KIPA Case Study Series 4 www.kipa.re.kr
Korean Cases in Public Administration for Training and Practice
: Cases in Citizen-Centered and Collaborative Governance Vol.
KOREA INSTITUTE OF PUBLIC ADMINISTRATION KOREAN Chapter CASES IN PUBLIC 1 ADMINISTRATION · 7 FOR TRAINING AND Introduction - M. Jae Moon PRACTICE
Chapter 2
Citizen Participation in Local CONTENTS Governance: The Case of Seoul’s Participatory Budgeting System · 15 - Sun Young Kim
16 Introduction 17 Background 19 Adoption of the Participatory Budgeting System 19 Implementation 24 Challenges 28 Remaining Tasks 29 Teaching Note
Chapter 3
Working with Local Residents in Collaborative Arrangements: A Case Study of Urban Revitalization Vol. 4 Project by Seoul Metropolitan Cases in Citizen-Centered Government in South Korea · 35 and Collaborative Governance - David Lee 36 Overview 90 Introduction 39 Urban Revitalization 2025 91 The U-City Project in Songdo, 44 The Changsin-Soongin Project Korea: History of Shift or Failure 51 The Future of Urban Revitalization 2025 95 Can a Smart City Become Smarter 53 Teaching Note Through Citizen Participation? Lessons from Songdo 97 Smart Participation for a Smart City: Success Stories from Around the Globe Chapter 106 Teaching Note 4
Building an Urban Forest through Public-Private-Partnerships: A Case of Seoul Forest Park · 61 Chapter - Sanghee Park 6
62 Overview Revisiting the Government Project 63 Initiated by the Private, Supported Creating Jobs for the Elderly in South by the Public Korea: The Case of Chuncheon · 115 66 Shared Vision, Disagreements on Particulars - Myungjung “MJ” Kwon
71 The Changing Role of the Seoul 116 Case Study Green Trust 116 Part A 74 Teaching Note · Challenges · Fiscal Issues · Inconsistent Eligibility and Screening Processes · On-the-Job Accidents Chapter · Lack of Job Opportunities 5 122 Part B From Smart to Smarter with Citizen · Three Strategies Participation: Lessons from Songdo · The Present Status of the Program U-City Project · 89 126 Teaching Note
- Dohyeong Kim Foreword
It is well known that the outstanding ‘government administration’ system and bureaucrats play a key role in Korea’s remarkable political and social development. Korea’s development experience after the Korean War is often cited as an exemplary textbook not only in developing countries but also in the developed countries.
The purpose of this book is to develop, share, and spread as a module the best administrative system and policy cases of Korea, which can be used as a reference for both domestic and foreign governments and public institutions to improve their administrative capacity.
If the existing development policy case modularization project is only theoretical, academic and normative discussion, this modularization project is differentiated in that it has a purpose to develop with emphasis on practical implications and applicability in the policy field.
In order to achieve the aforementioned goals, the Center for International Development and Cooperation, at the Korea Institute of Public Administration published ‘Korean Cases in Public Administration for Training and Practices: Overcoming Uncertainties and Obstacles’ in 2018, focusing on lessons learned from policy failures, following the publication of ‘Korean Cases in Public Administration for Training and Practices for Administrative Training and Practice’ in 2017.
The common theme of this year’s policy case studies, which is the third year of the modularization project, is a ‘Public Participation in Policymaking Processes ’. Five selected cases care written to examine the roles of citizens and private sectors in policymaking processes in various policy areas including public budgeting, urban revitalization, urban forest building project, U-City project, and job creation programs for the elderly. The selected case studies were prepared by five faculty members who are currently teaching in either public administration or public policy in the U.S. Additional teaching notes are offered as a teaching guideline to those who use the selected cases for their training or academic courses.
As in previous studies, good policy cases will be rigorously reviewed and uploaded to ‘Electronic Hallway’ at the University of Washington at Seattle, U.S. for sharing among policy practitioners, academia professionals, and students studying public administration and policy around the world.
Hopefully, the case studies of public participation in government innovation will be useful for domestic and foreign policy practitioners as well as academic researchers. I would like to express my sincere gratitude to Dr. Hyeon-Suk Lyu, Director of Center for International Development and Cooperation for organizing this project. Many thanks and appreciation also go to this project leader, Professor M.J. Moon of Yonsei University and the professors who wrote each case study.
December 2019
Seongho Ahn
President, Korea Institute of Public Administration
CHAPTER 1
Introduction
KOREA INSTITUTE OF PUBLIC ADMINISTRATION · Yonsei University · Yonsei M. Jae Moon The selected case studies were prepared by five faculty members who are Considering Considering that previous case studies often highlight the role of government This is a collection of case studies that highlight the government’s efforts to Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chapter 1 Chapter 8 inter-agency inter-agency collaboration, conflict management, regulatory reform, and human level). or national the local (either at management resource selected selected cases in their training or academic courses. As indicated in the following table, the five cases presented here represent a handful of areas, including e-government, currently currently teaching in the fields of either public administration or public policy in the U.S. Additional teaching notes are offered as a guidelineto thosewho wishto use the centered public policy and administration. and administration. public policy centered elderly. We believe that the We elderly. selected cases offer insightspractical great to those wishing to strategically and proactively cope with the need for citizen participation and citizen- private private sector in policy-making processes in various areas including public budgeting, urban revitalization policies, the U-City project, and job-creation programs for the officials, theselected cases have been included to highlight theroles of citizens and the various various stages of public policy formulation, including agenda-setting, decision-making, and so on. evaluation, implementation, but as policymakers via active participation in policy-making processes. The recent literature on co-production has placed a growing emphasis on the role of citizens in integrate integrate citizens into policy-making processes as policy targets as well as participants. This means that citizens have become increasingly important not as “policy-takers” Introduction
Chapter 1 - Introduction KIPA Case Study Series 4 9
Songdo ’s Seoul Metropolitan Government Government Metropolitan Seoul Title citizens gained the ability to propose, : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. Chuncheon ’s Participatory Budgeting System.” In the early 2010s, Seoul Forest Park Park Forest Building an Urban Forest through Public-Private Partnerships: Public-Private A Case of through Building an Urban Forest SmartFrom to Smarter from with Citizen Participation: Lessons U-City Project the Elderly in South jobs for Creating Project the Government Revisiting The Case of Korea: Citizen Participation in Local Governance: The Caseof Governance: Citizen Participation Local in Participatory Budgeting System A Case Arrangements: in Collaborative Residents with Local Working by Project Study of Urban Revitalization in South Korea Seoul Metropolitan Government introduced the Participatory Budgeting System as This case study describes the background and implementation process of The first case study, by Sun Young Kim, is entitled “Citizen Participation in Local “Citizen Young Kim,case is study, entitled The first by Sun Authors David Lee David Seoul Sanghee Park Dohyeong Kim Dohyeong Sun Young Kim Sun Young Myungjung Kwon participation in government affairs. Theobjective of thecase study isto help students identify and analyze potential problems and challenges associated with this system and generate practical recommendations for resolving such difficulties. By successfully of citizens, intense competition among communities, and conflicts between citizens and administrators. the Participatory Budgeting System by focusing on the efforts to enhance citizen Participatory Participatory Budgeting System, however, evaluate, and decide how to allocate a portion of the city’s annual budget. While the system contributed to increased local autonomy and fiscaldemocracy to some extent, it also suffered from problems, several such as the limitedrepresentation and expertise the a means of better reflecting citizens’ preferences and priorities in the city’s budgeting process. Prior to the implementation of this system, budgeting and fiscal management were decisions manner in which out in a top-down had been carried of the government made mostly by a small group of city officials and experts. With theadoption of the Governance: Governance: The Case of
Seoul Metropolitan Government Seoul City, the capital of South Korea, Metropolitan Government announced Seoul Seoul project, although it had already been completed by the Changsin-Soongin This case study will help students understand the ofrange tools and practices at The The second case, written by David Lee, is entitled “Working with Local Residents Residents with Local “Working Lee, is entitled by David written The second case, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 10 residents residents in the decision-making process has not only resulted in the limited utility of challenges. several but has also created projects completed locally embedded revitalization projects, the actual projects were chosen by the city and and city the by chosen were projects actual the projects, revitalization embedded locally engage to Failure community. local the from input little very with governments national upon its completion, it transpired that, although the had advised the CRC to collaborate actively with residents to design and implement Revitalization Revitalization Center (CRC) – was implemented in practice. Indeed, many lessons can be learned from this effort, given that the project had limited success. In particular, time the Urban Revitalization 2025 strategic plan came into force, was fully aligned it is an excellent Thus, model. citizen participatory governance with the newly proposed case for examining how the urban revitalization governance model – led by the City could could adopt to include local residents in decision-making processes related to local projects. revitalization plans. plans. In line with this trend, in 2018, the Urban Revitalization called revitalization, for urban plan strategic its first comprehensive 2025, which included a proposed citizen-driven governance model that municipalities members of communities where such projects are expected to be implemented would make it easier to identify their needs and incorporate them into the city government’s is expanding rapidly, urban revitalization projects aimed at meeting the needs of its citizenbenefitcould participation, from population the input asgathering growing from in Collaborative Arrangements: A Case Study of Urban Revitalization Project by Metropolitan Government in South Korea.” As such as transparency, accountability, representation, participation, and democracy. representation, accountability, as transparency, such administration, administration, in general. In addition, students should be expected to critically assess the effectiveness of theParticipatory Budgeting System interms ofkey publicvalues, completing completing this case study, students should be able to comprehend both the benefits and drawbacks of engaging citizens in the budgeting process, specifically, and city
Chapter 1 - Introduction KIPA Case Study Series 4 11 Park.” Park.” Since
Forest Seoul Forest Forest Park project. The park Seoul Forest Park Conservancy as a public : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. Forest Forest Park has become a go-to spot for citizens project and thus (3) make recommendations for the Seoul Green Trust, in 2003. In November 2016, the city government District as its location, but the election of Mayor Lee in 2002 was Seoul Changsin-Soongin Ttukseom This case addresses how public, nonprofit, and for-profit organizations can The third case was written by Sanghee Park. The case is entitled “Building an Metropolitan Government built a partnership and created a dedicated nonprofit cooperate cooperate to build an urban green space in an extremely dense mega-city. This case could be considered ideal for use in undergraduate- and graduate-level introductory foundation, foundation, the transferred management authority to the trustee. the deciding factor in building momentum for the was the first urbanforest established through public-private partnerships (PPPs) and had been successfully managed, funded, and expanded up to this point. An activist group called Forest for Life and the Landscaping Management Department of the it opened on June 18, 2005, seeking a natural refuge in the heart of the city. There was much controversy over the use of Urban Forest through Public-Private-Partnerships: A Case of collaborative collaborative framework and will be able to (2) identify the factors that hindered the success of the projects. urban revitalization in future of this model successful implementation are are capable of self-governing such projects upon completion to generate the desired outcomes. In sum, upon successful completion of this case study, students (1) will fully understand the complexities of collaborative structures characterized by conflicts of interest among local residents and the power imbalance among the participants in the of other sectors, particularly local residents, to achieve the intended project outcomes within the designated timeframe and budget. Close examination of the benefits and challenges of the collaborative governance model will give students a better understanding of the various means of involving citizens in the project development and implementation phases while also ensuring that members of local communities the disposal of city managers working in the CRC to facilitate the execution of urban revitalization initiatives. In particular, they will become more aware of the broad range of interpersonal and professional skills to required work effectively withrepresentatives Seoul to avoid repeating its as an example to explore Songdo from the perspective of citizen Songdo U-City Project.” The “smart city” Songdo Songdo The teaching note provides theoretical arguments for smart cities and The fourth case, written by Dohyeong Kim, is entitled “From Smart to Smarter Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 12 failures failures at the pilot sites of upcoming smart city projects in South Korea, particularly in accomplishing the objectives of a smart city project while reconciling conflicting interests among stakeholders. Students can then discuss how policymakers should address the challenges and barriers experienced by examples examples of their implementation in various settings. Through such an analysis, students will evaluate whether a top-down or bottom-up approach would fare better participatory governance and helps instructors guide students in analyzing practical open to larger numbers and types of people while engaging them in the process of city development. innovative whether whether citizen participation and smart city effortscan be a winning combination in terms of enabling future cities not only to become “smarter” but also to become more and weaknesses of the smart city project in participation. This case study should provide students with an opportunity to discuss how how this type of project has been developed and what it has focused on during its planning, design, development, and implementation. It highlights the strengths make make the city greener and healthier and attract more businesses, but the discussion on whether smart cities can facilitate citizen engagement and community participation is in its infancy. This case uses the U-City project in with Citizen Participation: Lessons from movements in South Korea have aimed to harness digital technology and tools to demanded, demanded, but a carefully designed balance of responsibilities between the city partners and private of important was this PPP the successful realization government to project. learn learn that citizen participation, effective partnerships, and stable funding sources are the keys to the success of a such project. The partnershipas evolved the circumstances makes makes a successful PPP, how important it is to build trust with partnering entities and elicit support from outside, and how the relationship changes over time. Students will courses in the fields of public policy, public administration, and urbanplanning and development. This case provides an opportunity for students to learn about what
