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Recent Developments and Enforcement of Competition Policy in Korea
May 20, 1996
by
In-Ho KIM
Chairman
Fair Trade Commission
Republic of Korea
Introduction
I am very honored to be talking about the recent development of the
Korean competition policies with the ambassadors and entrepreneurs of the
European Union. I would like to take this opportunity to extend my gratitude to
the EU Chamber of Commerce in Korea for organizing this meaningful luncheon
meeting.
In explaining the recent developments of the competition policy of Korea, I
will first briefly describe the background and the development process of the
Korean fair trade law; second, I will talk about the four major tasks of the
Korea Fair Trade Commission: ¨çderegulation, ¨èconsumer protection, ¨éeasing
economic concentration, and ¨êinternational cooperation.
1. Changes in Korean Economic Environment and Developments in Competition Policy
1.1 Background of the Enactment of Korea Fair Trade Law and Its Development Process
It was in 1980, when the "Monopoly Regulation and Fair Trade Act" was
first enacted, that antitrust policies, or competition policies, were first
introduced in Korea to regulate unfair trade practices and eliminate side effects
stemming from monopolistic market structures. Given the circumstances at the
time, the enactment of the law was inevitable: Monopolistic market structure
and economic concentration were adversely affecting the economy. To name just
a few, the Second Oil Shock in 1979 intensified price-hike pressures due to
monopolistic and oligopolistic market structures. In addition, the overstretched
chaebol, a product of government's fostering of heavy and chemical industries,
were becoming the very source of economic problems. Thus, enforcement of fair
trade laws were urgently needed to regulate such evils.
EU member nations have a relatively long history of a capitalist economic
system and much experience in enforcing the antitrust law which is designed
to cure failure of the market--the basis of a capitalist system. Contrarily,
Korea has a short history in enforcing the antitrust law and little experience in
the field. Since the developmental years of the 1960's, the government played a
leading role in providing and distributing financial resources and pursued a
strategy in which the government strove to develop the national economy in
concert with a handful of competent entrepreneurs. Under such circumstances,
monopolistic and oligopolistic market structures were far from regulated. In 1980,
however, Korea began to seriously acknowledge the fact that economic problems
were stemming from monopolistic and oligopolistic market structures and thus
came to introduce its antitrust regulations.
In the beginning, the fair trade laws were operated by the Economic
Planning Board, under which the organization and its number of employees grew
steadily.
1.2 Change in Korean Economic Circumstances and Strength- ened Functions of the
Korea Fair Trade Commission
Over the past years, the economic environment has changed drastically in
Korea with more emphasis placed on market mechanisms.
Internally, it has become difficult for the government to drive the nation's
economic development as the economy approached the level of the advanced
nations with high wages and capital accumulation growth. In an expanded and
diversified market, market competition should be the most important economic
principle in achieving optimal distribution of resources and encouraging creativity
of individuals, which is essential in producing high value added, high quality
goods.
Externally, geographical distance is losing significance with the advancement
of information and communication technology. Moreover, the launch of the WTO
removed many barriers of international trade integrating the world into a huge,
single market. Consequently, it will become almost impossible to enjoy market
dominance under protection from foreign competition.
Thus, the Korean government is modifying its policies toward vitalizing
market functions. During government reorgani- zation in December 1994, when
ministries were merged or downsized, the Korea Fair Trade Commission was
enlarged and made independent from the Economic Planning Board; further-
more, in March of this year, its status was elevated from a vice-ministerial level
organization to a ministerial level central administrative agency.
2. Key Policy Directions
2.1 Deregulation
The Korea Fair Trade Commission is deeply committed to eliminating
protectionist practices and improving regulatory frame- works which are
widespread throughout the society in order to promote competition in the Korean
economy. With respect to the existing laws and regulations, the Commission
orders the relevant ministries to remove anticompetitive provisions. With respect
to new laws and regulations in accordance with Article 63 of the Fair Trade Act,
the relevant ministries are to hold consultations with the Commission prior to
enactment of the laws. Thus, the government is replacing the past government-
led industrial policies with policies befitting an advanced market economy based
on competition.
