
security workers was compensated for bymobilizing military personnel and 3,200
reserve personnel registered with Adecco,
w h i c h w a s i n c h a rg e o f h u m a n r e s o u r c e s
procurement for LOCOG.
The Games Makers, who were volunteers
for the London Olympics, were highly
motivated, and most completed theirassignments without dropping out during the
Olympic period, officials said. In contrast, inordinary events some volunteers will
typically quit their job after arriving at thework site and finding the work unsatisfying.
In procuring human resources for the
Olympics, then, it is necessary to prepare
backup measures to cope with unplanned
shortages and other unexpectedcircumstances; and it is necessary to have theflexibility to cope with irregularity.

Issue 4:
Jobs will eventuallydisappear.
The Olympics provide many employment
opportunities, and it is highly desirable toprovide job opportunities to those seeking
jobs. However, we must face the fact thatmany Olympics-related jobs are temporary
and will likely disappear after the Olympic

period. The Oxford Economics 2013 reporton the impact of the London Olympics on
employment confirmed that the need forhuman resources shrank rapidly after the
Olympic period, and the same is expected in
the case of the Tokyo Olympics.
T h e p r e s e n t s t u d y ’s s u r v e y s i n L o n d o nrevealed two important facts regarding
continued employment. First, though theOlympics creates new jobs, it is unrealistic toassume that people will stay on the same job
after the Olympic period. For example,
London officials noted that, among a host ofsimilar public programs provided in London,
the Employment and Skills Legacy programsupported inexperienced people in obtaining
construction jobs; however, after completing
their Olympics-related assignments, a
substantial number of the program graduates
moved on to other construction sites in order
to continue working.
Second, though an increase in theunemployment rate after the Olympics was
expected, no serious effect on employment
has been observed in London, reflecting thecurrent favorable economic environment inwhich new job opportunities are being
created; for example, all of the 450 customer
service assistants employed for the Olympics
by the London Underground on a one-year
contract basis continued to be employed after
the Olympic period. Many of the 5,000
LOCOG staff found alternative jobs on theirown, and 1,000 found alternative jobs
through Adecco's outplacement services.
Employment of workers in the constructionindustry was sustained by the need forredevelopment work, which was greater thatthe need generated by the Olympics.
However, these facts alone should not give
us cause for optimism in the current context.
The London Olympics were held during theperiod of recovery from the global financial
crisis, and the continued employment reflects
little more than the fact that the London area,
and the country at large, was recovering fromthe severe economic stagnation andshrinkage, and the substantial losses in
employment, caused by the crisis.

If the Japanese employment situation isfavorable in 2020, there will a reasonablechance that Olympics-related workers willfind follow-up employment opportunities.
However, the probability of this scenario is
not very high. Moreover, it is difficult toimagine a situation comparable to the last
financial crisis, obtaining at this time.
Thus, it is more reasonable to assume thatthe employment opportunities created by the
Tokyo Olympics will not continue after the
Olympics.

Issue 5:
Ensuring the safetyof workers
Tremendous efforts are required to procure
and manage the human resources needed tosatisfy large-scale, temporary employment
requirements; and as a result, less attention
may be paid to various important aspects ofthe employment itself. As the Olympic
employment context is highly abnormal,
normal work conventions and practices may
not be applied, increasing the risk ofencountering situations not anticipated byconventional employment regulations.
In the context of the Olympics, or otherlarge-scale sporting events, neglect of basic
human rights has been drawing increasing
global attention in recent years. For example,
lives have often been lost during thec o n s t r u c t i o n o f f a c i l i t i e s f o r l a rg e - s c a l esporting events; and it is said that, prior to
the London Olympics, lives had always been
lost at Olympic construction sites, throughout
the history of the Olympics. In the London
Olympics, however, high safety standards
were established and managed, and for the
first time no lives were lost. The officials of
the London Olympics were unanimous inhighlighting this as a significant achievementof that Olympics. Meanwhile, in November
2015, four international organizations,
including the International Labour
Organization (ILO), issued a joint statementon the respect for human rights in large-scale

sporting events.
Sweatshops and other harsh workplaces,
where safety standards and safety- andhealth-related laws are not observed, arecurrently an issue in Japan; and preventive
measures must be taken, such that thetemporary need for Olympics-related labor
will not lead to the creation of sweatshops.
The massive scale and temporary nature of
the Olympics means that the conventional
human-rights employment framework may be
i n e ff e c t i v e . I n t h e c a s e o f t h e G r e a t E a s t
Japan Earthquake, for example, an event
similar to the Olympics in scale and nature,
many argued that companies hiring disastervictims should be exempted from theordinary obligation to enroll such workers inthe social assurance and employment
insurance systems, according to Moriya( 2 0 1 1 ) 3. I n s u c h c o n t e x t s , t h e n , i t i snecessary to develop a framework, including
special legal measures, for protecting
workers.

