Presentation for 11/3/1998
Ch. 3. Meredith Woo-Cumings, Slouching toward the Market: The Politics of
Financial=20
Liberalization in South
Korea=20
Young-Ju Seo and Young Hark Byun.
Financial Liberalization: Toward the Dynamics of Interface=20
Between International and Domestic Political Economy=20
1
The main question of this Woo-Cumings' chapter is that why the Korean
government tried to liberalize the economy and to adjust it structurally in
1980s and early 1990s, not before. She argues that until 1970s Korea had
been able to maintain its repressed financial policy and state-led
industrialization under the tolerant auspice of U.S.. But since 1980s,
financial liberalization in Korea was triggered by the change of U.S.
foreign policy as the response to uneven growth of the international
political economy where U.S. hegemony had been declined.=20
In this paper, we present two points to supplement and criticize her
argument. First, the initiation of financial liberalization in the 1980s
should be understood as the result of the coincidence of common interest
between Korea and U.S., rather than one of the pressure from the U.S. only.
Second, the uneven and/or multi-phased processes of financial
liberalization across issue-areas were the result from the changing
relationship between the government and businesses.=20
2.
The study of financial liberalization, especially the initiation of
it, in the 1980s and early 1990s is required to integrate international
factors with domestic ones. In other words, we need to deal with the
push-factor of the U.S. as well as the pull-factor of the domestic
government's willingness to initiate financial liberalization. In this
sense, it could be argued that the Korean financial liberalization in the
1980s was possible because financial liberalization was common interest for
both the Korean and the U.S. government. Let us look at how the
convergence of the interest occurred between two governments. =20
for liberalizing its financial system. First, the Korean government was
eager to reduce the burden of socializing risk--the problem of default-in a
system where the state, as owner of the banks, was the creditor. Second,
the new authoritarian government hoped to discipline too much grown big
business groups, chaebol, by liberalizing the financial system. Finally,
coming to the office in the thick of economic crisis of the early 1980s,
the new government by military coup had to handle high inflation and
resumed continued economic growth. For this, the government needed the
radical disconnection of financial management from the precedent
government's repressed one, replacing interventionist bureaucrats with
neo-liberal ones. =20
liberalization of Korea. The U.S. government was not able to tolerate the
closed and repressed Korean financial market as its position declined in
the structure of the international political economy. The U.S. changed its
foreign economic policy to pressure on Korea to open and liberalize the
financial market. =20
If we compare Korean case with Taiwanese one, our argument should be
clearer. Taiwan has gained a lot from the foreign trade with U.S. since
1950s, steadily, which means that U.S. must be eager to open the
government-owned repressive financial market, as we see in the Korean case.
But Taiwan survived the pressure of open-door policy from U.S. because the
domestic conditions were different from the ones in South Korea. First,
traditionally Taiwan chose the orthodox macroeconomic policies, that is,
positive interest rates, cautious monetary policy, and a balanced budget.
Second, Taiwan succeeded in restraining big businesses. Political leaders'
anti-capitalist bias and ethnic suspicion of the Taiwanese majority led the
state to structure a more distant relationship of coordination between
public and private sector . Third, KMT regime has continued to dominate
political arena without any (threat of) alternation of government since
1949, so it didn't need any clear-cut departure from the precedent
policies. In a nutshell, push-factor couldn't collaborate with pull-factor;
the demand of liberalization from U.S. couldn't have its counterpart to
form the broad interface of agreement to initiate and implement the policy
drive .
In addition to the fact that the possibility of financial liberalization to
be initiated is the function of the size of common interest on both
parties, we think it is necessary to note that the processes of policy
implementation in domestic realm vary across issue-areas. This is because
the once-initiated financial policy subjects to the dynamic relationship
between the government and social forces, especially big businesses. In
Korean case, we observe the followings; speedy and remarkable progress was
made in privatization and entry regulation on economic activities for
domestic financial institutions, whereas the freeing of interest rates was
bogged down, policy loans reappeared, and the presidents of the privatized
banks continued to be appointed by the government . Foreign
pressure-oriented explanation cannot explain these uneven and different
varieties of financial liberalization across issue-areas.=20
The uneven financial liberalization in South Korea results from the rising
economic power of chaebols vis-=E0-vis the government, and from their
concerns about both domestic deregulation and internationalization. From
the 1980s and onward, chaebols in Korea came to have the power enough to
ward off the demand or guide from the government, or to drive the
government policies toward their preferred directions.
Even though chaebols welcomed the opportunity to enter the financial sector
and to gain independent assets to foreign financial markets, they remained
heavily dependent on preferential finance from the state-owned banks. And
they feared that foreign entry into the capital markets would dilute their
control . So, with their grown influence vis-=E0-vis the counterpart of
government, chaebols could make the scheduled introduction of foreign
financial institutions lag behind the time.
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