Chapter 1 - Introduction KIPA Case Study Series 4 13 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Senior Services Agency (CSSA) assessed the Vol. 4 : Vol. Chuncheon while implementing a project to create jobs for the elderly. The City , South Korea, has experienced an influx oflow-income older workers .” This case study highlights the numerous challenges faced by the City Despite Despite the benefits of the project, the city oftenfaced unexpected challenges The last case was written by Myungjung Kwon. The title of is “Revisiting The title the case by Myungjung Kwon. written was case The last Chuncheon Chuncheon overcoming overcoming their hurdles, and 5) develop a comprehensive model that provides best a project. such of enhance the effectiveness to agencies government local for practices in the community, 2) identify and explain the obstacles and challenges of such a project project a of such challenges and obstacles the explain and identify 2) community, the in when it is implemented by a local government, 3) discuss the potential challenges that local government agencies might face when implementing such a project, 4) make and recommendations for suggestions improving the effectiveness ofsuch projects and – financial issues, mismatched jobs, on-the-job accidents, andlack of opportunities– and how the CSSA attempted to overcome them. While conducting this case analysis, students taking public policy and public administration courses will be expected to 1) understand the importance of the project for the elderly and the impact of the project while while implementing it. The effectiveness of the project by identifying and analyzing the challenges the agency faced when implementing it. Based on this assessment, the case illustrates the challenges that the CSSA, its participants, and the participating organizations faced to to nearby smaller ones. In order to assist low-income older workers in improving their quality of life and economic self-sufficiency, the city has chosen to implement a national government project to create jobs for the elderly, which was launched in 2004. As of jobs. in a variety workers older low-income many has placed the city’s project a result, of of due to mandatory retirement regulations and the migration of seniors from big cities original innovative goals while engaging all relevant stakeholders in co-creatinggoals while stakeholders engaging original all innovative the relevant city visions and demands. based on their own the Government Project Creating Jobs for the Elderly in South Korea: The Case of from from the perspective of participatory governance. After discussion of the applicability of participatory governance in various urban technology-based development scenarios, students will be expected to devise a specific smart city strategy to achieve their Chuncheon We believe all the five selected cases are of great use to those who are interested cases use to are all thoseof selected whothe interested great are five believe We Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 14 for for either training government officials or educating students who are interested in choices. career public service as their implement implement participatory and citizen-oriented policies. We also believe that carefully use the cases to instructors want who instrumental to very are notes teaching organized central central levels. Each case offers not only greatdetails of selected policycase aswell as opportunities and challenges that policymakers might face when they introduce and in teaching and learning participatory and citizen-oriented policies at the local and
Chapter 1 - Introduction CHAPTER 2
Citizen Participation in Local Governance:
The Case of Seoul’s Participatory Budgeting System
KOREA INSTITUTE OF PUBLIC ADMINISTRATION began Metropolitan Seoul · University of Georgia · University Eunpyeong-gu was the first to adopt , Mayor Park pointed out Sun Young Kim Sun Young Eunpyeong-gu Seoul, Eunpyeong-gu ’s Residents General Meeting for Participatory Budgeting. ’s Budgeting Participatory System Seoul Eunpyeong-gu strove to establish the system by expanding procedures for collecting At At the Residents General Meeting in As As a former human rights lawyer and social activist, Mayor Park had a deep On November 11, 2011, Mr. Won-soon Park, the mayor of Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chapter 2 Chapter 16 services by cooperating with its residents through mutual communication and citizen participation. services. Instead, they should play a major role in service delivery and policymaking by taking a keen interest and actively participating in a wide range of city affairs (Park, 2014). His goal, as a mayor, was to findways to improve the city’s policies and interest interest in engaging citizens in public administration and policymaking. It was Mayor Park’s long-standing belief that citizens were not simply the recipients of public opinions from residents, holding public debates, and strengthening budgetary education education budgetary and strengthening public debates, holding residents, opinions from residents. for was was elected in June 2010. Only six months after the district mayor took office, the system was quickly institutionalized, due, in part, to active support from civic groups. the Participatory Budgeting System in district administration. to institute the Participatory Budgeting System when a progressive district mayor City, attended Among the 25 autonomous districts of Introduction The Case of Citizen Participation in Local Governance: Citizen Participation Eunpyeong-gu
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4
to be 17 will it allowed are budget, they If district’s best. the of all, not situations Metropolitan Government (SMG) could if : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered their Vol. 4 : Vol. Seoul portion, a know who allocate to those ’s fiscalsituation was the second-worst out ofthe city’s 25 districts how are and where While While citizens had mostly been excluded from city administration in the past, Before Before the introduction of the Participatory Budgeting System, the rights and The The Participatory Budgeting System was one of Mayor Park’s main campaign Residents Eunpyeong-gu the new mayor viewed the them new as actors mayor and key sought to them engage in the budgeting reviewed reviewed and approved by the city council. Thus, citizens had few opportunities to directly express their opinions about the government’s budgeting decisions besides the indirect means of exercising their right to vote in mayoral and municipal council elections. Background responsibilities of budgeting had been the exclusive province of the mayor and his officials in the SMG. The budget was set up by city government officials and then the Budget Division at City Hall with assessing the possibility of the city’s adoption of System. Budgeting the Participatory 2011, the Participatory Budgeting System had been in adopted only a couple of 2011, Budgeting districts, the Participatory and the city continued to maintain its role in supporting the system in them. Mayor Park pondered whether and how the successfully introduce and implement the system throughout the entire city. He tasked platforms platforms during the 2011 mayoral election. He believed that local finances could be handled democratically and transparently by engaging people who had been sidelined in the budgeting process as major actors. When he assumed the office on October 26, that that and that residents’ participation in the district’s budgeting process would be crucial to that, mayor said (Lee, 2011). The difficulties financial overcoming decide possible for the district to better manage taxpayers’ money (Lee, 2011). in Dong- posed ’s case was Seoul Porto Alegre Seoul , such as Seoul Metropolitan City (introduced in 2003) and Gwangju in Buk-gu Metropolitan City (introduced in 2004) in South Korea, While While there were several other municipalities, in the country and abroad, that The nation’s political and socioeconomic transitions also helped encourage Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Ulsan in 18 Participatory Budgeting System in a way that suited the characteristics of the city. the characteristics suited that in a way System Budgeting Participatory members and 50 billion won in the budget. The size and diversity of many challenges to engaging citizens in the budgeting process and created conflicts among a variety of stakeholders. The government had to find effectiveways to run the than those of the other cities. In fact, the SMG’s Participatory Budgeting System was the largest program of its kind in the nation at the time of introduction, with 250 civic unique in that it was a mega-city with a population of over 10 million, much bigger Brazil Brazil (which was the first city in theworld to adopt a participatory budgeting system in 1989) and had executed participatory budgeting systems before Budgeting Budgeting System, expanding the possible tools and opportunities for civic participation. public’s monitoring of government budgets and activities. All these changes in the administrative environment had contributed to the introduction of the Participatory of e-government had become popular due to the development of information and The communication technology. spread of the Internet and social media had expanded opportunities for citizens to participate in politics. It had also helped strengthen the pro-democracy pro-democracy movements. The role and size of the public sector had expanded, and the government’s influence on citizens’ daily lives had augmented. The notion more more active participation by citizens in government administration. Over the past few decades, citizens’ interest in democratic governance had increased through several the budget-planning process. the budget-planning Budgeting Budgeting System would bring about a more democratic and transparent allocation of municipal finances and better address the complexity and uncertainty associated with wide wide range of opinions from residents and providing administrative services through of the Participatory successful implementation that expected with them. He cooperation process process (Park, 2014). Mayor Park recognized the need to establish budgeting systems that could enhance residents’ participation in fiscal decision-making, collecting a gu
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 19 to draw up a scheme for Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Metropolitan Government Ordinance No. 5670) Ordinance Government No. Metropolitan Metropolitan Government, n.d.). Government, Metropolitan Seoul Metropolitan Council to collect the diverse opinions Seoul Seoul In 2012, the SMG launched the Participatory Budgeting System by allocating 50 According According to the ordinance, the Participatory Budgeting System was meant to On May 22, 2012, the SMG enacted the ordinance to expand the Participatory In January 2012, the SMG began to establish the Participatory System Budgeting billion won a year (approximately two percent of the annual government budget) for the system. It consisted of 35 billion won for city-wide public projects and 15 million Implementation finances, andto promote participatorydemocracy. Any citizen couldsubmit proposals related to the preparation of the city’s budget to the extent allowed by the ordinance. The criteria for the screening and selection of the participatory budget proposals were chosen to prioritize projects that were intended to benefit the entire city aswell as all citizens. improve improve the welfare of citizens and their quality of life through cooperation between of local operations and democratic transparent realize to them and the city government, Budgeting System Budgeting from the district level to the city level and increase the participation of citizens in its budgeting process. The ordinance provided legal and institutional guarantees for the direct participation of citizens in the budget-planning process by the rights decentralizing budgeting and responsibilities and disseminating them to local ( and residents communities Participatory Budgeting System” ( Participatory Budgeting prepared. was after after a series of meetings with several civic groups in the system. In addition, with the conducted joint civic SMG workshops and groups held public hearings with the of relevant stakeholders and experts. Based on discussions and consultations among the SMG, the Council, and civic groups, the “Ordinance for the Operation of the Adoption of the Participatory Budgeting System Budgeting of the Participatory Adoption
Seoul Seoul 47 45 50 49 50 54 57 Total Amount Approved 125 202 352 510 804 747 706 Projects Number of 50 50 50 50 50 59 65 Total Amount Selected Metropolitan Government, n.d.). 352 524 804 766 730 132 223 Projects Seoul Number of 756 465 540 833 980 199 Total 1,302 Amount Proposed 402 1,533 3,593 3,979 3,432 3,288 1,460 Projects Number of Metropolitan Government (2019) Government Metropolitan Seoul Once proposals were received, they were first reviewed by relevant Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Year 2016 2017 2018 2012 2013 2014 2015 20 225 were chosen from the general public, considering their gender, age, and district. The age, their gender, public, considering the general from chosen 225 were Over Over the years, the number of civic members was expanded, while the number of expert members was reduced. In 2016, among the total of 250 committee members, consisted consisted of 250 members. It was composed of 150 civic members and 100 experts recommended by the mayor, the city council, civic groups, and the 25 district offices. administrative administrative departments at City Hall and then forwarded to the Participatory Budgeting Committee. The Committee was the decision-making body of the in 2012, the committee When was the System. launched system Budgeting Participatory * Source: Table 1. Number and Amount of Participatory Budgeting Projects (Amount in Billion Won) (Amount Budgeting Projects 1. Number and Amount of Participatory Table sharply over the years, which peaked at 3,979 proposals in 2016 (see Table 1) ( 2019). Government, Metropolitan a period of 40 days each year from March to April. In the firstyear of the system’s operation (2012), a total of 402 proposals were submitted. The number increased won won for local district-based projects ( citizens could submit proposals on the Internet, by mail, or by direct delivery during
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 21 Employment Urban Safety Young Adults Young Subcommittee Social Welfare Social Welfare Subcommittee Subcommittee Subcommittee Subcommittee Subcommittee Subcommittee Subcommittee Subcommittee Digital Innovation Innovation Digital Women & Health & Health Women Culture & Tourism & Tourism Culture Environment & Parks & Parks Environment Youth Subcommittee Youth Transportation & Housing & Transportation : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Metropolitan Government, n.d.). There were ten Seoul Operation Committee Operation Metropolitan Government (2017) Government Metropolitan Seoul General Meeting General * Source: Figure 1. Structure of the Participatory Budgeting Committee in 2016 Budgeting Committee of the Participatory 1. Structure Figure members, including 1–2 expert members. Of the total of 225 civic members (excluding 25 expert members), a random drawing was held, with one person from each district subcommittee. each being assigned to remaining remaining 25 members were policy and expertsbudgeting who were recommended by the mayor and the city council ( subcommittees in 2016 (see Figure 1). Each subcommittee was composed of 25 to 30
if and 2017, believe I wasted spots be citizens, who Metropolitan taxes. blind Seoul won’t Government, Seoul citizens’ uncover SMG to the the us of Metropolitan with, enable (Seoul budget executed The should Metropolitan Government, 2019). Government, Metropolitan and citizens all Metropolitan Government, 2019). The decision to by, Seoul money. for System Seoul determined taxpayers’ beneficial Budgeting is on are it run that that Participatory Members of the Participatory Budgeting Committee commented that, commented Committee Budgeting of the Participatory Members In the proposal selection process, small projects that would incur few expenses Subsequently, at the recommendation of the Participatory Budgeting Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Budgets projects the remember 22 p. 28). system’s system’s operation (2012), in which 132 proposals were selected and the average cost ( per proposal 378 million won was forth. In 2018, for instance, 730 proposals were selected, and the average cost per proposal was 89 million won, which was a substantial drop from the firstyear of the but had direct relevance to citizens were preferred, such as those aimed at improving and maintaining school zones, roads, and parks, installing security cameras, and so pivotal in securing more citizen participation in the Participatory Budgeting System. System. citizen participation Budgeting in securing more in the Participatory pivotal better better gauge public opinions ( move away from committee-based budget decisions for selecting public projects was only committee members could vote for the final selection.In 2018, however, 119,170 citizens voted for the final proposal using mobile devices, which helped officials to system, system, called M-Voting, was introduced in 2015. The flexibility ofvoting via mobile devices greatly increased the number of citizens participating in the Participatory in 2012, launched first was System Budgeting the Participatory When System. Budgeting Government, Government, n.d.). The availability of electronic means of participation augmented citizen participation in the budgeting process. The SMG’s online electronic voting both members of the Committee as Participatory Budgeting well as made their selections through mobile voting and opinion polls ( Committee, Committee, citizens could vote for the proposals they prefer to fund. Voters included that select we
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4