3 M.Moriya,2011”
Koyou to Sangyou no Soushutsu wo"SEKAI NO.820(in Japanese)

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12

Human resources
procurement scheme for
the Olympics

Characteristics
Characteristicsof the needfor need forof thehuman resources
human resources
Issues inIssues
humaninresources
procurementhuman resources
procurement

Large Large
scale scale
15
14

Difficultto secure
Difficultto securehuman humanresources
resources
Lack ofLack
experienced
workersof experienced
workers
and needtraining
andforneed
for training
Difficultto anticipate
Difficultto anticipate
all possibilities
all possibilities
Most jobs
will
notwilllastnot last
Most
jobs

TemporaryTemporary

Difficultto ensure
Difficultto ensurethe safety
workers
the ofsafetyof workers

There are five key issues to be addressed in procuring human resources for
the Olympics, given the large-scale, temporary nature of the procurement. To
address these issues and stage the Olympics successfully, we propose thehuman resources procurement scheme described below.

Relevance
Construction

Other services(tourism, restaurants)

Public infrastructure(security, traffic)

Initiative

Organizing Committee

Human resources procurement scheme

1

Adopt a trisector approach(private, public, and civil society sectors)

Initiative2

Turn the mismatch to advantage
Initiative

3

Establish an open training system
Initiative

4

Management by experts
Initiative

5

Develop and disseminate work rules

15
14Adopt a trisector approach(public, private, and civil society sectors)

17
16

The core initiative in the nation-level scheme for human resources procurement is to adopt
a trisector approach involving the public, private, and civil society sectors, with the
involvement of citizens, such as volunteers and NPOs, in addition to public organizations
and private companies.
The concept of trisector portfolio was applied to LOCOG and security assignments.
LOCOG was organized with specialists from many organizations both public and private
sectors at its very first stage. The portfolio had been changed when they started recruiting
5000 temporary staff and 70000 “Games Makers”. LOCOG was consisted of core
temporary transferred staff from both public and private sector, temporary staff andvolunteers.
For example, security assignments were allocated as follows: volunteers were responsible
for preparing tickets and coordinating visitor line-ups at the entrance gates of Olympic
venues; stewards were responsible for preventing people from entering exclusion zones;
security personnel were responsible for guard duty, including monitoring security cameras;
and the police were responsible for responding to incidents and taking action such as thearrest of troublemakers.
In the case of the Tokyo Olympics, this is potentially relevant to public components suchas TOCOG, security, and transport.
One important issue to be discussed, regarding the trisector portfolio of the public, private,
and civil society sectors, is the role to be played by each sector. Jobs requiring high skills,
or involving risks and compensation in the event of emergency, are not suitable forvolunteers. Although meeting the need for human resources with volunteers may limit theopportunities for employment, many are willing to participate in volunteer work rather than
paid work, especially for such events. Careful consideration is needed in deciding whichjobs are best left to volunteers, and which are best assigned to paid workers.
There are various kind of measures to involve volunteers. It may be effective to seek
volunteers dispatched from companies, in addition to private volunteers. Diversity andinclusion is also a key to success. The participation of disabled persons in volunteer work
was also promoted in the London Olympics; and a mechanism was developed to assist thedisabled, so that those who were usually supported, were themselves able to act as
supporters.
To w a r d s To k y o O l y m p i c ,Trisector portfolio will enable
Portfolio of human resources for the London Olympics
flexible recruitment, diversity andinclusion of workforces.
LOCOG
Security
Public sector