In 1995, the Commission ordered the removal of anticom- petitive
provisions in 30 existing acts including abolition of exclusive sales area for tour
businesses and customs businesses. In addition, the Commission ordered the
abolition of the lock- time system in broadcasting advertisements. Also, through
economic minster's meetings and vice-minister's meetings for law revisions and
new enactments, the Commission asked other ministries to delete or modify
anticompetitive provisions. In 1995, deliberations were made on 205 acts of
which the Commission gave opinions on 93 and had its opinions reflected in 61
of them. That means 65.5% of the commission's opinions were taken into
account.
The Commission will continue to actively pursue deregulation, and will
place particular emphasis on revising anticompetitive rules and regulations in
some 10 areas which have significant ramifications on the national economy:
review of rules and regulations will be focused on such areas as the
infrastructure industry including the communication and energy industries; the
financial industry where deregulation has been insufficient; and the health and
service industries which are closely related to public life. In the past, the
communication and energy industries were considered decreasing cost industries
in which monopolistic and oligopolistic market structures were inevitable;
however, technological development has made the application of market principles
also possible in these industries. Similarly, the medical industry used to be
considered an area in which government regulation was inevitable to guarantee a
certain level of service, since information asymmetry between the provider
(doctors, nurses) and the consumer (patients) made market competition
impossible. However, the development of information and communication
technology has facilitated the patients' access to medial information, and now it
is considered that market competition guarantees the quality of service in the
medical industry.
Cartels formed by laws or by trade associations are the major impediments
to market competition; thus, the Commission will exert utmost efforts to prohibit
cartels. The Commission will overhaul provisions of laws pertaining to individual
industries which protect cartels so that the Fair Trade Act will be applied to
more types of cartels.
2.2 Consumer Protection
Due to severe supply shortages in the past, industrial rules, regulations, and
customs of trade are still very much oriented toward the suppliers. For instance,
in determining the regulation of market entry, regulations on the production and
sale of goods and services, and scope and speed of market opening, the producers
are given the primary consideration. Such supplier-oriented industrial structure
not only makes Korea vulnerable to challenges of foreign competition, but also
runs counter to the ultimate economic goal of maximizing public welfare. Thus,
such supplier-oriented policies need to be changed to consumer- oriented ones.
With the establishment of the Consumer Protection Bureau in March, the
Korea Fair Trade Commission will concentrate more on creating an environment
in which consumers can make rational choices based on consumers' wishes. It
will launch a thorough crackdown on false or exaggerated advertisements and
enact advertisement guidelines which obligate the producers to indicate
information essential to the consumers. By doing so, the Commission will make
sure that the correct and necessary information is provided to the consumers. In
addition, tie-in sales at wedding halls and funeral service houses as well as false
bargain sales at department stores will also be regulated in order to protect
consumers.
2.3 Easing Economic Concentration
Large business groups, better known as Chaebol, are products of a
government-led, compressed economic growth unique to Korea. The chaebol are
characterized by their fleet-like expansion in which a small number of equity
holders possess and control enterprises of diverse businesses through cross-
equity holding and operation of the CEO's (Chief Executive Officer) office, and
they are often major sources of Korea's economic problems.
The concentration of economic power among the chaebol give rise to
questions of legitimacy with respect to the accumulation of wealth process and
of equity with respect to the excessive concentration of ownership. In terms of
efficiency, access to a disproportionately large share of the limited financial
resources gives the chaebol a comparative advantage over other enterprises in the
market. This impedes fair competition and sound growth of the
small-and-medium-sized enterprises. Furthermore, by keeping failing companies in
a business group, it weakens the competitiveness of not only the business
groups, but also that of the nation as a whole.