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community spent life and and is proposals of To To enhance the effectiveness of the Participatory Budgeting System, the One city councilor asked, One city councilor The selected budget proposals required the Should Through Participatory which could result in the system itself becoming meaningless. itself in the system result could which city city council’s continued understanding of, and cooperation with, the system was indispensable. If projects selected by the Participatory Budgeting Committee and citizens were by not the received favorably city council, the effectiveness of the system would be undermined, and citizens’ interest and participation would be hindered, of the Participatory Budgeting System. Civic groups also strongly protested the city council’s decisions. However, the city council argued that budget deliberation and approval was its sole authority and that some of the projects selected through the Participatory Budgeting System lacked specificity and feasibility and they might 2012). (Moon, and equity fairness undermine approval. approval. In November 2012, the selected through the Participatory Budgeting System. This triggered severe conflicts among the city council, the SMG, and the Participatory Budgeting Committee. The SMG claimed that cutting projects proposed by citizens would undermine the purpose the submit project to be approved just because of citizen participation (Moon, 2012)? quality examine Government, 2017, p. 24). budget welfare , one of received 4 Gangnam-gu Gangbuk-gu Metropolitan Government, n.d.). Government, Metropolitan Seoul , received 0.6 billion won. In addition, district offices Seoul These changes were aimed at expanding the scope of the Participatory In an effort to alleviate these problems, the SMG’s Budget Division decided In the early years of the Participatory Budgeting System, the selection of The Participatory Budgeting System had several advantages, such as increased Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Inequity in Resource Allocation 24 Budgeting Budgeting System from the city to districts to communities by supporting small-scale projects that reflected the characteristics and situations of local communities and city-wide proposals (35 billion won), local district-based proposals (12.5 billion won), and (12.5 billion won), proposals district-based local (35 billion won), proposals city-wide ( (2.5 billion won) proposals community-based 25 districts. In 2015, citizens could submit two distinct types of proposals: city-wide proposals (37.5 billion won) and local district-based proposals (12.5 billion won; that is, 500 million won per district). in Later 2016, these furtherwere divided into three types: that that a minimum amount of 500 million won would be allocated to each of the city’s and fairness of the system. and fairness received received from district offices, which contravened the principles of the Participatory Budgeting System, such as voluntary participation and transparency. These lingering issues intensified conflicts among the districts and led citizens to question the equity supported their residents in submitting proposals that were beneficial to their own districts. Proposals from those districts were frequently selected due to the support billion won through the Participatory Budgeting System, while the most affluent districts in socioeconomically socioeconomically disadvantaged areas. A large gap between the highest and lowest amounts received by districts persisted. In 2015, for example, budget budget proposals tended to concentrate on certain districts, especially those in received received severe criticism due, in part, to the inequity in resource allocation, the limited of of expertise the participating citizens, and their lack in budgeting. representativeness transparency and effectiveness in fiscal management. Despite these benefits, the system these benefits, the system Despite management. in fiscal and effectiveness transparency Challenges
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 25 citizens were neither aware of, nor Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Also, Also, this was thought to help the Participatory Budgeting System reflect the The Participatory Budgeting System utilized a lottery system to choose the Another issue was who should participate in the Participatory System Budgeting Limited Representation more more efforts neededto be made to ensure that the socioeconomically disadvantaged process. in the budgeting represented better were rate rate of those who had voluntarily applied to serve as committee members was higher than that of the expert members who had been recommended by the mayor and the city council. Mayor Park and his Budget Team contemplated how to increase citizens’ awareness of the system to maximize participation and representation. In addition, general general opinions of citizens. However, most interested in, the Participatory Budgeting System, and the percentage of residents participating in the Participatory Budgeting System was very low. The participation gender, gender, and age (excluding the few expert members recommended by the mayor and the city council). Random drawings were regarded as a means for securing the representativeness of committee members and the fairness of the committee selection process. Budgeting System. Budgeting members of the Participatory Budgeting Committee. Among the 250 committee members in 2016, most of them were randomly selected considering their district, and and who should serve as the main body of the Participatory Budgeting Committee from among diverse stakeholders. Since one of the fundamental goals of the system was to ensure that residents’ preferences were adequately reflected in the city budget, representativeness was essential to the successful implementation of the Participatory result that the Participatory Budgeting System would fail to achieve its original aims. achieve to fail would System Budgeting the Participatory that result neighborhoods and increasing the level of participation of the residents. However, some of participation However, of the level the residents. and increasing neighborhoods believed that it might be viewed as a quota system that distributed a predetermined ofand needs, with the citizens’ opinions all districts, regardless to amount of the budget Metropolitan Government, n.d.). Members of the Seoul and the autonomous districts. The Budget Training School Seoul One committee member who served the two-year said, term served member who One committee Despite Despite these efforts, it was still questionable whether such short and To resolve To these problems, the SMG provided counseling programs that offered Citizens often lacked the budget-related expertise successfully and experience to the budget-related Citizens often lacked Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Lack of Expertise 26 understand them (Kim, 2017). them understand the Youth Subcommittee of the Participatory Budgeting System, all of whom were 20 years or younger, said that budgeting concepts were too advanced and they could not the the budgeting education was too difficult to understand, given that they had varied educational backgrounds and experiences. For instance, some people who served on fragmentary fragmentary budgeting education could improve citizens’ understanding of budget administration and public affairs. In fact, many committee members remarked that the Participatory Budgeting System. Budgeting the Participatory Participatory Participatory Budgeting Committee were mandated to attend at least two sessions at the Budget Training School to be eligible to serve on the committee and participate in included included nine hours of basic budgeting education, three hours of advanced budgeting education, and online courses ( Budget Training Budget School, which offered citizens ageneral education on budget-planning and operation in citizens the professional advice and information that were necessary to train them to prepare budget proposals. Budgeting staff and district officials served as counselors. In addition, the government provided citizens with education opportunities through the required to possess complex professional knowledge about the government’s budgetary budgetary the government’s about knowledge professional possess complex to required forth. and so taxation, management, fiscal procedures, budgeting structures, citizens citizens to prepare budget proposals effectively.The scope ofresidents’ participation was often limited due to the shortage of residents with relevant experience and knowledge. To actively engage in the Participatory Budgeting System, citizens were participate in the budget-planning process. Their lack of expertise made it difficultfor
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4
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Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 29 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Teaching Note Teaching Metropolitan Government (SMG) began to institute the Seoul In order to address these concerns, the SMG had to findways to increase citizens’ The Participatory Budgeting System sought to realize participatory democracy In 2012, the awareness awareness of, and interest in, the Participatory Budgeting System to enhance their participation. The system needed to be expanded to reflect the opinions of more residents participate. to out and unable left of were who and minimize the number people Some Some officials expressed concerns that the Participatory Budgeting System might weaken their discretion in the budgeting process and undermine the efficiency of local financial administration. governments’ of members representing the interests of a specific class or grouprather than those of all citizens. Heated competition in the selection of proposals led to conflicts among residents. In addition, participating members’ lack of expertise in budgeting and system. the of implementation effective the hindered officials government with conflicts by integrating citizens’ desired projects and policies into the SMG’s budget. However, the implementation of the system posed problems. The several Participatory Budgeting System was limited in terms of the number of people who could participate in it, and the representativeness of the Participatory Budgeting Committee was questionable. The lack of interest from residents raised concerns that the committee might consist the budgeting process by submitting proposals for a portion of the SMG’s budget. Proposals were reviewed and evaluated by the Participatory Budgeting Committee, via voting. experts, then selected of and were consisted and budgeting citizens which Participatory Participatory Budgeting System in the city’s budgeting process. Mayor Won-soon Park held a firm belief that citizens should have a voice in city administration and policymaking and that their opinions and priorities should be properly reflected in city affairs. The Participatory Budgeting System allowed residents to participate in Case Overview South Korea and abroad that wish to adopt similar systems and procedures. terms of and citizen engagement in the budgeting process; terms of and citizen engagement efficiency, effectiveness, representativeness, and fairness; administrative by the SMG; make recommendations for enhancing citizens’ expertise and representativeness; and make recommendations for enhancing citizens’ expertise discuss the lessons of the Participatory Budgeting System for other municipalities in analyze analyze the advantages and disadvantages of the Participatory Budgeting System in the procedures and evaluate outcomes of the BudgetingParticipatory System in terms of learn the importance of citizen participation in local administration; examine the factors that motivated the adoption of the Participatory Budgeting System • • • • • • • Citizen participation and engagement are critical to the realization of democratic ofCitizen participation the to democratic critical realization are and engagement Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 30 resolved effectively. By reading and analyzing this case study, and analyzing this students will reading By effectively. resolved expertise and representativeness of the Participatory Budgeting Committee could be enhanced and how conflicts betweenresidents and administrative agencies could be scheme scheme and allow the fiscal management oflocal governments to be executed more soundly and transparently. In addition, students should analyze and discuss how the analysis, students will be expected to examine whether, and how, the Participatory System can Budgeting overcome the limitations of the budgeting government-centered solutions solutions to them. This case study will help students understand how the Participatory Budgeting System allows residents to participate directly in the budgeting process so that they can decide on a budget that reflects their needs and opinions. In the case study is to help students examine the various issues and problems experienced by the SMG in the course of the Participatory Budgeting System’s operation and find proper governance governance and local autonomy in modern public administration. The goal of this case Learning Objectives Learning
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 31 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. The purpose of this case analysis is to encourage students to think broadly about about think broadly students to The purpose of encourage analysis is to this case This case can be analyzed and discussed either individually or in small groups. This case study can be used for undergraduate and graduate students in the field in the field students and graduate undergraduate for be used studycan This case to to find solutionsto the problems withthe Participatory Budgeting System by critically analyzing and evaluating the potential advantages and disadvantages of each solution. Discussion Questions Discussion the importance, benefits, andchallenges of engaging citizens inlocal governance and in 40 minutes. At the end, the instructor may allocate another 10 to 20 minutes for a classroom discussion and ask students to report their findings and share their perspectives. and the key components of the Participatory Budgeting System. The case will take approximately 20 minutes to read. If students read the case in class, the case analysis can be completed in 60 minutes. If students read the case outside of class and prepare their responses to the discussion questions ahead of time, the case can be analyzed Case Administration Before conducting the case analysis, it is suggested that the instructor spend 10 to 20 minutes providing brief information about the organizational structure of the SMG processes to aid them in conducting in-depth analyses and discussions of analyses and discussions aid them in conducting in-depth to the case. processes of public and administration policy. The content of the case is for suitable courses such as public administration and democracy, public management, local government, urban administration, community engagement, civic participation, public budgeting, and public financial management.It is not necessary, butwould be useful,for studentsto have a basic understanding of concepts related to local governments and budgeting Target Audience Target ’s case? Seoul ? Seoul citizens? System? Budgeting System? influence city officials’ acceptance of the system? Are there any differences? influence city officials’ acceptance of the system? members be selected? of citizen participation?process? Should there be any restrictions on the scope and level fair and transparent? and fair management? What are the potential benefits and costs? What are the management? might have promoted and/or deterred the adoption of the Participatory Budgeting System in What What conditions should be met for the successful implementation of the Participatory What lessons can other municipalities learn from How could conflicts among citizens, SMG officials, and city councilors be resolved? How could the government increase citizen participation in the Participatory Budgeting How How can the government ensure that committee members will be representative of What kinds of efforts should be made to enhance citizens’ expertise? What factors would influence citizens’ acceptance of the system? What factors would When, and in what roles, should citizens be allowed to participate in the budgeting How could you assess the procedures of the Participatory Budgeting System? Are they Who should participate in the Participatory Budgeting System? How should committee What What motivated the SMG to adopt the Participatory Budgeting System? What factors Why should local governments engage citizens in their budgeting process and fiscal Seoul • • • • • • • • • • • • • • • • • Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 32 To To accomplish this goal, students can be asked to consider and discuss the following questions:
Chapter 2 - Citizen Participation in Local Governance KIPA Case Study Series 4 . , 33 Aju Daily .go.kr/get- seoul . Retrieved from Retrieved from https:// . . Retrieved from https:// Public Administration Review . Seoul, South Korea: Chung-Ang .go.kr/noti/noti0504.do Yonhap News : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered The Kyunghyang Shinmun seoul 2016 participatory budgeting system white Vol. 4 : Vol. . Retrieved from http://english. participatory budgeting system white paper. .go.kr/noti/noti0504.do A study of the factors of participatory budgeting system: Focused on Retrieved from https://yesan. from Retrieved seoul to-know-us/city-hall/budget/participatory-budget-system/ yesan. de=95020 74(4), 442–443. participation budget for next year. http://news.khan.co.kr/kh_news/khan_art_view.html?artid=201211280849021&co University. system will spread across the country.” www.yna.co.kr/view/AKR20111111125400004 in the country in the reflection of the participatory budgeting system. https://www.ajunews.com/view/20181018084301097 from Retrieved paper. the participatory budgeting system of Seoul (2019). 2018 Park, Park, W. (2014). In Seoul, the citizens are the mayor. Seoul Metropolitan Government (2017). Moon, Moon, J. (2012, November 28). Controversy over the reduction of Seoul’s resident Lee, Lee, J. (2011, November 11). Park Won-soon said, “The resident participation budget Kim, Kim, S. (2017). References ranking the lowest marked Seoul audit] 18). [2018 parliamentary October Kang, S. (2018, _____. (n.d.). Participatory budget system _____.
