Universal Design Management for Vocational Aid Centers

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Yasuko Takayama Shizuoka University of Art and Culture (SUAC)

Satoshi Kose Shizuoka University of Art and Culture (SUAC)

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Citation Takayama, Y., and Kose, S. (2012) Universal Design Management for Vocational Aid Centers, in Israsena, P., Tangsantikul, J. and Durling, D. (eds.), Research: Uncertainty Contradiction Value - DRS International Conference 2012, 1-4 July, Bangkok, Thailand. https://dl.designresearchsociety.org/drs-conference- papers/drs2012/researchpapers/132

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Universal Design Management for Vocational Aid Centers

Yasuko TAKAYAMA and Satoshi KOSE Shizuoka University of Art and Culture (SUAC)

Abstract Rapidly mounting societal costs have compelled a shift in the Japanese social welfare system to an emphasis on self-sufficiency and societal integration. Within this context, the Services and Support for Persons with Disabilities Act was implemented in 2006. Soon afterwards, however, the issue of compensation—the wages to workers of Vocational Aid Centers (VACs) and the obligation of workers to pay VACs for benefits they receive— prompted the Ministry of Health, Labour and Welfare to issue in 2007 a five-year plan targeted at doubling the wages of VAC workers. Under the act, the ministry directed the governors of the nation’s prefectural governments to collaborate with the private sector in support of efforts to raise the wages paid to those working at VACs and similar facilities.

In this paper, we examine the design management techniques employed within the product development and promotional stages of two particularly successful projects.We find five factors behind their success: (1) utilization of professional staff members; (2) differentiation from competitors; (3) high-quality packaging by professional designers; (4) media exposure; and (5) managerial enthusiasm for business expansion. Lastly we compare these results with those of a project in Shizuoka Prefecture, which was previously researched by the lead author.

Through this investigation, we hope to deepen our understanding of universal design management techniques in support of VAC facilities and services.

Keywords: universal design, design management, people with disabilities

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Introduction

The social welfare system was initiated in Japan in the 1950s with an emphasis on protecting and aiding the needy and the disabled. The societal costs of such arrangements, however, mounted rapidly, compelling a shift in emphasis toward self-sufficiency and societal integration (Kyogoku, 2008). A number of laws were implemented within this cost-cutting context, most notably the Services and Support for Persons with Disabilities Act, which took effect in April 2006. Article 1 of this act, formulated with an eye to a demographic shift toward fewer children and more elderly, stipulates its purpose to be “to improve the welfare of persons (adults and children) with disabilities through the provision of benefits for necessary disability welfare services and provision of other forms of support to enable persons with disabilities to live independent daily or social lives according to their respective abilities and aptitudes….” Previously, the services available to a disabled person were determined almost automatically by the type of disability; that is, the person was not given the right to choose services to receive for him or herself. Under the act, a disabled individual supposedly became able to freely choose from among a unified menu of social services instituted under the act. However, what often happened in reality is that he or she simply ended bearing a heavier portion of the burden of social services provided at vocational aid Centers (VACs). A VAC is a facility where a disabled person, in exchange for receiving various social services, is provided with an opportunity to work at some task in accordance with his or her ability, and for those efforts the individual receives a small wage (A 2009 Ministry of Health, Labour and Welfare survey places the number of such facilities in Japan at approximately 4,000). Under the previous system, the amount that the person was to be charged for social services was determined in accordance with his or her ability to pay, and thus small wages were not much of a problem. However, under the Services and Support for Persons with Disabilities Act, the person was in principle to bear 10% of the actual cost of the services provided to him or her, and as a result some suddenly found themselves having to pay three times as much for services, and even meals. Co-payments rose substantially for many; according to a 2010 report from the Fukushi Gyosei Horei Kenkyukai [Social Service Administrative Law Study Group], more than 90% of low income workers had to pay more under the new system. Some disabled people simply stopped showing up (Department of Health and Welfare for Persons with Disabilities, 2007). This situation eventually prompted the Ministry of Health, Labour and Welfare to set off on a five-year drive to double the wages of VAC workers, releasing in 2007 a ministerial directive ordering the governors of the prefectural governments to implement their own five-year plans toward that target. In response, local government officials formulated measures that, while tailored to the characteristics of their particular locales, were intended to raise the wages paid at VAC workshops within this five-year framework.