However, few can deny the fact that the chaebol played an essential role
throughout the development of the Korean economy. Even today, affiliates of
chaebol have a better chance of achieving "economy of scale" and "economy of
scope" in their industries. For instance, experience in using and repairing heavy
equipment in the construction industry can contribute to the heavy equipment
manufacturing technology development. Korean chaebol such as Samsung,
Hyundae, Daewoo, and etc. can capitalize on the worldwide recognition of their
trademarks and serve as the backbone of Korea's future economy.
The Korean government will bear in mind such merits of the Korean
chaebol and strive to make the most of it; however, for the time being, the
government feels the need to drastically correct the irrational aspects of the
chaebol such as their distorted structure of ownership and control.
First, the Commission will remove debt guarantees among affiliates of
large business groups in phases. Presently, the ceiling on debt guarantees is set
at 200% of assets. The ceiling will be lowered to 100% in the next two years,
and to 0% in another three years. Moreover, the rules and regulations related to
the examination of corporate mergers will be brought to the level of advanced
nations in order to prevent the formation of monopolistic and oligopolistic
structures which have the effect of restraining competition. Furthermore,
regulations prohibiting unfair in-house trading will be enforced more effectively
by extending the application of the law from trade in goods and services to one
including trade in assets and funds. At the same time, the government as a
whole will effectively implement policies by coordinating not only fair trade
policies but also those of taxation, finance, and market opening.
When the Commission successfully prevents large business groups from
expanding business fields, corrects unfair in-house trading, and regulates their
abuse of market-dominating positions through the enforcement of policies
repressing economic concent- ration, it is expected to also improve the business
environment for small-and-medium-sized enterprises and foreign enterprises.
The policy to repress economic concentration, coupled with policies of
deregulation and consumer protection, are expected to improve the business
environment of the foreign enterprises who are committed to true market
competition.
2.4 International Cooperation
The Korea Fair Trade Commission is also prepared to actively contribute
to promoting international cooperation in competition policies.
For one, the Commission is striving to improve the business environment
of foreign enterprises operating in Korea by improving the relevant laws and
regulations. In April 1995, a change was made in the international contract
reporting system to facilitate the signing of international contracts in which the
contracting parties are no longer required to report their contracts. For another,
to allow foreign enterprises to engage more freely in sales promotion activities,
the Commission raised the ceiling on price of gifts and abolished the limit on the
gift offering period.
International cooperation in competition policies does not simply mean
revising and improving domestic laws and regulations; it also includes
establishing international rules which can be applied worldwide. Such discussions
are under way at the OECD and are expected to be extended to talks at the
WTO in the near future. It is true that many trade barriers at national borders
have been removed as a result of the conclusion of the Uruguay Round
multilateral negotiations; however, if the end-users are blocked from easy access
to imported goods, there will be no increase in actual trade no matter how
many goods are cleared at the borderlines.
I do not need to remind you that the EU is very active in international
cooperation in the field of competition policies. Presently, the EU has proposed
to the OECD the signing of bilateral and plurilateral agreements and eventually
extending them to multilateral agreements comprising most of the countries
around the world. In addition, in February, the EU and Korea initially signed the
"Framework Agreement for Cooperation and Trade Between Korea and EC" in
which the two nations agreed to cooperate in competition policies.
The Korean government will actively pursue interna- tionalization of
competition laws and policies to keep abreast of the international trend based on
the understanding that compe- tition policies are not restricted to a nation's
boundary. International cooperation in the field of competition policy is focused
on effectively regulating violations of the competition law by enterprises
throughout the world. Thus, having enter- prises fully understand the content of
competition laws and abide by them would be one of the best means of
promoting international cooperation. I would greatly appreciate it if the EU
enterprises fully understood the purpose of the Korean fair trade laws and
observed them.
3. Conclusion
Under the vision of creating "an economy in which competition
flourishes," the Korea Fair Trade Commission will strive to spread the idea of
competition policy in every corner of the economy and the society for the purpose
of maximizing economic efficiency and consumer welfare. I hope that EU
enterprises operating in Korea will fully understand the spirit of fair trade laws
and the policy directions of the Korea Fair Trade Commission and share the fruit
of Korean economic develop- ment.
Thank you for your attention.
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