Temporary transfer

PoliceInitiative1
Private sector

Citizens

Temporary transfer

Security

Temporary staff

StewardVolunteers“Games Makers” Volunteers

Turn the mismatch
to advantage
The second key initiative is to "turn the mismatch to advantage."This means seeking to procure human resources preferentially fromlow-demand areas, where procurement is easier, rather than fromhigh-demand areas.
Human resources procurement for the Tokyo Olympics depends onthe current employment situation. As of 2015, the unemployment
rate has dropped to between 3% and 3.5%, which falls into thecategory of full employment as defined by the OECD. There isalmost no unemployment, due to demand deficiency. The
unemployment rate is partially dependent on structural and frictional
factors, such as workers’ place of residence and the job-skills
required; and if human resources are vigorously sought in areas
already experiencing significant labor shortages, without considering
the labor supply-demand balance, labor relocation may be intensified
and existing businesses may suffer.
To turn the mismatch to advantage, we propose promoting theparticipation of students, homemakers, elders, and others who are
not currently employed but may potentially be interested in taking
paid or volunteer Olympic jobs4; and consideration should also begiven to temporarily seeking human resources in areas where thelabor supply tends to be abundant.
It is strongly recommended that a system be developed whichenables students to take Olympic jobs during the summer vacation,
since, beyond the potential benefits to the procurement situation, theOlympics offer a valuable opportunity for students to experienceand participate in an international mega event.

Initiative2
4 The "Olympic jobs" mentioned here include both paid and volunteer jobs newly created by the
Olympics.

17
16

Establish an open
training system

19
18

It is increasingly important to invest in education in Japan, where thepopulation is in decline and human resources are becoming ever morevaluable. Given the nation's limited fiscal resources, and the competition
for labor among companies, there is an urgent need to develop an
effective educational environment. With an eye toward the Olympics,
then, we propose disseminating on-line training and developing an open
training system that involves cross-industrial training programs.
The existing forms of publicly provided training focus mostly onclassroom lectures or hands-on skills training, which require classrooms
or training stations where teachers train and prepare their students. As
this form of training requires a location and staff, it is difficult to provide
training opportunities to many people. To improve this situation, it isnecessary to develop a training environment in which students canparticipate in training sessions anytime and anywhere, rather than relying
on the current closed training environment that requires a classroom ortraining station where teachers provide hands-on training. Developmentof on-line training programs using e-Learning technologies is therefore
desired. The London Olympics set a precedent for significantly
improving training efficiency, by streamlining programs and using online training.
Company-based training typically involves closed, intra-company
systems; and companies with limited resources often find it difficult todevelop and conduct training programs on their own. Further, there aremany small companies in the restaurant and tourism industry, and in theconstruction industry, and such companies tend to have limited
knowledge in this respect. Thus, it would be highly beneficial, not merely
for the Olympics but for the post-Olympic period as well, to create anefficient training environment by developing common programs for eachindustry, and providing these in the form of on-line training programs.
These measures should also be effective in reducing the training timerequired. In large-scale procurement, it typically takes a long time toselect, informally appoint, train, and then formally employ the workers;
and there is a corresponding risk of losing appointed workers in theintermediate stages before formal employment. By introducing amandatory on-line training program, it is possible to select workers only
from those who have completed the program; and by altering theconventional sequence of "selection, informal appointment, and training"to "training, selection, and informal appointment," it is possible to reducethe informal employment period, and the corresponding risk. To
minimize the number of appointed workers who decline the job offer, it
is desirable to reduce the informal employment period as much as
possible. And finally, in addition to reducing the informal employment
period, it is also possible to minimize the effect of geographicallimitations by introducing on-line training.