The Shizuoka prefectural government sprang into action at the head of the central government initiative, unveiling in April 2006 a Project for Quality Improvement and Sales Promotion of VAC Products under its five-year plan in

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collaboration with a nonprofit organization of Shizuoka work Centers and Introduction Shizuoka University of Art and Culture.

The social welfare system was initiated in Japan in the 1950s with an emphasis Up until this time, support for the VACs mainly consisted of product design on protecting and aiding the needy and the disabled. The societal costs of such development by a designer brought in at the request of a facility administrator. arrangements, however, mounted rapidly, compelling a shift in emphasis toward One problem with this approach, however, was that once such support comes to self-sufficiency and societal integration (Kyogoku, 2008). A number of laws were an end, the whole process would revert back to square one. Another issue was implemented within this cost-cutting context, most notably the Services and that many facility administrators, shielded by the legal provisions of earlier social Support for Persons with Disabilities Act, which took effect in April 2006. Article 1 service policy as outlined above, had no particular desire for improvement of this act, formulated with an eye to a demographic shift toward fewer children despite the importance of having disabled people actively participate in the and more elderly, stipulates its purpose to be “to improve the welfare of persons market economy (Nakajima, 2006). With these considerations in mind, the scope (adults and children) with disabilities through the provision of benefits for of design support efforts was to be expanded under the Shizuoka project to necessary disability welfare services and provision of other forms of support to extend beyond product design development to include marketing, technology, enable persons with disabilities to live independent daily or social lives according production, distribution, and all manner of related social milieu so as to create a to their respective abilities and aptitudes….” Previously, the services available to system capable of sustained product development. The above thinking that a disabled person were determined almost automatically by the type of disability; “Managing design = Designing management” is increasing these days that is, the person was not given the right to choose services to receive for him or (Kawarabayashi, 2005). We refer to this comprehensive approach as "universal herself. Under the act, a disabled individual supposedly became able to freely design management." In previous research leading up to the present study, choose from among a unified menu of social services instituted under the act. factors in the successful application of universal design management were However, what often happened in reality is that he or she simply ended bearing a analyzed (Takayama, 2011). heavier portion of the burden of social services provided at vocational aid Centers In October 2010, three years into the five-year plan, an event, Shifuku no (VACs). A VAC is a facility where a disabled person, in exchange for receiving Otodoke [“Delivering Happiness”], was held in Tokyo. There, products were various social services, is provided with an opportunity to work at some task in showcased and services were selected from 94 VACs around the country under accordance with his or her ability, and for those efforts the individual receives a recommendations from 38 prefectural governments, and among them 13 small wage (A 2009 Ministry of Health, Labour and Welfare survey places the products from three VACs were recognized with an award for excellence (Ministry number of such facilities in Japan at approximately 4,000). Under the previous of Health, Labour and Welfare, 2010). A primary objective of the contest was to system, the amount that the person was to be charged for social services was promote an exchange of information about the development of products and determined in accordance with his or her ability to pay, and thus small wages services capable of selling on their own; that is, to encourage dialogue over were not much of a problem. However, under the Services and Support for methods for creating and providing commercially viable offerings without an Persons with Disabilities Act, the person was in principle to bear 10% of the undue reliance on subsidies. actual cost of the services provided to him or her, and as a result some suddenly found themselves having to pay three times as much for services, and even As for the Shizuoka initiative, the projects, while favorably assessed within a list meals. Co-payments rose substantially for many; according to a 2010 report from of particularly advanced and laudatory area vitalization projects prepared by the Fukushi Gyosei Horei Kenkyukai [Social Service Administrative Law Study Japan Center for Regional Development (2008), did not receive any rewards at Group], more than 90% of low income workers had to pay more under the new the Tokyo event. system. Some disabled people simply stopped showing up (Department of Health and Welfare for Persons with Disabilities, 2007). This situation eventually Purpose prompted the Ministry of Health, Labour and Welfare to set off on a five-year In this paper, we take up two of the projects that were recognized with an award drive to double the wages of VAC workers, releasing in 2007 a ministerial for excellence at the Delivering Happiness event, and we examine how superior directive ordering the governors of the prefectural governments to implement design management presumably contributed to the quality—and, of course, their own five-year plans toward that target. In response, local government sales—of the VAC products from those projects. We interview local government officials formulated measures that, while tailored to the characteristics of their officials responsible for the projects and VAC administrators and, upon an particular locales, were intended to raise the wages paid at VAC workshops examination of reports and other related documents, analyze the factors behind within this five-year framework. their success. Lastly, we compare our findings with those of the Shizuoka project, The Shizuoka prefectural government sprang into action at the head of the which was examined in some detail in our previous work. In this way, we hope to central government initiative, unveiling in April 2006 a Project for Quality deepen our understanding of universal design management techniques and Improvement and Sales Promotion of VAC Products under its five-year plan in thereby provide further assistance in support of VAC facilities and services.