CHAPTER 3
Working with Local Residents in Collaborative Arrangements:
A Case Study of Urban Revitalization Project by Seoul Metropolitan Government in South Korea
KOREA INSTITUTE OF PUBLIC ADMINISTRATION ranks third in Seoul · University of Hawaii at Manoa of Hawaii · University David Lee are either multi-family houses or high-rise was home to about 9.8 million residents, which is Seoul Seoul City, the capital of South Korea, has grown dramatically Metropolitan in South Government Seoul Seoul Due to the need to meet the growing demand for housing in the city, most Since the 1950s, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chapter 3 Chapter 36 areas. areas. As new residential developments are prohibitively expensive, a disproportionate residential residential properties tend to be older and community facilities are limited, living conditions are inadequate and are far inferior to those in more recently developed during during the economic development period have been aimed at meeting the growing demand for housing, residents’ quality of life has rarely been taken into consideration when designing the urban environment. In some established neighborhoods, in which of the residential properties in apartment complexes. As most construction projects that have been undertaken mile). mile). As this trend is likely to continue, residential housing problems will remain a significant issuefor itsresidents, who arefacing increasing living costs and a rapidly urban environment. degrading to to its relatively limited geographic area (about 233 square miles), the world in terms of population density (estimated at 42,000 residents per square economic prospects. In 2018, equivalent to nearly 20 percent of the total population of owing South However, Korea. due to the rapid economic development of the nation, which has prompted many individuals to migrate to the city from various parts of the country in search of better Overview Project by Korea Working with Local Residents in Collaborative Collaborative Residents in with Local Working Revitalization A Case Study of Urban Arrangements:
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4
37 Seoul Metropolitan Government citizens to participate in the Seoul Seoul Metropolitan Government not only : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. Metropolitan Government proposed a citizen- Seoul Metropolitan Government announced a shift in the residents to take responsibility for the development and Seoul Seoul . Seoul In mandating that this collaborative model be adopted by all municipalities To To address these pressing social issues, over the last few decades, the process process by working closely with residents and moderating interactions among project participants. In line with this initiative, in 2018, the announced its first comprehensive urbanrevitalization plan, Urban Revitalization 2025. needs and empower maintenance of projects undertaken in their neighborhoods. Thus, in this new model, government managers are no longer the decision-makers, but rather they are tasked with coordinating a multi-sectoral governance structure and facilitating a collaborative own uniqueown needs and heritage. conducting local revitalization projects, the aims to diversify their scope and size but also to ensure that these projects reflect local neighborhoods. neighborhoods. As the projects planned under this new policy framework focus on the revitalization of established neighborhoods, their aim is enhancing the local economy and reviving the local identity. Thus, gathering input from residents from the onset of has its community each that given goals, these policy is achieving vital to initiative each focus focus of its urbanization policy, whereby the revitalization of local neighborhoods was given precedence over property reconstruction. facilitate this To process, and avoid the pitfalls of previous initiatives, the driven collaborative model, which would allow design, implementation, and maintenance of the urban revitalization projects in their have have been conducted in recent years, rather than improving the living conditions of such communities, they have resulted in increasing housing costs that have forced residents with limited income to move out of their neighborhoods. In recognition of these issues, in 2014, the Metropolitan Government has engaged in a series of reconstruction projects to improve improve to of projects series a in reconstruction engaged has Government Metropolitan living conditions in socioeconomically disadvantaged neighborhoods. Although several projects that have mainly focused on the reconstruction of outdated residential areas number number of residents whose socioeconomic status is low reside in neighborhoods characterized by poor living conditions, which further exacerbates the socioeconomic in disparities
and Seoul Changsin- project was was project Changsin-Soongin Changsin-dong project will be given. The Changsin-Soongin project, students will have the Soongin-dong. project, project, involving the revitalization of Changsin-Soongin and Changsin-Soongin n project and the consequences of its implementation Changsin-dong areas, students will also have the opportunity to identify Changsin-Soongin Changsin-Soongi were invited to participate in both the decision-making process and the Soongin-dong Before Before commencing with the case study, a brief background of the Urban One of the most famous local revitalization projects based on this newly Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean and 38 sector collaborative governance model. governance collaborative sector the managerial skills required to effectively execute collaborative strategic plans in designing and implementing local revitalization projects in the context of the cross- governance governance model were required to coordinate all aspects of the collaborative governance framework, which included many organizations within the for for the residents and those involved in the project’s planning, design, and execution. As city departmental managers representing the government in the collaborative This will be followed by a detailed description of the collaborative governance model adopted in the Revitalization Revitalization 2025 strategic plan and the future future revitalization initiatives and other policy projects that require the adoption of initiatives. urban revitalization executing when citizen participatory models encountered encountered in the execution of the opportunity to examine potential alternatives that could lead to better outcomes in chosen for chosen a case study, as examining it will allow students to their broaden knowledge of effective planning processes that integratelocal citizens into all aspects ofdecision- making and project implementation. In particular, by exploring some challenges implementation of their urban revitalization projects, the projects, of their urban implementation revitalization project project is particularly interesting as a pilot project of Urban Revitalization 2025 in its in as the residents Nonetheless, period (2014-2017). implementation proposed proposed approach is two local areas, namely subsequently self-governed by local residents. by local self-governed subsequently Metropolitan Metropolitan Government’s structure can adopt to develop their own collaborative governance models to design and locally embed revitalization projects that would be This This strategic plan offers clear guidelines for the proposed collaborative governance structure that the municipal governments (i.e., neighborhoods) comprising the dong Soongin-dong
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 39 , which Seoul Metropolitan Government Metropolitan Government, Metropolitan Government is Seoul Seoul Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Metropolitan Government aims to address neighborhoods were designated as revitalization revitalization as designated were neighborhoods Seoul Seoul Urban Revitalization 2025 Revitalization Urban Metropolitan Government, 2018). Moreover, it was recommended Seoul Metropolitan Government began to develop a planning strategy for urban In order to implement this newly proposed perspective in practice, in 2015, This This perspective reflects the government’s recognition of the need to involve The major issue that the citizens in determining the types of urban revitalization projects that should Metropolitan Government announced a policy shift from a top-down approach Seoul would would serve as a leading agency, tasked with the coordination of projects based on the collaborative governance model. Furthermore, the the 27 which in projects revitalization project areas ( that a City Revitalization Center (CRC) be created in each of these areas, as the CRC anticipating anticipating that these aspects will be considered when designing local urban revitalization projects. Thus, the main value highlighted by the Urban Revitalization 2025 strategic plan is People, specificallyresidents ( 2018). be executed in their communities. Moreover, the cognizant of the importance of local history, culture, and identity for the residents, in which the government plays the main role in making important policy decisions to a bottom-up one relying on input from experts in other sectors with prerequisite experience with, and sensitivity towards, neighborhood issues and community on residents. particularly those focusing problems, has resulted in a low quality of life for the underprivileged citizens who mostly reside in the underdeveloped and under-resourced parts of the city. After making a series of effortsto overcome these pressing social problems with limitedsuccess, in 2018, the Background through the Urban Revitalization 2025 strategic plan is the growing socioeconomic inequality among its residents due to uneven economic development in Seoul Seoul : To : fully To reflect the objectives of Metropolitan Government has set two Seoul Metropolitan Government, 2018): Government, Metropolitan Seoul Metropolitan Government has articulated four major strategies that each on the need to comply with related laws and regulations. The proposed model is led by the CRC, which is comprised of a local representative, a city manager, and other staff members sourced from public and nonprofit organizations pertinent to the project’s designing, implementing, and governing local revitalization projects. According to this model, government managers are tasked with coordinating the adopted governance structure and are required to facilitate the collaborative process, moderate and convene interactions among participants, and provide comprehensive financial support and advice Urban Urban Revitalization 2025, residents will be the main actors who will participate in Participatory and Collaborative Governance Model • The vision of Urban Revitalization 2025 is a Seoul where citizens are happy and Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Metropolitan Government, 2018). Government, Metropolitan Seoul Seoul 40 the ( adopt must government municipal mechanism mechanism that allows residents to participate in the local revitalization project’s design, implementation, and governance. To this end, in Urban Revitalization 2025, community community neighborhoods to the improve quality of local residential To environments. achieve these goals, the objective of this plan is to create a sustainable self-governing main goals for all revitalization projects based on the collaborative governance model, namely (1) job creation to stimulate local economies and (2) the creation of integrated economic conditions and revive the cultural identity of the areas where revitalization initiatives are conducted. To this end, the the area is energetic, which should be realized in practice by improving the quality of life and level of happiness of all citizens. The project is intended to improve local Strategy Formulation of Urban Revitalization 2025 Revitalization of Urban Formulation Strategy action plans that would be included in the Urban Revitalization 2025 strategic plan ( worked worked with 53 city departments, 17 national government departments, multiple universities and private companies, and local residents to identify the strategies and
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 . 41 Seoul : To improve residents’ quality of : To Metropolitan expects Government Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. : When implementing local revitalization projects, a : As previously noted, Urban Revitalization 2025 is not a Metropolitan Government aims to provide a safety net for underprivileged Seoul the social integration of residents. the social integration to residents. neighborhood space that is more inclusive of local residents and is reflective of local history should be created in each area to revitalize the urban infrastructure and promote life, life, the individuals while ensuring that all residents can enjoy a healthy residential environment. This strategy relies on the creation of community centers and other amenities beneficial are are socioeconomically underdeveloped compared to other neighborhoods in Consequently, projects aimed at stimulating the local economy must be unique to each neighborhood and are expected to differ among municipalities in accordance with residents’ needs. residential property reconstruction project, as its aim is to improve local residential environments by stimulating the local economy and reviving the local cultural identity. Creating jobs and securing employment opportunities are particularly useful strategies for improving the quality of life of residents, as the areas targeted by this initiative initially govern the CRC operations; however, the however, operations; the CRC initially govern that the local representative will gradually gain the skills needed to take over the CRC leadership position in the long term. The main goal of this model is to promote residents’ their neighborhoods. capacity to self-govern execution. execution. The CRC is further required to collaborate with the representatives of other public, and private, nonprofit entities with the expertise needed to design and implement local revitalization projects. In this process, the appointed city manager is expected to Local Economy Stimulation Improvements in the Quality of Residential Environments Social Integration of the Residents As As can be seen from their brief descriptions, the four Urban Revitalization • • • process process by formulating a participatory collaborative governance model as an effective tool for appropriately interacting with residents. These interactions should, in turn, 2025 strategies are interconnected, as each municipal government must begin this Metropolitan Seoul The CRC is responsible for designing and implementing all urban revitalization According According to the Urban Revitalization 2025 framework, the Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 42 to the identification, design, and execution of local urban revitalization projects. projects. revitalization urban design, and execution local of the identification, to to to work closely with multiple sectors, including government, private, nonprofit, and civic organizations, to ensure that residents actively participate in all processes related well well as the administration of surveys to identify the most urgent needs and determine the most effectiveways to improve thelocal economic conditionswhile restoring the identity. local cultural During the project’s period, implementation the CRC is expected are are conducted are actively involved in the decision-making process. This close collaboration with the citizens begins with multiple meetings and public hearings, as projects projects while ensuring that the residents in the areas where revitalization projects projects projects in collaboration with the members of the councils that would be in charge of areas. in their local projects revitalization such implementing collaborative collaborative governance structure is implemented under the guidance of the CRC, whose staffresponsiblefor are planning the coordinating of strategic revitalization local of the public, nonprofit, and private sectors, as well as officials working at various levels of government aiming to promote the active participation of residents. This to to participate in the decision-making processes and the implementation of local revitalization projects. Potential contributors to this initiative include representatives Government Government requires all participating municipal governments to structure their participatory and collaborative governance models in a way that enables residents Participatory and Collaborative Governance Models Governance and Collaborative Participatory integrating integrating residents into their communities by developing integrated, sustainable and services (the fourth strategy). infrastructures neighborhood aimed at enhancing the socioeconomic conditions of local areas and improving the quality of residential life (the second and third strategies), with the ultimate goal of allow allow the identification oflocal needs and sources of neighborhood identity that local revitalization projects should target. This should be followed by devising strategies