Initiative3

Expert management
Management by experts is indispensable for successfully procuring
a large quantity of human resources in a short period of time.
Human resources procurement for the Olympics is large-scale andtime-sensitive, and involves a long preparation period. Moreover, atrisector portfolio should be prepared, and preventive and responsive
measures should be put in place to prepare for unexpected situations
such as a failure to procure human resources. Among the causes ofthe failure to procure adequate numbers of security workers for the
London Olympics, was the poor relationship between G4S and
LOCOG. The problem did not surface until immediately before theopening of the Olympics, and countermeasures came too late. To
achieve success in human resources procurement, we must viewprocurement as a complicated and challenging activity rather than acumbersome process. At the Art of Major Events conference5, which
was attended by participants related to the London, Rio de Janeiro,
and Tokyo Olympics, it was stressed that cooperation between
stakeholders is crucial to achieving success in the Olympics, which
involves a variety of stakeholders.
In human resources procurement for the Olympics, therefore,
efficient and long-term task management, and constructive
coordination between stakeholders, are indispensable. To this end, it
is important, beginning with the planning stage, to involve experts
who are versed in human resources procurement and can design
specific plans. If an organization cannot find appropriate experts
within itself, it can hire external experts or work with external
experts in the form of a partnership. The quality of management isparticularly important in areas such as TOCOG, transport, andsecurity, which directly affect the administration of the Olympics.
The management work includes discussions and decisions on
supporting procured workers in finding another job after the
Olympic employment period has ended. As aforementioned, most of
the jobs generated in association with the Olympics will typicallydisappear not long after; it is unrealistic to expect that these jobs
will continue to exist. Thus, it is important to procure workers whoare cautioned against unrealistic expectations of post-Olympic
employment 6 ; and given the difficulty of sustaining such
employment, and the importance of the Olympic procurement, it
may be a reasonable to allocate funds for achieving continued
employment, as part of an overall job assistance initiative.7

Initiative4
5 Held in January 2015 at King's College London by Deloitte and the British Council.
6 While some people approach fixed-term employment in a proactive manner, some are seriouslyfrustrated by the termination of their employment contract,
due to their expectations of continuedemployment, which may have been implied.
7 In the London Olympics, the Team London website was established as an employment base forvolunteers after the Olympics. In addition to the intentionof promoting volunteer work, there wasconcern that volunteers might lose satisfying work after participating in the spectacular event.

19
18

Develop anddisseminate work
regulations

21
20

As aforementioned, because of the temporary nature of the
Olympics, the workers involved may be exposed to uncustomaryrisks, and/or the progress of work may be hindered by conventional
regulations. It is therefore important to develop and disseminate
work regulations that include special provisions for the Olympics.
One potential situation is noncompliance, such as arrears of wages
or violations of the Industrial Safety and Health Act, often found insweatshops and other harsh workplaces. For the coming Olympics,
it is necessary to enhance administrative control to prevent suchnoncompliance. Although the managers of sweatshops are ultimately
responsible, it is highly important to inform workers of the minimum
standards for working conditions regulations, so that the workers
will not be exposed to danger or exploitation. Given the increasingtransience and instability in Japan’s employment structure, theimportance of informing workers about their work profile isgradually becoming recognized, but is still not sufficiently
acknowledged. Development of an effective method forcommunicating such information, such as giving a brief explanation
during on-line training, is desired.
Another possible issue is that the existing regulations do notproperly cover a temporary event such as the Olympics. Thus, forexample, the government plans to establish a temporary lodging
system during the Olympics, and is considering loosening therespective regulations to facilitate this. And again, when atemporary, large-scale need for human resources arises, such as for
the Olympics, it may be worth considering the employment ofworkers dispatched by temp services, though this is prohibited inprinciple.
A safe and comfortable work environment is achieved by meeting
three requirements: developing sensible work regulations, obliging
employers observe the regulations, and informing workers about
how to protect themselves. In addition to the development andobservance of work regulations, the development of effective
methods for disseminating such regulations to workers is desired.

Initiative5

Leadershipandpartnershipfor implementing
initiatives

Leadership and partnership are indispensable for implementing thefive initiatives for human resources procurement for the Olympics.
Effective large-scale procurement of human resources should not
be limited to the internal activity of individual companies, but rather
based on cooperation between multiple organizations. Cooperation
across the public and private sectors is also expected. Given theparticipation of a variety of organizations in staging the Olympics,
and the lack of individuals experienced in this endeavor, one mistake
can throw cooperation into disorder. Thus, it should be rememberedthat creating good partnerships is key to achieving the smoothprocurement of human resources in such a context.
Furthermore, specific frameworks should be discussed for each
Olympic sector, such as TOCOG, security, transport, tourism, andconstruction. Industry associations and other key organizations are
expected to play the role of coordinator. Leadership is highly
important for raising the quality of partnership among various
stakeholders.
The human resources procurement initiatives can be successfully
implemented only through strong leadership and good partnerships
in each Olympic sector.