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Project Descriptions

In this section, we examine two projects, one from Niigata Prefecture and the other from Miyagi Prefecture, which were recognized for excellence at the Delivering Happiness event, and we discuss the design management techniques used to produce those award-winning products and the system of local government support behind their success. First prize: Okara no Yaki Karinto, Nagomi Work Center, Tokamachi Welfare Organization, Niigata Prefecture Nagomi Work Center is a VAC established in 2007 in Tokamachi City, Niigata Prefecture. It was originally utilized by 30 workers (disabled people); now there are 40. In addition to taking on outsourced work for the fabrication of traditional New Year's ornaments and footwear, the facility produces such self-developed products as karinto (a traditional Japanese snack food) and mamegashi (bean confectioneries). Center workers are employed in almost all aspects of confectionary production, including oven work. Such self-developed projects accounted for 73% of total revenues in 2009. In contrast, the outsourcing business accounted for only 6%, despite that 15 to 20 people are normally assigned to those operations on a day by day basis throughout the year. Off-site services, in which groups of residents work together with staff members at a noodle plant, made up the remaining 21%. Monthly wages originally averaged ¥7,178 in 2007; they had risen to ¥19,000 by 2011 (Hoshina, 2010). Targeted wages are ¥50,000, and they are expected to exceed ¥30,000 by the end of fiscal year 2011.

Figure 1. Product package: baked soy pulp karinto

Figure 2. Average monthly wages by year Based on Niigata-ken shogaisha jusan shisetsu kochin baizo keikaku [Wage doubling plan for VACs in Niigata Prefecture] and Document: Work Center Nagomi no jokyo ni tsuite [Document: the situation at Nagomi Work Center] (Kiwamu Hoshina)

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Project Descriptions In conjunction with its five-year plan, Niigata Prefecture provides VACs with access to management consultants upon request and also holds seminars to In this section, we examine two projects, one from Niigata Prefecture and the introduce successful cases. The prefecture urges private-sector companies to other from Miyagi Prefecture, which were recognized for excellence at the outsource their work to such facilities and similarly encourages government agencies Delivering Happiness event, and we discuss the design management techniques to place orders with them. Despite such efforts, taking on outsourced work has not used to produce those award-winning products and the system of local been very effective in raising wages; the only thing that seems to increase is the government support behind their success. burden of the work itself. Also, as a provisional measure through 2011, the Center introduces workers to temporary employment creators, a category under a First prize: Okara no Yaki Karinto, Nagomi Work Center, Ministry of Health, Labour and Welfare program (2008-2011) for which the Tokamachi Welfare Organization, Niigata Prefecture national and prefectural government together cover the entire amount of the Nagomi Work Center is a VAC established in 2007 in Tokamachi City, Niigata worker’s pay. Prefecture. It was originally utilized by 30 workers (disabled people); now there Market research are 40. In addition to taking on outsourced work for the fabrication of traditional New Year's ornaments and footwear, the facility produces such self-developed The director of the Center realized early on not only that it would be hard to turn a products as karinto (a traditional Japanese snack food) and mamegashi (bean profit doing outsourced work, even in great volume, but also that a full up-front confectioneries). Center workers are employed in almost all aspects of emphasis on the social service aspect of such work would prove similarly confectionary production, including oven work. Such self-developed projects unprofitable. Here, he instead decided to devote his resources to developing accounted for 73% of total revenues in 2009. In contrast, the outsourcing products that would be competitive in the open market. One of his first initiatives business accounted for only 6%, despite that 15 to 20 people are normally was to go to a government-sponsored elderly employment center and hire a assigned to those operations on a day by day basis throughout the year. Off-site recently retired confectioner (currently 70 years old). The director instructed his services, in which groups of residents work together with staff members at a new staff to assemble and analyze various confectionery products from around noodle plant, made up the remaining 21%. Monthly wages originally averaged the country in an attempt to avoid competition with cookies, a common offering of ¥7,178 in 2007; they had risen to ¥19,000 by 2011 (Hoshina, 2010). Targeted VAC enterprises, seeking instead to introduce unique products. wages are ¥50,000, and they are expected to exceed ¥30,000 by the end of Planning fiscal year 2011. The director soon turned his attention to karinto—a traditional Japanese snack food normally made from flour, yeast, and brown sugar—which was then undergoing a mini boom. While continuing with the development of other product candidates such as mamegashi, the director decided to seek further differentiation by emphasizing health aspects of karinto made from soy pulp. The end result was Okara no Yaki Karinto, or baked soy-pulp karinto. Next moving on to promotion, the director, feeling that “handmade” was employed too frequently as a selling point for VAC products, created a marketing story that emphasized other aspects, specifically regional character, wholesomeness, and simplicity.