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 43 , since these Seoul project commenced in 2014, Seoul Metropolitan Government in the Metropolitan Government has allowed Seoul are among the most famous urban Metropolitan Government designated : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. Seoul Changsin-Soongin Soongin-dong and As noted earlier, in 2015, the In the long term, as indicated by the Changsin-dong -style -style revitalization projects.” These are relatively small projects compared to Seoul it was nominated to become the first urban revitalization case in areas has been slated for the implementation of urban reconstruction projects in the “ 27 regions. those undertaken in the aforementioned revitalization areas in Korea. When the degree degree of complexity of such initiatives, only one region is currently designated as the beneficiary of an urbaneconomy revitalization project,while theremaining 26 regions are classified as beneficiaries of residential environmental revitalization projects. In addition to these 27 municipalities, the a further 105 municipalities to participate in urban revitalization projects, classified as announcement of Urban Revitalization 2025. As urban economy revitalization initiatives initiatives revitalization announcement of 2025. As urban economy Urban Revitalization tend to have a broad scope, representatives of key national industries and government bodies must collaborate in executing projects to restructure industrial areas and as harbors, transportation systems, airports,such system. or Owing the to the train high 27 municipalities as local (either urban economy or residential environmental) urban revitalization areas, 13 of which had been strategically designated before the residential environments and community neighborhoods. community and environments residential in Projects Urban Revitalization Current become fully equipped to completed self-govern local projects. Owing to this initiative, it is essential that governmental managers offer adequate support to residents, including training on the requisite skills for developing nonprofit organizations and engaging in the design, planning, execution, and management of projects. The goal of this approach is to promote sustainable urban development aimed at improving local Urban Revitalization 2025 plan, strategic it is anticipated that the residents will take the as to expected they model, are governance in maintaining the collaborative role leading and 2 and is the refers to the Metropolitan are historically Seoul dong Seoul project Soongin-dong Metropolitan Government, 2018). Metropolitan and neighborhoods ( Seoul project project was completed in 2017, its main Seoul are two Changsin-dong n project is one of thirteen pilot initiatives that have been , surrounded by historical palaces and old sewing factories Changsin-Soongin Changsin-Soongin Seoul Soongin-dong while becoming culturally gentrified, thus risking theloss of their The and Seoul Changsin-Soongi Even Even though the The Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Metropolitan Government had Metropolitan to retain responsibility for the maintenance of the other parts of unique heritage. to to those with an income below 150 percent of the poverty level ( Government, 2015). In sum, both important, but they remain socially and economically underdeveloped compared to in these neighborhoods is a single-household (3,222 out of 11,675 residents live alone), and 139 residents are eligible to receive national basic living security, which is available that that operated during the period of industrialization. Their total area is 830,130m they are presently home to 31,702 The residents. most type prevalent of household unit lowest lowest level of municipality within a city in South Korea). Both neighborhoods are in the northern part of 44 first urbanrevitalization projectto be executed ( implemented implemented under the new collaborative participatory framework in Overview due both to its significant scope and the considerable mediaattention itreceived, the project. and collaborative governance models, allowing residents to participate in the design and implementation of local revitalization projects. Given the initiative’s importance, the previously proposed projects had been initiated. To avoid similar conflicts going forward, the governments of these local areas subsequently adopted the participatory preceding mayoral term. However, due to irreconcilable conflicts among local residents, residents, local among conflicts irreconcilable due to However, term. mayoral preceding some of whom supported major construction projects in opposition to others, none of Changsin-dong Seoul
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 45 Metropolitan Metropolitan Seoul Seoul Metropolitan Government and the other : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Seoul l project project essentially aligned with the collaborative governance Metropolitan Government, 2015). Government, Metropolitan Seoul The collaborative governance model used to design and implement the Council) ( members had the requisite knowledge and professional experience for designing local revitalization projects (Urban Revitalization Operating Council), identifying residents’ needs and reconciling differing opinions (Local Residential Council), and providing administrative support during project implementation (City Administrative Support (comprised of government employees and professionals), Local Residential Council (representing residents), and City Administrative Support Council (with members drawn from city-governmental organizations supporting local nonprofit organizations). Each council had a specific mandate in supporting the work of the CRC, as their based on the involvement of councils, multiple as in shown 1. based Figure In on its the initial involvement stages, the project was led by the city manager representing the CRC, with administrative support from the city and municipal governments. The CRC further collaborated with multiple stakeholders who represented the public, private, nonprofit, and civic sectors, Council Operating the Urban Revitalization namely councils, separate three formed who structure structure proposed under the Urban Revitalization 2025 plan. strategic Its framework is A Collaborative Governance Model: The Urban Revitalization Model: The Urban Revitalization Governance A Collaborative Mode Governance onto onto a local representative, allowing members of the local community to self-govern 17 about projects, major revitalization complete To projects. revitalization completed the million US dollars (8.5 million from the half from private matching funds) were invested in this initiative ( 2018). Government, objectives objectives and adopted governance structure fully aligned with the plan. outlined in the Urban 2025 Revitalization recommendations strategic Government It is presently in the self-governing stage; thus, the CRC leadership has been passed Changsin-Soongin project Period Council Self-Governing Local Residential Residential Local Identifying Local Needs/Providing During Leadership Changsin-Soongin CRC CRC Tasks Tasks Projects Executing Governments Three to Related City and Municipal Tasks Operational Metropolitan Government, 2015). In the same year, and Implementing and Implementing Urban Revitalization Planning Overseeing Planning Overseeing Metropolitan Government, 2015). By adopting these Seoul Urban Revitalization Governance Model Governance Urban Revitalization Seoul Metropolitan Government (2015) Government Metropolitan Council Related Projects Revitalization During the project planning stage, the CRC held several meetings and public Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Seoul Planning Tasks Urban Three to Urban Revitalization Urban Revitalization 46 while while reconciling existing conflicts among groups of residents who supported and objected to local revitalization projects (Lee & Ahn, 2016). Based on the findings strategies, strategies, the CRC intended to promote the active participation of residents in the decision-making process as well as identify local needs and community perspectives local local needs and neighborhood identity restoration initiatives that revitalization projects should aim to address ( and public hearings in 2014 ( of types the on opinions residents’ gauge to surveys public two conducted also CRC the hearings, hearings, which were attended by local residents and during which local needs were explored and ideas for restoring the neighborhood’s identity and preserving the local heritage were sought and this discussed. end, To the CRC held eleven official meetings *Source: Figure 1. Urban Revitalization Governance Model adopted in the in Model adopted Governance 1. Urban Revitalization Figure
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4
47 Seoul Changsin-dong Metropolitan Government, while in the : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Seoul : Throughout their rich history, the areas have been known for their sewing industry. Thus, in order to Soongin-dong collaboration collaboration between designers and sewing companies. Furthermore, the CRC also decided to create a sewing museum and a tourism street, as these amenities were opportunities. to offer new job expected and and revitalize local identity while meeting the current needs of residents, as a part of this project, the CRC decided to modernize the sewing industry to offer opportunities for Revitalizing the Sewing Industry • After After a series of meetings with residents, community surveys, and consultations Upon Upon completion of the project’s implementation period, the CRC helped to with professionals from the three urban revitalization operating councils, the CRC announced its decision to implement the following three major projects ( 2015): Government, Metropolitan Local Revitalization Projects Revitalization Local the Urban Revitalization 2025 strategic plan, the CRC was originally led by a manager from the City Planning Bureau of the subsequent self-governing stage, the governance responsibilities were transferred to the residents by empowering their representative and the Local Residential Council’s of the project. control assume members to as well as ensure that members of the local community would be capable of self- governing the local regeneration projects (Lim & Chung, 2018). During this period, the Local Residential Council was transformed into a nonprofit organization led by residents, thereby becoming the leading agency of the CRC. In sum, as anticipated in into their community. their community. into expand the range of responsibilities initially assigned to the residents’ representative to allow him or her to develop the skills necessary for leading the CRC in the future yielded yielded by these meetings, public hearings, and community surveys, the CRC decided to implement three major local revitalization projects to stimulate the local economy while contributing to the restoration of local identity and the integration of residents
Dongdaemoon : The CRC also found that residents would : The CRC announced that the sewing museum and tourism museum and tourism that the sewing announced : The CRC project was significant. was project maintenance and projects to provide greater traffic and pedestrian safety, and as well as more maintenance and projects greater traffic to provide diverse opportunities for recreational activities. Consequently, for the third project, the proposed the establishment of new CRC residential and community centers, which would while improving quality of life. promote community integration (historical palace) and the old sewing factory, thus further expanding local tourism ample opportunitiesresources and providing for income generation. benefit from improvements to the residential infrastructure, such as improved road street that would be created as part the Sewing Industry project of the Revitalizing would attract more tourists and that these newly developed areas could link the Revitalizing the Residential Environment Increasing Tourism Resources When announcing these plans, the CRC allocated about 6.4 million US dollars • • Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Changsin-Soongin 48 allocated for allocated their Duerealization. to the scope project’s and large size, the expenditure on the achieved achieved by implementing all three initiatives. As part of this endeavor, three smaller projects proposed by the residents were approved, and 0.9 million US dollars were of these projects, and they were expected to collaborate with the relevant municipal government departments to create detailed project plans. In addition, the CRC was as with as be to outcomes the the identifying well project ofgoals intended tasked each the Residential Environment project, and about 3.8 million for the Increasing Tourism Resources project. Project implementation council members were appointed for each for for the Revitalizing the Sewing Industry project, about 6 million for the Revitalizing
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 49 project. project. Changsin- : : Although the project project ended in Changsin-Soongin project project is the first Changsin-Soongin Changsin-Soongin Changsin-Soongin : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Metropolitan Government’s newly designed Vol. 4 : Vol. Seoul areas have not observed any major changes in their standard Soongin-dong CRC CRC adopted a series of measures to engage the residents in the initiative’s projects, government managers did not maintain active communication with residents and did not encourage their participation in the decision-making process related to the selection Limited influence of local residents in the decision-making process • Given Given these shortcomings, as the Once the implementation period of the and projects projects based on the collaborative governance model. Some of these issues are outlined below: initiative initiative that was aligned with the collaborative governance approach, it is important to investigate the reasons behind its limited success and identify its key challenges to improve the outcomes of future local local needs, even though sizeable funds were expended, the residents of the of living. Many residents were also of the view that, rather than working directly with the local communities, the CRC primarily engaged with the of representatives different of the government. levels project project has in been a evaluated number of recent news articles studies, and all research of which have reported its shortcomings, which have primarily been attributed to the failure to fully integrate residents into the project’s lifecycle as was initially envisaged. the not reflect did CRC the by selected projects revitalization Consequently, the three as is important to recall what we have learned from the While the project’s maintenance was meant to become the responsibility of the local community, this transition never fully materialized due to significant failures in the project’s identification, design, and execution stages. Indeed, the December 2017, the CRC transformed its collaborative governance structure from a government-to a citizen-centered format, assigning the leadership role to the Local Residential Council (which had been, by then, transformed into a nonprofit organization created by the residents). As several other municipal governments are currently designing and implementing locally embedded revitalization projects, it Challenges dong
Seoul Metropolitan : Although the Seoul Metropolitan Government Metropolitan Government Seoul Seoul Metropolitan Government (2015) provided Seoul Metropolitan Government, 2018). Metropolitan Government, 2018). : The Seoul limited support from the city government after the implementation period hindered the potential for effective adoption of the citizen-centered governance model (Lim & Chung, 2018). one of its core objectives ( collaborative governance model followed by the CRC has been considered a successful framework for collaboration among the city and nonprofit, business, and citizen groups, did did not provide measurable outcomes for the other two main projects. Consequently, this project has to failed improve the residents’ earning potential and standard of living, which was outcomes could not be accurately measured due to the short amount of time that had passed since the project’s implementation. In addition, the example, example, the government planned the creation of 391 new jobs in the sewing industry following the completion of the Revitalizing the Sewing Industry project in addition to a 30 and 10 percent increase in productivity and annual revenue, respectively ( Metropolitan Government,in the 2018, 2015). However, acknowledged that, with the exception of the number of jobs created (391), the other with the project’s outcomes, which has resulted in a lack of commitment to project self- governance. three outcomes to determine whether the goals of the project had been achieved. For participate in decision-making processes compared to government officials. Nonetheless, such decisions should still be made based on input from an area’s residents. Whatever the reasons for insufficient resident participation in these revitalization projects, failure to fully adhere to the mandate of Urban Revitalization 2025 has led to lower satisfaction including the City Government and the Ministry of Land and Planning, when selecting the projects, neglecting to seek input from the area’s residents (Kim, 2018). As the City Government has the legal right to decide the fate of local revitalization projects, although the strategic plan highly recommended working with residents, limited resident participation may be partly due to the fact that they are given limited authority to of the three main projects (Kim, 2018). It later transpired that the Government manager, who was supposed to collaborating with residents and local organizations, only worked closely with the representatives of other government sectors, Limited financial and administrative support from the government Intangible project outcomes • • Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 50