21
20

Learning from
London1

The image problem facedby the construction industry
The construction industry, which has been facing labor shortages since before Japan’s
decision to bid for the Olympics, is making various efforts, involving both the public
and private sectors, to procure human resources. Among its initiatives, raising unit
labor costs for public works, joining an existing social insurance system, and actively
involving female workers, are being promoted by the construction industry. As there
are many small businesses in the industry, human resources cultivation on a crossindustrial basis is also being discussed. To secure human resources, it is particularly
important to offer improved working conditions and environment, and outline
attractive career paths.
However, these efforts are not enough for the construction industry to effectively
secure human resources. It is likely that an unfavorable image of the construction

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20.9%

32.6%

23.3%

14.0%

7.0%

25.6%

7.0%

14.0%

4.7%

-

16.3%

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18.0%

10.7%

21.0%

14.6%

8.6%

28.3%

12.4%

14.6%

12.0%

3.9%

22.7%

Wholesale services

28.7%

13.8%

19.1%

14.9%

12.8%

25.5%

11.7%

10.6%

9.6%

3.2%

24.5%

Retail services

27.5%

23.9%

20.2%

13.8%

24.8%

26.6%

11.9%

14.7%

8.3%

5.5%

18.3%

Finance industry

29.5%

11.4%

29.5%

20.5%

4.5%

34.1%

11.4%

25.0%

13.6%

2.3%

20.5%

Information and communications industry

21.1%

7.9%

23.7%

7.9%

7.9%

34.2%

5.3%

15.8%

5.3%

10.5%

21.1%

Restaurant and tourism industry

36.8%

28.9%

18.4%

23.7%

31.6%

26.3%

15.8%

7.9%

2.6%

2.6%

10.5%

Medical and welfare industry

29.0%

23.4%

14.5%

19.4%

13.7%

15.3%

8.9%

7.3%

13.7%

0.8%

24.2%

Transportation Industry

24.6%

27.7%

20.0%

15.4%

18.5%

23.1%

18.5%

16.9%

6.2%

4.6%

13.8%

Other services

28.8%

17.5%

20.8%

16.5%

17.9%

20.8%

11.3%

9.0%

9.9%

2.8%

26.4%

Total

25.6%

18.1%

20.3%

15.9%

14.6%

24.6%

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Source: "Study on the Effect of Labor Shortages and Countermeasures", Recruit Works Institute (2014)

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23
22

industry is a major cause of the chronic labor shortage in the industry. Thus,
it is necessary to improve the conditions of individual workers in theindustry, and to discuss how to improve the industry’s public image.
The Considerate Constructors Scheme (CCS) was established in 1997 by
the construction industry in the UK to improve the image of the constructionindustry. Due to frequent complaints about noise, dust, and landscapedeterioration at construction sites in the UK, the construction industry
established this organisation to improve the situation. CCS monitors
registered construction sites, companies and suppliers against the Scheme’s
Code of Considerate Practice. The Code outlines the Scheme's expectations
and describes those areas that are considered fundamental for registration
with the Scheme. The Code is in five parts: Care about Appearance; Respect
the Community; Protect the Environment; Secure Everyone’s Safety; Value
their Workforce.
The cumulative number of CCS registered sites reached 90,000 in 2016.
Each registered site displays CCS posters around the construction site,
promoting registration with the Scheme. Registered companies also display
a vehicle sticker or magnet, showing their unique registration number, on
every company and supplier vehicle used on the public highway.

23
22

One CCS poster reads, "Improving the image of construction." The photo
above was taken near the British Museum. Not only are many site fences
smart but aesthetic considerations are evident at construction sites
throughout London; for example, the depiction of a female artist on avividly coloured fence at an Underground construction site, and scenes ofnature on the fence at a former Olympic village site.

25
24

And in Japan? Typically, only a white banner with the name of therespective construction company is seen on construction sites. In rare cases,
pictures are posted, but their content is typically vague and unmeaningful.
How about creatively exploiting the fences at construction sites, to improve
the image of the construction industry? Various approaches are possible,
such as advertising the active engagement of female workers inconstruction, and using infographics to show the efforts being made in theindustry.
The unfavourable image of the construction industry is the mostrecalcitrant challenge facing the procurement of human resources forconstruction. Given the ubiquity of construction sites, it may be worth
considering using these sites as an advertising medium to improve theindustry’s image. However, it goes without saying that such an approach canhardly be effective unless improvements are seen in the working
environment and conditions in the industry, and in efforts to preserve sitelandscapes.

