Brewer and deLeon (1983, 51) also recognize that a problem may remain
complex, because once the problem is defined by the analyst, it becomes subject to competing individual, organizational, and external environmental (client) preferences
Well-Structured Problems
William Dunn (2008, .79) defines well-structured problems as those that "involve one or a few decision-makers and a small set of policy alternatives." Low-level agency operational problems, such as the optimal point of replacing agency vehicles, given age, repair, and depreciation costs, are well structured, because all consequences of all policy alternatives can be programmed in advance. Life cycle, maintenance planning and budgeting, and condition assessment systems can provide needed data to make decisions in this relatively simple policy context. For example, the city of Milwaukee uses database systems for condition-based project planning for many of its municipal services, thus enabling officials to anticipate and define problems before they become serious. For surface transportation, the city uses a pavement management system (PMS) to plan more cost-effective paving budgets. This assessment system contains records of more than forty street-condition inventory elements, including type of pavement, age of pavement, and maintenance history. Streets are rated according to the "possible pavement condition index," from very good to very poor, depending on scores received. Milwaukee began using the PMS in 1988, and 20% of its database is updated annually, allowing the city to survey its entire system within five years. For health services, Mil waukee uses three criteria based on condition to determine capital needs: (1) age and condition of facilities, (2) use patterns of facilities, and (3) safety needs of clients (City of Milwaukee 1996, 84).