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51 Seoul residents as project has had Seoul Changsin-Soongin : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Metropolitan Government adopted a new Vol. 4 : Vol. Seoul project was the firstmunicipal projectto be executed in Metropolitan Government’s Urban Revitalization 2025 plan even Metropolitan Government has acknowledged these issues, but it has Seoul Seoul Changsin-Soongin The Future of Urban Revitalization 2025 Urban Revitalization of The Future The The The Urban Revitalization 2025 strategic plan was created in response to a series limited success and has left residents dissatisfied with its outcomes. dissatisfied residents and has left success limited execution, rather than working closely with the residents, the city manager collaborated than with closely working the the city residents, execution, collaborated rather manager with managers, including other those government from other departments of the Metropolitan Government and the national government. Owing to this failure to fully adhere to the collaborative governance model, the the CRC mandate, the city manager conducted a series of meetings, hearings, and surveys to obtain residents’ input on optimal ways to stimulate the local economy and revive the local identity. However, the three projects that were selected to progress to the implementation stage did not reflectlocal needs.Moreover, during the project’s line with the though, during its implementation period, this overarching strategic plan was not yet in force. Thus, it is possible that some of its failures could be attributed to the fact that this new governance model had never been tested in practice. Indeed, in line with addition to allowing the residents to provide input regarding the projects’ aims, design, implementation, and expected outcomes, the model dictates that they should be given training opportunities to allow them to successfully self-govern local revitalization completed. once they are projects projects. This projects. ambitious emphasized plan the need on projects to focus all revitalization the needs of residents, who should not only be actively involved in all stages of such projects, including the identification of the initiativesto be implemented, but should receive their benefits while continuing to reside in their current neighborhoods. In of governmental regeneration project failures in project of failures previous years. Withregeneration governmental the main focus of this new vision, the governance model that would allow representatives of local communities to directly participate in the design, implementation, and self-governance of local revitalization project, even though Changsin-Soongin Metropolitan Government and the national government should have only had only have should government national the and Government Metropolitan Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Seoul 52 the responsibility of providing oversight, their were representatives the actual decision- makers in all three local revitalization projects, and the opinions of local residents were not considered. yield yield the expected outcomes. Moreover, in the the hearings or participated in the survey, which limited the potential to objectively identify identify hearings the limited or objectively to potential participated which in the survey, the community’s needs, thus resulting in the selection of three projects that failed to also identified some of the contributing factors with the aim of rectifying them in future them in future rectifying with the aim factors of some also identified of the contributing projects of this type. For example, relatively few residents attended the meetings and
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 53 , the Seoul Metropolitan Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered project, three urban revitalization projects Vol. 4 : Vol. Teaching Note Teaching Changsin-Soongin As As part of the In order to overcome the previous challenges, in 2018, the Due to the aging residential environments of some municipalities in Metropolitan Government has been focusing on urban revitalization for many Metropolitan Government did not succeed in revitalizing these areas, as most of main requirements was to ensure that the CRC worked closely with the residents to identify the local needs and sources of local cultural identity within the framework of approaches approaches are required for effectively transcending the traditional boundaries of governments. conducted were the following implementation of Urban Revitalization 2025. One of the value value of local areas. When designing and implementing local revitalization projects in collaboration with residents, municipal governments must adopt participatory and collaborative governance models as a main framework for coordinating multi- organizational tasks. As the government is no longer the main decision-maker, new Government Government announced the Urban Revitalization 2025 plan to place residents at the center of such local revitalization projects. This strategic plan is meant to elevate the socioeconomic status of such neighborhoods while improving the local infrastructure and amenities to restore a sense of community and pride in the historical and cultural its previous projects focused on the reconstruction of old residential properties, which out of their neighborhoods move to some residents housing costs, forcing greater to led the cost afford of living in the areas. no longer they could because years. years. Specifically, asmunicipalities withrelatively low socioeconomic status suffered because of the low quality of their residential environments, these municipalities were made the main targets of governmental projects. Yet, despite considerable efforts, the Case Overview Seoul Seoul Changsin-Soongin can take responsibility for the governance of local revitalization projects upon their completion? might encounter? What are the potential challenges that a citizen-led CRC decision-making processes? residents with different interests, especially when required to resolve conflicts among them? residents’ opinions in the decision-making process? residents’ opinions in the decision-making process? that have different levels of power (i.e., government representatives and residents) in What strategies should be taken into consideration by the CRC when working with What strategies should be taken into consideration by the CRC to ensure that residents What were the key problems and limitations of the CRC that prohibited the inclusion of What should strategies be taken into by consideration the CRC when working with actors This case study will help students understand the range of tools and practices • • • • • In sum, this case study allows us to identify the factors that should be considered be considered should that the factors identify us to study allows this case In sum, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 54 Learning Objectives Learning revitalization revitalization projects and consider potential methods of incorporating a more effective governance mechanism into the CRC. Thus, the case study is structured around four questions: key when when working with residents in decision-making processes pertaining to local despite substantial investments. investments. substantial despite the residents with the decision-making power. However, in the project, these objectives were not realized, due primarily to the failure to collaborate with the residents in defining the aims of the project, which led to poor outcomes Within this framework, the city manager (who was a government representative) was supposed to act as a communication facilitator and task coordinator while entrusting of the local revitalization projects with the aim of transferring the responsibility for governance of the projects to nonprofit communityrepresentatives upon completion. the collaborative governance model. The CRC was also responsible for overseeing the full participationall aspects in the residents allowing included which execution, project’s
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 55 Changsin-Soongin : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. project and are expected to understand a broad range Changsin-Soongin governance models. project and make recommendations for the successful implementation of this model in projects. future urban revitalization this practice and outline the necessary conditions for the success of their collaborative interest among residents as well as power imbalances among collaborative participants in the decision-making process. (e.g., residents and government managers) multi-sectoral multi-sectoral participation with the goal of identifying and executing projects that not only incorporate actual residents’ needs but also offer tangible benefits to local communities upon completion. Identify the lessons that designers of other types of policies and projects can learn from Understand the complexities of collaborative structures characterized by conflicts of Identify and explain the main factors that hindered the success of the Understand the complex issues inherent in most local revitalization projects that require • • • • • Urban Urban Revitalization 2025 has been considered the first step in the adoption of collaborative partners and tasks involved in the execution of this new governance model. By taking on the role of CRC representatives, students will be required to adopt the most appropriate strategies for facilitating collaborative processes, as well as moderate interactions among participants and reduce potential conflicts among them. to: be able of study, case students should this successful completion Upon of a bottom-up collaborative approach for designing local revitalization projects in Korea. When working on this case study, students will act as city managers within the CRC in the of the governance collaborative model will give students a better understanding of the methods of involving citizens in the project development and implementation phases to completion upon projects such of self-governing capable are they that ensuring while improvements. for recommendations appropriate generate at at the disposal of government managers in the CRC who are required to work with representatives of other sectors, especially residents, in the context of the collaborative governance model. A close examination of the benefits and challenges As in many real-world situations, students should be advised that there is no single This case study can be analyzed individually or in groups and is suitable for The intended audience for this case study is advanced undergraduate and Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 56 collaborative arrangements. Some suggestions for discussion questions are offered below: offered discussion questions are for Some suggestions arrangements. collaborative discussions is to encourage students to explore a broad range of potential solutions that can be offered in response to complex social problems and situations that require multi-sectoral correct correct answer to the discussion questions. The purpose of conducting such case analyses and Discussion Questions Discussion findings and share their perspectives. share findings and questions, the case can be analyzed in 30 minutes. At the end, the instructor may allocate 10-20 minutes for a classroom discussion to allow students to report their after after which the students should be given 40 minutes to complete the case analysis. If students read the case before class and prepare their responses to the discussion should should spend 20-30 minutes providing background information and introducing relevant collaboration concepts. The case will take approximately 20 minutes to read, classes classes lasting up to 90 minutes. Before conducting the case analysis, the instructor Case Administration government government administration, public policy, and urban issues and solutions. Knowledge of basic collaboration concepts and public management strategies is not required but and discussions. analyses for in-depth be beneficial would concepts discussed in the preceding sections and the practical exercises outlined below can be incorporated into a range of courses related to public management, local graduate graduate students in the field of public administration and policy. The theoretical Target Audience Target
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 57 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. In a collaborative leadership role, an individual who . structure? structure? revitalization projects? revitalization among residents and reconcile power imbalances between them and government in the decision-making process? managers implementation of public policies? of public policies? implementation How might political context impact the implementation of the collaborative governance What factors should be considered when city managers must alleviate conflicts of interest alleviate must when city managers should be considered What factors What are the unique features of the collaborative governance structure in the design and What criteria should be considered when working with residents in the design of local Instructors Instructors have several options for including extended exercises and may • • • • The Role of a Convener communication communication techniques to to motivate stakeholders handle the issues that arise due processes. of complexity collaborative the inherent to more more collaborative meeting scenarios to the students and should appoint specific individuals as conveners to allow them to consider various ways to organize meetings attended by multiple stakeholders who have varying interests and different levels of power. Students should learn how to implement a collaborative decision-making process involving multiple stakeholders as well as adopt shared leadership and represents the organization in charge of leading collaborative governance is the ofgovernance represents in responsible organization charge leading collaborative for setting agendas, organizing meetings, bringing important stakeholders into the meetings, clarifying issues, and facilitating constructive and respectful interactions among meeting attendees. Thus, in this exercise, the instructor may present one or is in a position to lead a collaborative process involving a wide range of participants should act as a convener to promote constructive and fair communication among the participants and set the agenda for discussions. In practice, an individual who choose choose one or more that fit theirlearning objectives to help studentsdelve further into skills. managerial of collaborative array a broad and develop the case Extended Exercises Extended In this case, students case, this In Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean The Restructuring of Collaborative Network Arrangements. 58 students to adopt the role of the city manager to find the bestway to respond to such projects. the urban regeneration circumstances and successfully complete a list of participating organizations with specificroles within the CRC. In one scenario, one of the participating organizations has decided to opt out of the CRC, allowing the suitable suitable participant or by restructuring the roles of the remaining actors to ensure network stability. In this exercise, instructors may present a network map, along with an actor may decide to opt out of the network structure, and the individual who is in of and organizing charge leading a such (the network city manager, in this case) should by appointing and function structure another the network’s restore to promptly respond task can be used to prompt students to consider various network structures that could be adopted to engage multiple in stakeholders a single policy project. In the real world, process process in the context of the network-form structure, including representatives of various government bodies and nonprofit organizations aswell aslocal citizens. This can can identify the roles and responsibilities of multiple stakeholders in the collaborative
Chapter 3 - Working with Local Residents in Collaborative Arrangements KIPA Case Study Series 4 59 of the 1-9. Retrieved from https:// Retrieved from https:// 112-139. 111-126. KRIHS Policy Brief, 649, : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul City Jongro-Gu Urban Regeneration Vol. 4 : Vol. Space & Environment, 28(3), 2025 Seoul Urban Revitalization Strategic Plan.
uri.seoul.go.kr/surc/seoulInfo/strategicPlan.do uri.seoul.go.kr/surc/archive/policyView.do?bbs_seq=462&bbs_master_seq=POLICY Implement Urban Revitalization Project. Project. Urban Revitalization Implement as as a Collaborative Planning Process: A Case Study of the Changsin-Sungin Project. Revitalization Regeneration: A Case of the Changsin-Sungin Regions in Seoul. Journal Priority Area: Urban Revitalization Strategic Plan. Association of Korean Photo-Geographers, 26, Seoul Metropolitan Government. (2015). Lim, S., & Chung, E. (2018). The Task of City Revitalization Center to Successfully Lee, N, & Ahn, J. (2016). A Study on Neighboring Regenerative-Type Urban References Kim, J. (2018). Significance and Limitation of the Neighborhood Revitalization Plan _____. (2018).