Learning from
London2

At the forefront of
hospitality service
The Japanese word omotenashi (‘hospitality’), highlighted in thepresentation by Christel Takigawa in Japan’s bid to host the 2020
Olympics, has become a buzzword in Japan. The number of tourists
visiting Japan, which aims to become a tourism-oriented country, isincreasing at a higher rate than expected; and this trend will probably
accelerate through to 2020.
The hospitality industry, which includes hotels and restaurants, ismaking various plans for the Olympics. National chains, for example,
are eager to provide the best possible service, so that Olympic tourists
will become repeat customers.
In the London Olympics, attempts were made to deploy the mostcompetent staff in the forefront of the hospitality service. McDonald's,
for example, established four branches near the Olympic stadium,including the world's largest temporary restaurant (1,500 seats), ands t a ff e d t h e m w i t h t h e 5 0 0 t o p p e r f o r m i n g s t a ff , s e l e c t e d f r o m
McDonald’s 85,000 staff across the country, through the Olympic
Champion Crew Super Team events, in order to provide the best
customer service possible. As another example, Eurostar, a long-distancerailway service connecting the UK with France and Belgium, appointed
70 staff, who excelled in customer service, as ‘Olympic Champion’
members, to provide service to VIPs and other railway users.
Following these models, it would be beneficial to deploy superior staff
at the forefront of the Olympic hospitality service. However, according
to People 1st, the leading workforce development expert for hospitality
in the UK,there is a structural problem here: the hospitality industry
comprises many small businesses that cannot afford to invest in training.
Tens of thousands of volunteers and staff at the London 2012 Olympic
Games and Paralympics were trained in WorldHost, adapted for the UK
market by People 1st. The WorldHost programmes provide a gold
standard in training for any business that relies on day-to-day interaction
with customers for success.
The hospitality industry helps enable Japan to become a tourismoriented country, and development of cross-industrial systems aimed at
cultivating human resources is also expected as 2020 approaches.

25
24

Potential of thehuman resources
procurement
scheme27
26

The human resources procurement scheme here
proposed is designed principally for the Olympics,
but is also applicable to other similar events, suchas the 2019 Rugby World Cup and the 2021 World
Masters Athletics Championships, which will bothbe held in Japan. Further, the scheme can also be
employed for human resources procurement aimed
at recovery from disasters or other major
emergencies. In this last section, we discuss how
the scheme can be implemented in this latter case.

- Human resources
procurement scheme asa precautionary measure
Large-scale, temporary procurement of humanresources is required not only for mega events suchas the Olympics and the World Exposition, but also
for recovery from disasters or other emergency
situations.
Much as we might like to, we cannot preclude thepossibility of another disaster like the Great East
Japan Earthquake, especially with the postulated
Nankai Trough earthquake in mind. Should such adisaster occur in Japan, with its population aging
and declining, it will be all the more difficult torapidly procure a large quantity of human resources.
Moreover, in disaster situations it is necessary bothto procure human resources for restoration and tosecure jobs for those who have lost their jobs due tothe disaster, simultaneously; meaning that not one

but two interconnected schemes are required fordisaster restoration.
Compared with the human resources procurement
for the Olympics, which allows preliminary
preparation, achieving human resources
procurement and job assistance simultaneously inthe confused aftermath of a sudden disaster is far
more challenging. It is therefore important todevelop a human resources procurement scheme
during normal times, as a precaution against such
emergencies.