Design development Figure 1. Product package: baked soy pulp karinto Every three years, the municipalities of Tokamachi City and Tsunan Town hold what was initially the largest outdoor art event in the world, the Echigo-Tsumari Art Triennial. The event encompassed many artistic endeavors, among them a project to promote traditional offerings from the Echigo Tsumari region (Loft Works, 2009).One product chosen for such attention was Okara no Yaki Karinto. In a related event, roughly 10,000 ambitious young creators around the country set about competing to design packaging that brings out some regional appeal. Approximately 30 design proposals were submitted for Okara no Yaki Karinto, and a panel of professional designers chose the winner, shown in Figure 1. The Figure 2. Average monthly wages by year use of this package entails the payment of 8% of sales to the planner (royalties Based on Niigata-ken shogaisha jusan shisetsu kochin baizo keikaku [Wage doubling plan for VACs in Niigata Prefecture] and Document: Work Center Nagomi no jokyo ni tsuite [Document: the situation at would normally be 3% of sales), but the media exposure provided by the process, Nagomi Work Center] (Kiwamu Hoshina) along with an associated expansion of marketing channels, made it well worth the

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additional cost. Nagomi Work Center also has its own package (Figure 3), which it developed in-house and thereby does not entail any royalties. Both packages remain in service. Indeed, once Okara no Yaki Karinto was taken up on TV for its first-place finish in the Delivering Happiness contest, the Center was swamped by a wave of orders for the product in either package.

Figure 3. Nagomi Work Center packaging for ginger, cocoa, and plain karinto Production Together with staff, workers handle all aspects of the production process other than oven control (Figure 4). Unable to keep up with demand, Center management moved to raise capacity, utilizing prefectural funds to purchase a rice-cookie cooker (¥2 million) and a bean roaster (¥9 million). There was still a limit as to what could be produced by a single facility, however, prompting management to explore the possibility of further raising capacity through collaborative arrangements with other facilities. Standing in the way, however, were a number of problems, including a low level of motivation at those facilities, combined with quality control issues and a general lack of technological proficiency.

Figure 4. Production facility

Distribution and sale Okara no Yaki Karinto is sold through 35 outlets inside and outside of Niigata Prefecture, including a shop within the Nagomi Work Center itself. Approximately 10,000 units were sold at the Echigo-Tsumari Art Triennial, and sales continue through the Echigo-Tsumari online shop. The Center benefited from the exposure provided by the Art Triennial in 2009 and the Delivering Happiness contest in

1804 Conference Proceedings Yasuko TAKAYAMA and Satoshi KOSE Universal Design Management for Vocational Aid Centers additional cost. Nagomi Work Center also has its own package (Figure 3), which 2010. The challenge now is to establish sufficient turnover without an it developed in-house and thereby does not entail any royalties. Both packages overreliance on such events. remain in service. Indeed, once Okara no Yaki Karinto was taken up on TV for its first-place finish in the Delivering Happiness contest, the Center was swamped by Future Deployment a wave of orders for the product in either package. The director cites the reaction to this program as demonstrating the effectiveness of investment in package design and the like. With this in mind, he has taken his plan to the Tokamachi municipal officials (and to a designer) and is now negotiating with city hall for permission to use the city mascot, Neige the Snow Fairy, as a motif (the Center intends to pay a 1.5% royalty in exchange).