CHAPTER 4
Building an Urban Forest through Public-Private- Partnerships:
A Case of Seoul Forest Park
KOREA INSTITUTE OF PUBLIC ADMINISTRATION Forest Forest Forest “ Seoul · Boise State University ) along the Han River and 2 was established in 2003 by a ” Forest Park Sanghee Park Seoul Forest Forest Park was initiated by a civic group after after intense discussion. According to this plan, a ” Seoul Metropolitan Government. In 2002, they drafted a master government recently announced a long-term plan to expand Green Trust Foundation (SGT) Seoul Seoul Seoul Forest Forest Park covers 286 acres (1,156,498m Green Vision 2020 the “ and the ” The project to set up This case addresses how public, nonprofit, and for-profit organizations can Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Seoul Forest Park Forest by about 40 percent as a base for urban renewal projects around the Seoul “ Chapter 4 Chapter 62 plan plan nonprofit for for Life Han River.Han become a go-to spot for citizens who seek a shelter in the heart of the city at all hours year-round. The was was opened in 2005. As the firsturban forest established through PPPs, Park has been successfully managed and funded and is still expanding. The park has public and private (nonprofit and for-profit) sectors. sectors. for-profit) and (nonprofit public and private as well as the advantages, disadvantages, and political incentives of public-private partnerships (PPPs) and the requirements for a successful partnership between the of public policy, public administration, and urban planning and development. Studying this case can help students understand the characteristics of this type of policy issue cooperate cooperate to build an urban green space in an extremely dense mega-city. This case would be ideal for and introductory undergraduate- graduate-level courses in the fields Overview Partnerships: The Case of Partnerships: Building an Urban Forest through Public-Private- Building an Urban Seoul
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 63 with “the least urban green space per Forest Park, and it was later renamed : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Seoul Vol. 4 : Vol. , the capital city of South Korea, is known for its rapid growth and Forest Park Conservancy (or The Conservancy) in November 2016 as the The purpose ofofthe understanding as institutional advance is PPPs this to case Seoul Seoul However, investing in investing municipal urban However, forestry, including man-made parks and forests, became an important factor in making it a global city and enhancing residents’ health ways. in many and well-being The population exploded with the growth of the city and reached 10 million in 1988 (see Figure 1). Almost half of the population of the country lived in the greater metropolitan area by this time, which left capita in the country” according to the Korea Forest Service (Table 1) (Jang, 2019). Initiated by the Private, Supported by the Public Supported by the Private, Initiated attractions. and cultural historical coexist with many which urban technology, advanced and a public-private partnership can be fluid and evolve from other forms of co- production, such as citizen-led projects with government sponsorship, government-led with citizen participation,projects and privatization. outsourcing, arrangements arrangements for the provision of infrastructure. Students will be exposed to decision- making processes in which public officials and private partners interact, coordinate use effective of to make responsibilities share and a consensus, reach opinions, different not predetermined, are organizations of the public and private The roles their resources. city city government transferred its management authority. The Conservancy then took over the responsibility of maintaining the park as a public trustee and running various activities. and volunteer events, cultural programs, education consensus consensus between the city government and Forest for Life. In 2005, the SGT created a dedicated organization, the Friends of the Seoul 13.07 20.57 33.64 Metropolitan Seoul % green areas in areas % green 38.85 61.15 100.00 % green areas % green in 2016 Seoul Seoul 7,947.45 12,508.79 20,456.24 Gross area (ha) area Gross 735 2,698 3,433 # of patches Population Gross Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Director Director Choi had been working for the nonprofit advocacy group Forest for 0 Natural green area green Natural 2,000,000 4,000,000 8,000,000 6,000,000 Artificial area green Type of green area of green Type 10,000,000 12,000,000 64 of stakeholders involved in developmental projects, her newly established nonprofit simply lacked the capacity to overcome the resistance and opposition of the wide City. Despite her tireless efforts,she knew better thananyone that itwould be almost impossible to advance the project without government support. Given the wide range experience experience in urban landscaping and architecture before joining Forest for Life, she had a vision to build a large-scale urban forest in the center of Life Life with the aim of developing, conserving, and restoring forests and sustainable communities since the founding of the organization in 1998. With over 20 years of *Source: Korea Forest Service (http://www.forest.go.kr/) Forest *Source: Korea Table 1. Natural and Artificial Green Areas in Areas and Artificial Green 1. Natural Table *Source: Statistics Korea (http://kostat.go.kr/portal/korea/index.action) Korea *Source: Statistics Figure 1. Trends in the Registered Population of Population in the Registered 1. Trends Figure
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 65 . The ” Seoul green city. green . “ Bridge in 1994. He Seoul District, where recovery Sungsoo Ttukseom City Government, were not strangers to , and he appointed Mr. Moon to lead his : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. Seoul Before Before the mayoral election in 2002, Director Kim and the LMD had been Her Her counterpart, Director Kim, and his managerial team in the Landscape Director Director Choi was excited about the determination of mayor-elect Lee to carry In 2002, Lee Myung-bak (who later became the seventeenth president of Korea argued argued for the expansion of their role in the renewal of the area but was frustrated by slow due progress to the limited resources possessed by his department. The LMD was processes processes progressed slowly after the collapse of the stakeholders. stakeholders. She prepared herself to encounter confusion, delays, and conflicts in decision-making. conducting an investigation into the situation in her. They had interacted because ofbecause other issues, but her. mostly They in had the interacted ofcontext providing consultation in the early stages of a project. Although Director Kim was supportive of environmentally friendly ideas, she knew that it would never be easy to work with him as a partner to arrange detailed roadmaps that could garner the approval of all behalf behalf of, public officials. She also knew that stakeholders, developers, and residents who stubbornly oppose the plan. would in the area and invested interested were Management Department (LMD) of the out his promise of creating a forest in environmental agenda. It was a great opportunity for both her and Forest for Life to play a key role in major environmental projects. she However, was concerned about how to share with responsibility or, how the precisely, more to with, work government, neither for nor on who who had enjoyed a successful career at Engineering Hyundai & Construction for many years. The transition team led by Mr. Moon requested that Forest for Life provide a or a friendly place making the city an environmentally blueprint for during during the period from 2008 to 2013) was elected as the new mayor of mayor-elect appointed Mr. Moon Kuk-Hyun, a co-representative of Forest for Life, as chief of the environmental division of the mayoral transition team. Mayor Lee pushed ahead with extensive environmental agendas to change his image as a businessman range range of stakeholders involved in such projects. Choi had been working with the city its support of gain to as that of the citizens as well government District had Ttukseom , sincerely believed that the area should should the area that believed , sincerely Seoul . They recognized that they needed to form strong partnerships to achieve their . partnerships they that They strong form to needed recognized achieve to Director Director Choi had a good relationship with Director Kim, who seemed to be Director Director Choi of the nonprofit Forest for Life and Director Kim of the LMD Director Director Kim and his team were full of fighting spirit when the new mayor Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Seoul 66 not always welcomed by his team members, as public officials were accustomed to directing, monitoring, and supervising the tasks entrusted to private organizations. positive positive about working with a nonprofit.However, hiswork style and approach were broad broad consensus about conservation and the provision of a large-scale green space in Lee. of term Mayor ofthe center the four-year the city during goals. goals. They proposed a detailed, actionable plan after a series of formal and informal meetings. They had differing standpoints on several specific matters, but reached a agreed agreed that this would be a once-in-a-lifetime chance to build a large-scale forest park in Shared Vision, Disagreements on Particulars Vision, Disagreements Shared doing as well as make more ambitious plans for the future. the future. for ambitious plans more as make as well doing something!” something!” was the firstreaction at thedepartment’s meeting. Kimalso hoped that the LMD could gain more ground in the city government, as well as more staff and a bigger budget, so that it could make meaningful progress in what it had already been appeared appeared to be enthusiastic about environmentally friendly projects. “Now we can do to square one with the plan one too many times. many one too the plan one with square to manufacturers, manufacturers, and even some residents in the area would never be in offavor the idea of building a park open to the public at all hours. In fact, the plan to renew the area had been going adrift for a long time, and it appeared to them that the city had government returned long been an industrial area whose economy concentrated on handicrafts, automobiles, and automobiles, on handicrafts, concentrated whose economy been an area industrial long recreational facilities such as a racetrack, game preserve, and sports stadium. Developers, be transformed into an environmentally sustainable, publicly accessible place, especially after the tragic accident that had taken thousands of lives. However, a small and under-resourced organization, but it was comprised of capable, committed a citizen of and director Kim, as its employees.
