The Political Economy of Restructuring the Electricity Sector in South Korea

Abstract

South Korea launched electricity reform in the 1990s but had continued to struggle with instituting an effective free market. In order to bolster economic growth, the development of the electricity industry has long been a fundamental issue for the state. The case in Korea is distinctive because it is part of a large-scale privatization project as the political regime had just shifted to democracy. The state spun off and corporatized the state-owned power enterprise with very limited privatization. The Korean government has chosen to control the power companies as the largest shareholder. Nonetheless, the reform process was suspended in 2004 without encountering major problems. This has created a major puzzle for analysts: why did the reform result in this outcome? I argue that as a politically driven reform project, power reform in Korea was destined to fail. The economic and social responses elicited by reform implementation all contributed to the failure of the power reform. This paper describes the dynamics of Korea’s electricity reform and details the industrial restructuring during the reform. It examines the political logic of the reform and how it shaped the power industry and in turn led to a stalled agenda. The paper concludes with a discussion of the broader implications for the roles of the state, industrial policy, and state-business relations.