Also, as the confectioner hired earlier is getting old, the director intends to hire a 44-year-old successor under the government's temporary job creation program. Honorable Mention: Smoked Date Seafood, Peer Multifunctional Work Support Center, NPO Peer, Miyagi Prefecture Figure 3. Nagomi Work Center packaging for ginger, cocoa, and plain karinto Production Together with staff, workers handle all aspects of the production process other than oven control (Figure 4). Unable to keep up with demand, Center management moved to raise capacity, utilizing prefectural funds to purchase a rice-cookie cooker (¥2 million) and a bean roaster (¥9 million). There was still a limit as to what could be produced by a single facility, however, prompting management to explore the possibility of further raising capacity through collaborative arrangements with other facilities. Standing in the way, however, were a number of problems, including a low level of motivation at those facilities, combined with quality control issues and a general lack of technological Figure 5. Smoked seafood (fish and shellfish) caught off the Miyagi coast proficiency. Peer Multifunctional Work Support Center was established in 2005. It has 15 workers in type B continuous support of employment projects that are targeted by the five-year plan and 16 workers in other types of support. Major activities include the operation of a restaurant, called Peer; preparation and sales of handmade bento box lunches; preparation of smoked foods; external janitorial services; and parcel delivery. Operations currently center on bento lunch preparation and sales. Cooking is done by a professional staff, and every work day, Center personnel deliver 200 to 250 bento lunches to offices in the area, primarily within prefectural and municipal government buildings, collecting and washing the utensils afterwards. The bento lunch business generates annual

Figure 4. Production facility revenues of approximately ¥27 million, accounting for roughly 90% of all NPO Peer business ventures. The average monthly wage is now roughly ¥35,000 (Figure 6) and is targeted to eventually reach ¥50,000. In 2005, there were only Distribution and sale three workers (disabled workers in the program); in 2010, there were 24. Even as it kept bento lunches as its main product line, the Peer Center entered the Okara no Yaki Karinto is sold through 35 outlets inside and outside of Niigata smoked food business in July 2009 in pursuit of higher wages. Prefecture, including a shop within the Nagomi Work Center itself. Approximately 10,000 units were sold at the Echigo-Tsumari Art Triennial, and sales continue In support of VACs under its five-year plan, Miyagi Prefecture, upon request, through the Echigo-Tsumari online shop. The Center benefited from the exposure dispatches management consultants and designers, paying half of the fees provided by the Art Triennial in 2009 and the Delivering Happiness contest in incurred. Also, it also introduces professional staff to prospective VAC employers

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under the urgent regional employment generation project, a set of temporary (expiring in 2011) employment measures for which the government bears the full cost of the workers’ wages. Yet, so far, only three or so VACs take advantage of these offers within a typical year. A plan administrator says that a major factor holding back its utilization is a lack of business sense among VAC managers.

Figure 6. Average monthly wages Based on Ministry of Health, Labour and Welfare, Yushu seihin, jirei: seihin gaiyo [Excellent products, cases: product outlines], and Miyagi Prefectural Government, Miyagi-ken jusan shisetsu to kochin baizo 5-ka-nen keikaku [Miyagi Prefecture 5-year wage doubling plan for VACs, etc.].

Market research Because the Peer Center is a relative late entry into the product development area, the director decided to avoid cookies (and, by that, avoid cannibalizing the sales of other VACs) and instead to work on the development of an innovative new brand. He placed "local Miyagi Prefecture content" as a primary differentiator for a national marketing effort and enlisted the cooperation of the Miyagi Prefectural Fisheries Manufacturing Research Institute to identify some promising seafood candidates. First considered was sasa-kamaboko, a fish cake shaped like a bamboo leaf and identified with the city of Sendai. While making extensive use of local ingredients, that candidate was abandoned because persistently strong native demand for those ingredients would complicate procurement efforts. Then, shifting to the perspective of consumers including homemakers, the director set about developing smoked products providing a quick and easy way to partake of the marine delicacies of the prefecture.

Planning Development work centered on the cooking staff, which, making use of a state-of- the-art electronic smoker, examined various proportions of oil and moisture in a trial-and-error attempt to come up with a product having a smooth, soft taste. Eventually they came up with Smoked Date Seafood, a series of smoked products making use of such Miyagi seafood as coho salmon, swordfish, and scallop, in addition to tofu made with Miyagi soybeans. They found that output could be raised by simply shortening the smoking time. A management consultant was dispatched under the five-year project, and a taste team comprised of foodservice professionals assessed various attempts to further refine the product.