- Characteristics ofhuman resources
procurement for disaster
restoration
Although a disaster appears to be an event that is agreat contrast to the Olympics, these two events
have a common feature of involving a large-scale,temporary need for human resources. The difference
between these events is discussed below for each of
the five proposed initiatives.
First of all, the time frames are different. Whereas
the human resources for the Olympics can beprocured systematically over several years, those
for a disaster must be procured immediately after
the onset of the disaster.
As with the Olympics, the same approach ofturning the mismatch to advantage can be employedfor disaster restoration by procuring workers fromthe public and private sectors, as well as volunteers,from areas that have suffered less damage.
Moreover, it is necessary to resolve the existingmismatch more than "Turn the mismatch toadvantage." In other words, we need to assist people
who have lost their jobs due to the disaster infinding a new job in spite of the existingmismatches in the skills and experience required.
Expanding training opportunities must be helpful
in resolving these mismatches. Developing training
programs is indispensable for disaster restoration,
during which many mismatches occur. As there isno time for preliminary planning, unlike in the caseof the Olympics, it is necessary to develop andimplement training programs together with humanresources procurement immediately after the onsetof the disaster.
It often takes years to recover from a disaster,depending on its magnitude. What is especially
important is the management of human resources
procurement according to the changing needs as
restoration advances from one phase to another. The
importance of total management in disaster
restoration is enhanced by the need for achieving
both human resources procurement and job
assistance.
The development and dissemination of work
regulations are also important in disaster restoration.
It should be noted that it is particularly difficult tosecure safety during disaster restoration due todamage to buildings and disruptions intransportation systems.
As discussed above, the human resources
procurement scheme for the Olympics can beeffectively applied to human resources procurementfor disaster restoration.

- Types of legacy
Gratton and Preuss (2008) classified Olympic
legacies on the basis of three criteria: planned or
unplanned, tangible or intangible, and positive or
negative.
A human resources procurement scheme for the
Olympics is a planned, intangible, positive legacy.
A legacy created as a result of an earthquake, e.g.
the flexible implementation of emergency job

creation projects in the case of the Great East Japan
Earthquake, is an unplanned, intangible legacy.
A human resources procurement scheme for
emergency preparedness proposed in this report is aplanned, intangible, positive legacy.
Especially as the Tokyo Olympics is meant tosymbolize national recovery from the Great East
Japan Earthquake, Japan has an international
responsibility to develop an effective nation-level
human resources procurement scheme.

Legacy Cube

planned27
26
ununplanned

intangible
tangiblenegative

positive

Source：Gratton, C. & Preuss, H.(2008) Maximizing
Olympic impacts by building up legacies. The International
Journal of the History of Sport 25(14), 1922-1938

29
28

Creating a Japaneselegacy for the world

The proposed human resources procurement scheme aims to meet a nation-level, large-scale,temporary need for human resources. This kind of scheme is needed not only for the Olympics but
for other mega events such as the World Exposition, and in times of major emergency.
To develop a human resources procurement scheme for the 2020 Olympics, it is necessary to pursue
human resources procurement systematically in each sector, and to record the process of
procurement. Unexpected situations will surely occur during the process. However, what is
important is not to completely eliminate the possibility of such situations occurring, but to improvethe essential quality of scheme development, by employing a PDCA cycle with consideration ofsuch unexpected situations.
The proposed human resources procurement scheme will be successfully created only whenpartnerships are established between the leaders directing the scheme’s development and thevarious key stakeholders. Properly developed, however, the scheme will lead to success in theTokyo 2020 Olympics, and leave an intangible but important legacy to the world after the
Olympics.
Japan, whose population has begun to decline, is not the only country that needs this kind of humanresources procurement scheme. The scheme may be equally employed to meet large-scale,temporary needs for human resources in any country potentially facing labor shortages.
Thus, the human resources procurement scheme, developed in Japan as an Olympic legacy, should
be disseminated to the world.

29
28

Proposal of a Human
Resources Procurement
Scheme for
the Tokyo 2020 Olympics
Leaving a Legacy to the World

Project leader

Akie Nakamura (Manager,Centre for labour policy, Recruit Works Institute)
Yukio Okubo (General Manager, Recruit Works Institute)
Yoshihiro Toyoda (Senior Chief Researcher, Recruit Works Institute)
Koumei Ishikawa (Visiting Researcher, Recruit Works Institute)
Joe Sakai (Chairman and Representative Director, Bolbop, Inc.)
Takahito Motegi (President and Representative Director, Bolbop, Inc.)
Collaboraters

Manami Yuasa (Head of Arts, British Council Japan)
Takeshi Shimizu (Journalist and interpreter, BBC)
Creaters

Yusuke Saito (blue vespa)
Yuko Sakaguchi (Recruit Works Institute)
Issued on March 2016
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Recruit Works Institute
Recruit Holdings Co., Ltd.
Gran Tokyo SOUTHTOWER
1-9-2 Marunouchi,Chiyoda-Ku,
Tokyo 100-6640 Japan
www.works-i.com/