Design development Much attention was devoted to package design. Several designers were introduced to the Center by a prefectural organization. To those considered

1806 Conference Proceedings Yasuko TAKAYAMA and Satoshi KOSE Universal Design Management for Vocational Aid Centers under the urgent regional employment generation project, a set of temporary particularly competent at expressing an image of quality (as required for the gift (expiring in 2011) employment measures for which the government bears the full market) were entrusted package, pamphlet, and homepage design. At the Miyagi cost of the workers’ wages. Yet, so far, only three or so VACs take advantage of processed seafood contest (March 2010), the coho salmon product was selected these offers within a typical year. A plan administrator says that a major factor for an award by the Fisheries Agency over 170 submissions from many well- holding back its utilization is a lack of business sense among VAC managers. known companies within the prefecture. This honor touched off a round of coverage in newspapers and other mass media, whereupon demand for the coho salmon and other products in the Smoked Date Seafood series rose dramatically, particularly for gift giving. The series was taken up by Miyagi “select shops” (outlets that limit their wares to Miyagi products) and, as mentioned above, received an honorable mention in the Delivering Happiness contest, where it was highly rated for its taste and for the general sense of quality of its gift package (Ministry of Health, Labour and Welfare, 2010).

Production

Figure 6. Average monthly wages Frequent newspaper, TV, and other mass-media coverage of the receipt of such Based on Ministry of Health, Labour and Welfare, Yushu seihin, jirei: seihin gaiyo [Excellent products, cases: product outlines], and Miyagi Prefectural Government, Miyagi-ken jusan shisetsu to kochin baizo awards led to a surge in orders. To keep up with demand, three cooks were hired 5-ka-nen keikaku [Miyagi Prefecture 5-year wage doubling plan for VACs, etc.]. under the temporary job creation program. A fourth was added later, as was a dietician, and now production is handled by a six-person staff. Note, however, that Market research employment under the program comes with a time limit; and so, in order to secure staff wages once those subsidies run out, it will be necessary to generate more Because the Peer Center is a relative late entry into the product development revenue. Peer is planning on purchasing two additional smokers and establishing area, the director decided to avoid cookies (and, by that, avoid cannibalizing the a factory to support mass production, thereby allowing the business to continue to sales of other VACs) and instead to work on the development of an innovative meet its payroll. new brand. He placed "local Miyagi Prefecture content" as a primary differentiator for a national marketing effort and enlisted the cooperation of the Miyagi Distribution and sale Prefectural Fisheries Manufacturing Research Institute to identify some promising The products received an E Mark (a certification by Miyagi prefectural seafood candidates. First considered was sasa-kamaboko, a fish cake shaped government attesting to the use of local ingredients and an observance of like a bamboo leaf and identified with the city of Sendai. While making extensive regional culture and techniques), whereupon JR East purchased 1,000 sets for use of local ingredients, that candidate was abandoned because persistently sale in its souvenir shops and Fujisaki Department Store, a local (Sendai) retailer, strong native demand for those ingredients would complicate procurement efforts. added the line up to its gift merchandise selection. Smoked Date Seafood is also Then, shifting to the perspective of consumers including homemakers, the on sale over-the-counter at the Peer restaurant, at earthquake reconstruction director set about developing smoked products providing a quick and easy way to events, and over the Internet. partake of the marine delicacies of the prefecture. Future deployment Planning Wage subsidies for the extra cooks under the urgent regional employment Development work centered on the cooking staff, which, making use of a state-of- generation project temporary job creation program expire after three years, and the-art electronic smoker, examined various proportions of oil and moisture in a thus it is necessary to generate additional revenues to continue to keep them on trial-and-error attempt to come up with a product having a smooth, soft taste. the payroll. Similarly, once the five-year plan comes to an end, management Eventually they came up with Smoked Date Seafood, a series of smoked intends to continue to rely on the services of professional designers, paying for products making use of such Miyagi seafood as coho salmon, swordfish, and package design services as an expense. scallop, in addition to tofu made with Miyagi soybeans. They found that output could be raised by simply shortening the smoking time. A management consultant The Niigata and Miyagi Projects: Two Successes was dispatched under the five-year project, and a taste team comprised of foodservice professionals assessed various attempts to further refine the product. A detailed examination of these two cases reveals good design management, specifically a shared proficiency in marketing, branding, package design, and

Design development promotion. Below we list five common factors to these successes. Note that Much attention was devoted to package design. Several designers were these factors themselves can be characterized as relating to either personnel or introduced to the Center by a prefectural organization. To those considered to branding.

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1. Utilization of professional staff members

2. Differentiation from competitors

3. High-quality packaging by a professional designer

4. Media exposure

5. Managerial enthusiasm for business expansion.

Both ventures employed professional cooks and confectioners in the marketing process and undertook product development based on an understanding of the market. Their managers investigated potential competitors, taking care to steer clear of potential competition, and also examined ingredients that could be used to build an innovative brand image. Next, while focusing on the keyword of "regional product," they centered product development on local ingredients and package design on the gift market. And, with regards to package design, they relied on professional designers and pursued quality. They actively submitted their products to various events and competitions, gaining plenty of major exposure with the awards thus obtained, and used that momentum to create new sales connections through department stores, railway companies, and other retail outlets, which in itself acted to synergistically heighten the topicality of their products.

Shizuoka Prefecture, like Niigata Prefecture and Miyagi Prefecture, advanced a five-year plan under the central government directive but took a considerably different approach to supporting VACs. Whereas Niigata and Miyagi prefectures concentrated their support on government-licensed VACs that specifically requested help, Shizuoka Prefecture would arrange entire projects involving both licensed and non-licensed facilities, thus providing design management assistance not to individual VACs but rather to groups of participating VACs. It established brand marks for projects as a whole, overseeing development of such related items as cookie gifts, shopping bags, and package framing (Figures 7-9).

With this in mind, we next compared the Shizuoka initiative against the two success stories in reference to factors one through five outlined above.

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1. Utilization of professional staff members

2. Differentiation from competitors

3. High-quality packaging by a professional designer

4. Media exposure

5. Managerial enthusiasm for business expansion.

Both ventures employed professional cooks and confectioners in the marketing process and undertook product development based on an understanding of the Figure 7. Cookie gift box market. Their managers investigated potential competitors, taking care to steer clear of potential competition, and also examined ingredients that could be used to build an innovative brand image. Next, while focusing on the keyword of "regional product," they centered product development on local ingredients and package design on the gift market. And, with regards to package design, they relied on professional designers and pursued quality. They actively submitted their products to various events and competitions, gaining plenty of major exposure with the awards thus obtained, and used that momentum to create new sales connections through department stores, railway companies, and other retail outlets, which in itself acted to synergistically heighten the topicality of their Figure 8. Cookie packaging products.

Such trial-and-error entails heavy investment, something that was earlier well beyond the financial wherewithal of VACs. Under the five-year plans, the central government readied generous subsidies in an attempt to spur on such investment. Both Centers took these subsidies as an opportunity to invest in product development and business expansion; and it was the skillful investment of these funds, together with an uncompromising approach to merchandise development, that led to the success of those Centers. To put it another way, the keys to success could be said to lie with management's enthusiasm for business Figure 9. Shopping bag development and attunement to market information. Comparison with Shizuoka Project Managerial Enthusiasm for Business Expansion Shizuoka Prefecture, like Niigata Prefecture and Miyagi Prefecture, advanced a Managerial enthusiasm is very high at the two Niigata and Miyagi facilities, but five-year plan under the central government directive but took a considerably this is certainly not the case for all facilities in those prefectures. That is, although different approach to supporting VACs. Whereas Niigata and Miyagi prefectures both prefectural governments make subsidies available to VACs in their domains, concentrated their support on government-licensed VACs that specifically very few facilities have come forward under their own volition. Many of the requested help, Shizuoka Prefecture would arrange entire projects involving both managerial personnel of such Centers consider their profession to be social licensed and non-licensed facilities, thus providing design management services, and few perceive themselves to be business managers within a market assistance not to individual VACs but rather to groups of participating VACs. It economy (Ogura, 2003). Shizuoka prefectural officials consider this to be the established brand marks for projects as a whole, overseeing development of single largest problem in advancing such programs and, with that in mind, have such related items as cookie gifts, shopping bags, and package framing (Figures been attempting to lead reform from a social service mindset to a business one 7-9). by building up a steady track record of successes achieved together (Figure 10). With this in mind, we next compared the Shizuoka initiative against the two success stories in reference to factors one through five outlined above.

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Figure 10: Number of VACs participating in Shizuoka projects Utilization of Professional Staff Shizuoka Prefecture focused on across-the-board enhancements of the collective product development capabilities of VACs involved in a particular project. That is, product development professionals were not assigned to any one facility, but rather to working groups established for specific product categories spanning several facilities, for which they would hold seminars and training sessions. Similarly, marketing professionals were hired to develop sales routes for the VAC projects of the prefecture as a whole or, in other words, for groups of projects. Thus, from the point of view of an individual VAC, the objective was not to increase the sales of that particular facility as much as to increase the sales of the project as a whole.

High-Quality Packaging by Professional Designer At the Shizuoka case, project members, uneasy about prospects for recovering their investment in the services of a professional designer, initially entrusted package design to students within the design department of Shizuoka University of Art and Culture, who set about the task for free. The students were successful in making project members realize the importance of design. Unfortunately, their work was not of the professional level of quality required to win awards at design competitions. While project members thus came to fully appreciate the importance of design itself, they generally remained somewhat unaware of the importance of investment in design. Differentiation from Competitors The Shizuoka projects tended to focus on cookies and ecologically friendly bags, areas in which others have already been successful and, to that extent, unsuitable for differentiation vis-à-vis competitors. This reflects the nature of the project group concept, namely, that successful techniques are to be shared by all member VACs so as to bolster the productive capabilities of the group as a whole. Media Exposure The Shizuoka projects themselves were unique and taken up by the national media, yet the products they entailed generally did not get much coverage beyond local media. There was little in the way of publicity capable of catching the attention of the typical consumer.

1810 Conference Proceedings Yasuko TAKAYAMA and Satoshi KOSE Universal Design Management for Vocational Aid Centers

Conclusions

We could express factors one through five in a temporal order, beginning with the fifth, “media exposure,” the one that had a particularly direct impact on sales. Inducing mass media to pick up the product was its quality and the story behind it; or, in other words, the fourth, “differentiation from competitors.” Supporting factors for this, in turn, are the second (“utilization of professional staff members”) and third (“high-quality packaging by a professional designer”). However, these steps entail a great cost. Under the five-year plans, such costs are subsidized by the national and regional governments. Such support is temporary; and, if the Figure 10: Number of VACs participating in Shizuoka projects VAC does not have the ability to bear this burden on its own once the subsidies come to an end, the VAC will end up back at square one. The directors of the two Utilization of Professional Staff award-winning facilities addressed this issue by establishing a system of mass Shizuoka Prefecture focused on across-the-board enhancements of the collective production. By this, we arrive at the first factor, “managerial enthusiasm for product development capabilities of VACs involved in a particular project. That is, business expansion.” Note that as was evident at many facilities in Niigata and product development professionals were not assigned to any one facility, but Miyagi prefectures, it is far from unusual for directors to lack this enthusiasm. The rather to working groups established for specific product categories spanning Shizuoka projects, in contrast, while not producing anything that rated particularly several facilities, for which they would hold seminars and training sessions. highly within the Delivering Happiness contest, nonetheless did act to heighten Similarly, marketing professionals were hired to develop sales routes for the VAC such enthusiasm. That is Niigata and Miyagi prefectures’ management leaned to projects of the prefecture as a whole or, in other words, for groups of projects. strategic approach (Mozota, 2010) and Shizuoka project’s leaned to managerial Thus, from the point of view of an individual VAC, the objective was not to approach (Mozota, 2010). increase the sales of that particular facility as much as to increase the sales of The design management techniques employed by the general business the project as a whole. companies cannot be used as is for VACs. Rather, they must be individually High-Quality Packaging by Professional Designer crafted to match the contextual background of individual facilities, including the directors' perception of the role of the facility and the degree of available abilities. At the Shizuoka case, project members, uneasy about prospects for recovering Within the support measures promoted underneath the five-year plans, there their investment in the services of a professional designer, initially entrusted were some proposals that were simply not utilized or others that proved package design to students within the design department of Shizuoka University ineffective. Here, we anticipate a further improvement in the efficiency and of Art and Culture, who set about the task for free. The students were successful effectiveness of universal design management through enhancements to the in making project members realize the importance of design. Unfortunately, their personnel and funding support framework as pertains to the five success factors work was not of the professional level of quality required to win awards at design discussed in this report. competitions. While project members thus came to fully appreciate the importance of design itself, they generally remained somewhat unaware of the Acknowledgements importance of investment in design. This work was supported under KAKENHI 2353073. The authors thank the social Differentiation from Competitors service officials in Niigata, Miyagi, and Shizuoka prefectures, and the directors of The Shizuoka projects tended to focus on cookies and ecologically friendly bags, Nagomi Work Center and Peer Multifunctional Work Support Center. areas in which others have already been successful and, to that extent, unsuitable for differentiation vis-à-vis competitors. 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