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 67 health Ecological : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. generation Partnership with citizen Green Vision 2020 Green next for Forest Seoul l Green Vision 2020 (Figure 2). The nonprofitwas formally city council were appointed as ex-officio membersthe SGT. of appointed as ex-officio city council were Seou Seoul Green Vision 2020 Green community Sustainable Seoul One of the important consensuses the two sides were able to reach was that a However, However, it became easier for them to work together, as both parties arrived at *Source: Forest for Life (2002a, p. 1) Life for *Source: Forest Figure 2. Figure established established in June 2003 to facilitate public-private partnerships for urban green space planning. for Co-representative Life ofbecame Moon the chairpersonForest first of the Lee became an chairpersonSGT honorary and ofKim Director Mayor the organization. of the LMD, Director Choi and two members from Forest for Life, and two or three members of the with its number ofwith its number sub-departments in 2003. doubled nonprofitfoundation, the SGT,should be establishedto implement and manage the projects proposed in a better understanding of each other after formal several and informal meetings. It was the same goal shared Life for both the LMD that and Forest and reassuring helpful very and attempted to do their best under difficult circumstances. Things improvedfurther after the LMD was expanded and from the raised department-level to the bureau-level, ownership ownership issues. These conflicts oftenwent unresolved andwere finally mediated by those in who charge, tried to find a middle ground, but thiswas not always satisfactory Choi. Director to Choi sometimes felt that her nonprofit organization was treated as a subcontractor rather than a partner of the LMD. Sometimes there were opposing opinions between hands-on managers over specific issuesrelated to timelines, ceremonial protocols, and Forest Forest Forest Seoul Seoul Forest Park had and were willing to Seoul Seoul Forest Park, to facilitate communication between citizens, Forest Park worked diligently with citizens and firms that were Seoul Seoul Beginning Beginning with the first tree-planting event in May 2003, more than 5,000 Director Director Kim of the LMD was slightly concerned about the dispersion of In 2005, a after its year the establishment, organization, a SGT dedicated created Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 68 education programs, cultural events, and volunteer activities (see Figures 3A and 3B). activities (see Figures and volunteer events, cultural programs, education decided decided to transfer management authority to the organization. Now, the Conservancy took responsibility for maintaining the park as a public trustee and running various firms during the three years from 2003-2005. The Friends of been successfully operating the park for over 10 years and renamed it the Park Conservancy (the Conservancy) in November 2016, when the city government donating donating before the park officially opened to the public in June 2005 ( Park Coservancy, n.d.). More than four million dollars were collected from citizens and citizens and 70 firms contributed by planting trees, raising funds, volunteering, and were were passionate about having a forest park at the center of ways. in various the project to and donate participate, volunteer, actively participating actively to Indeed, build their and the in effortsmanage forest. fundraising went well beyond anyone’s expectations. Choi was pleasantly surprised that citizens burdens, burdens, yet he entrusted her with the direction of the project. The SGT and the Friends of responsibility responsibility for oversight, over-dependence on civic groups, and potential financial important, and she was confident in establishing an independent organization to pursue organization independent an important, in establishing confident was and she these tasks. volunteers, volunteers, and investors in the community. Director Choi of Forest for Life believed that building trust, gaining support, and promoting citizen participation were extremely the Friends of
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 69 City in 2000 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Forest cite Vol. 4 : Vol. Urbanization area Road and transpotation River and lake green Natural Artificial green Green belt Seoul *Source: Forest for Life (2002b, p. 11) Life for *Source: Forest Figure 3A. Spatial Distribution of Land Use in Use of Land 3A. Spatial Distribution Figure City in 2010 Seoul Road and transpotation facilities Urban infrastructure Denuded area Inaccessible area Forest and open space River and lake Residential area Commercial and business area Mixed residential and business area Industrial area Public facilities
Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 70 *Source: Ministry of Environment (2010) *Source: Ministry of Environment Figure 3B. Spatial Distribution of Land Use in of Land 3B. Spatial Distribution Figure
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4
71 Seoul Green Trust Green : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Seoul government and an operational fund collected from Seoul ’s industrial structure to create positive externality became important Seoul However, However, Song felt that the SGT was not quite capable of dealing with all the The SGT was an independent corporate body with independent membership Director Director Choi felt that partnership was not something that was predefined but related related to multimedia, culture, and fashion as “the best and the highest” use of the center of the city. In the context of comparisons to New York, London, and Tokyo, advancing developmental developmental pressures and conflicts with grassroots organizations.People constantly argued for economic development, citing good reasons for promoting high-value industries such as finance, tertiary businesses, information technology, and those campaign campaign “1 dollar from 10 million citizens,” installing a collection box in every public and quasi-public office,voluntaryfrom eliciting donations users of facilities city as such museums and parking lots, and fundraising at schools, businesses, event organizations, donors, among other things. to as offering tax benefits as well and festivals, and bazaars City, CMO Song had a vision of raising about 20 million from the public and private sectors and established an operating committee within the organization to administer the fund. She raised this “Green Fund” from diverse stakeholders such as citizens, companies, landowners, and community leaders by, for example, creating the funding and separate funding sources from the government. It had two funding streams: an ear-marked fund from the citizens and business investors. With a matching fund of 10 million dollars from had expertise in funding and advertising, became a chief management officer (CMO). Song was focused on fundraising and attracting public attention to the project. Hosting domestic and international symposiums, campaigning in the media, and determining her main tasks. in other countries were of successful urban forests the traits that that it was a process that evolved as actors’ responsibilities and relationships with each other changed over time. As a jointly created private entity, the SGT, took the initiating role in expanding neighborhood green spaces through citizen participation supported by the public sector so that Forest for Life could focus on the issues related to the partnership itself. One of the founding staffmembers ofthe SGT, Song, who The Changing Role of the Role The Changing Seongsu-dong Metropolitan City. Seoul was considered a backwards part ) ) within Seongdong-gu Seongsu-dong and had more than doubled. However, it was obvious that Seongsu-dong Seongdong-gu Redevelopment & Reconstruction Committee placed Song in an even with various development plans already in effect. Since the master plan A year after the park opened in 2004, the operational team of the Friends of Director Kim of the LMD decided to intervene more actively in addressing these in addressing Kim actively ofmore Director the intervene to LMD decided Song was also concerned about the relationship with the lower levels of Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Forest Park Forest was launched as Song was actively recruiting and training volunteers Seoul there there was nothing here.” On the other hand, thousands of residents in An employee of a factory protested, saying, “You can’t just buy us out because the residents want us out. We’ve been settled on this land since the early 1970s, when had been operating for decades, such as ready-mix concrete(RMC) and steel plants, a football stadium, a horse-riding course, and other sports facilities, would not be easy. apartments in reaching an agreement to provide demolition compensation to existing facilities that of to build a large-scale forest park had emerged, the property values of houses and 72 called called “Forest Guards” whose role was expanded to include six areas in 2006: Garden easier easier for private partners such as Director Choi and CMO Song by relieving them of and appeals. petitions, of with complaints, dealing the pressure recreational recreational facilities should be part of the neighborhood park. The accommodation on the government side made reconciling the interests of various stakeholders much the provision of building facilities for immigrant workers, a labor center, an office for sportsthat civic he and complaints, Despite believed groups, the the residents’ like. and conflicts between the committeeand thevarious demands fromlocal groups,such as more difficult situation. difficult situation. more horse droppings and must chase off flies and mosquitos? Wehave suffered enough,” said a long-time resident. In addition, a series of both small and big conflicts with the filed a petitionto remove orrelocate thefacilities nextto the park space because of the noise, dust, and unpleasant smell. “How can we enjoy the forest while we smell government government ( Compared to neighboring localities, to accommodating the challenges of a changing economic and industrial environment. and industrial economic of a changing challenges the accommodating to Seoul Seongdong-gu
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73 Forest Forest Seoul Seoul Forest Forest Park handle Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Forest Park was an important turning point Vol. 4 : Vol. Seoul Forest Park were committed to engaging citizens Seoul Forest Forest as the “Central Park” of the city. The LMD took charge of Seoul The launch of the Friends of Park Park (renamed the Conservancy) and the city government-associated management office assumed leading a role in managing and operating the park, maintaining close a other. with each collaboration administration administration and facility management. Kim and his team in the LMD recognized the significantrole and expertise of the private groups as official partners of the project and shared their responsibility and delegated authority to find the most efficientway to operate the park. The role of the SGT decreased, while the Friends of in governance and the sharing of responsibility for partnership. At this point, Director Kim of the LMD agreed to step aside and let the Friends of a program and operating as advertising, marketing, such most operations, of day-to-day promoting donations donations and the participation of private companies and businesses. Companies were willing to participate in the project as part of effortsat promoting social responsibility. of member. the SGT as a board board on the governing served Ltd. Kimberly, Yuhan cultural, cultural, and educational programs regarding climate change, reading, and gardening, as well as public campaigns like Forest for the Next Generation and the fall festival. Citizens actively volunteered for a series of activities that included supplementary tree-planting, building flower beds, and fertilizing and weeding the park. As the CMO of the SGT, Song planned to establish a fund matching to encourage Trimmers, Trimmers, Event Communicators, Tour Conductors, Library Helpers, and Docents. The SGT and the Friends of and volunteers, ensuring stable funding sources, and managing various public service, Redevelopment & Seongdong-gu , and developers and Teaching Note Teaching Seongsu-dong , the residents of Group Group discussion in a classroom could be used to brainstorm the conditions for This case provides an opportunity for students to learn about what makes a This case is appropriate for undergraduate- and graduate-level courses in Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Seoul 74 recommendations for those who consider PPPs a means of service or infrastructure provision. of a means service or infrastructure PPPs consider those who for recommendations of Reconstruction committee members. The closing discussion could be used to propose policy successful PPPs. This successful also case can PPPs. be points the discussed offrom varied view of a government official (Director Kim), a nonprofit (Director Choi entrepreneur and CMO Song) and the citizens momentum and opening the policy window. window. momentum and opening the policy important to the success of this PPP project. In addition, the election of a mayor who was committed to building an urban forest was an important factor in gaining success. The partnership evolved as the occasion demanded, but a carefully designed plan to share responsibilities between the city government and private partners was the area into a commercial district, made it difficult toget theproject on the political agenda and move it forward as planned. By studying this case, students will learn that citizen participation, effective partnerships, and stable funding sourceswere thekeysto over over time. The benefits of an urbanforest for citizens are incalculable, but the costs of construction and maintenance, including the opportunity cost of not developing successful public-private partnership (PPP), how important it is to build trust with partnering entities and elicit support from outside, and how the relationship changes partnerships, and collaborative governance. governance. partnerships, and collaborative several several important elements that merit discussion, such as policy windows, political and bureaucratic incentives, voluntary participation, citizen engagement, public-private public and nonprofit management, public policy, and urban studies. Thiscase involves Why this Case is Interesting is Interesting Why this Case
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 75 District Ttukseom : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Bridge or the demand for more green spaces and hopes of Sungsoo : Problems drawn from crises, feedback, demands, and accidents; for a global, environmentally friendly city, etc. Seoul after the collapse of making example, example, the dire need for renewal, recovery, and redevelopment of Problem streams 1) 2. Agenda-Setting Models Why are some problems acted on and others neglected? This is a key question According According to Wilson (1980), “[t]he political significance of costs and benefits Wilson’s (1980) two-by-two typology is useful for explaining the variations in 1. Wilson’s (1980) Politics of Regulation Instructors Instructors can use this case and a classroom discussion of it as an opportunity when when the following three streams converge. Instructors can ask what constitutes each in this case. of the streams in public policymaking. Kingdon’s agenda-setting model (or policy window model) assumes that a policy window opens for problems to reach a governmental agenda arises out of their distribution as well as their magnitude… but the incidence of these magnitudes is especially relevant to political action. As we shall see, the distribution of consequences affects the incentivesto form political organizations andto engage in action” (p. 366). collective lots lots of conflict and high visibility? What kind of politics is mostlyto invisible the public and quietly done without much attention from the people? What kind of policy is most be enacted? to unlikely politics politics involved in a policy issue. Instructors may present 2 Table and ask students to consider what kind of politics is involved in creating an urban forest and provide an example of each type of politics. What kind of politics is most like a battleground, with to help students to understand Wilson’s politics of regulation, the agenda-setting model, model, agenda-setting the of Wilson’s regulation, politics understand to students help to partnerships. and public-private What Students can learn from this Case this from learn can What Students : A series of proposals, strategies, and initiatives to tackle the problem; Redevelopment & Reconstruction Redevelopment committee seek to influence : Political and bureaucratic incentives of each stakeholders. For example, lobbies, appeals, Mayor Lee’s commitment to environmentally friendly city, Director Kim’s and maximize the budget, etc. organization incentive to expand contractors, etc. contractors, for for example, government-led development, restoration of the previous state, public- or developers partnerships, citizen’s support to private and voluntarism, deference private Seongdong-gu Politics stream Solution streams Political Political events, such as the election of Mayor Lee, helped the three streams 3) 2) Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Advocacy Advocacy or interest groups play an important role in the policy-making 76 Choi be considered a policy entrepreneur? Why or why not? or why Why entrepreneur? a policy Choi be considered accomplishments, accomplishments, their promotion of their policy values, … their simple pleasure in participating,” or some combination of these (Kingdon, 1995, p. 204). Would Director explanation explanation might emphasize the role of policy entrepreneurs who are motivated by concern “their about certainstraightforward their problems, pursuit of self-serving such benefits as protecting or expanding their bureaucracy’s budget or claiming credit for converge, converge, which opened the policy window to make changes possible. An alternative policy or legislation in advancing their interests. in advancing or legislation policy National National Abortion Rights Action League (NARAL)). Instructors can discuss the role of different types of advocacy groups,for example, askingquestions such that how the SGT and (e.g., National Leagues of Cities), religious interest groups, civil rights interest groups (e.g., National Organization for Women (NOW)), and single-issue interest groups (e.g., professional professional interest groups (e.g., Trade associations, American Medical Association), public interest groups (e.g., Environmental Defense Fund), government interest groups processes processes by influencing publicopinion invarious ways. They include economic and
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 77 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. (Vaillancourt Rosenau, 2000; Van Ham & Koppenjan, (Tiesman & Klijin, 2001, 2002; Linder, 1999): PPPs are (Savas, 2000; Osborne, 2001): PPPs consist of a range and community development. and community development. of of contractual arrangements to design, construct, finance, operate, and maintain infrastructure projects. PPPs in the US have been used to enhance urban regeneration is dubious. PPPs are essentially the same, only with privatization, contracting and outsourcing, promoted by governments. buzzword and the term is just another a political means to pass the cost on to the private sector, and the gain in efficiency PPPs as a financial model PPPs as a rhetorical language and private sectors. The combination of the public and private sectors allows us to commitment. and mutual cooperation long-term PPPs can facilitate become better-off. 2001): 2001): PPPs are established because the benefits and risks are shared by both the public PPPs as a tool of governance 3) 2) However, However, people ascribe various meanings and definitionsto “partnership” (for 1) PPPs PPPs are “loosely defined as cooperative institutional arrangements between 3. Public-Private Partnerships A partnership approach reflects the shift from traditional hierarchy toward more details, see Hodge & Greve, 2007): & Greve, see Hodge details, more world, world, especially in the context of urban renewal and community development. In the U.S., PPPs “been have central to national and state government initiatives to regenerate local urban communities, as well as often arising out of community-led attempts to (Osborne, 2001, p. 1). communities” in American of with the crisis deal government public and private sector actors” (Hodge & Greve, 2007, p. 545). Osborne (2001) noted that PPPs have become an important tool for delivering public services around the horizontal horizontal governance (Bovaird, 2004). Various levels of government increasingly deliver public services in non-traditional ways, including contracting, privatization, coproduction, PPPs. The term “partnership” has quickly gained popularity because the government tends to avoid using the terms “privatization” and “contracting” (Hodge & 2007, p. 547). Greve, include reduced pressure on government budgets, the However, However, people who are concerned about the disadvantages claim that PPPs Government prefers private financing because it can allocate the resources saved resources saved the can allocate it because financing private prefers Government Osborne (2001, pp. 1-2) argued that PPPs offer (1) a means bywhich to combat 4. Advantages and Disadvantages of PPPs Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean PPPs’ advantages 78 gains gains due to transaction costs (Boardman et al., 2005). PPPs can be very expensive for for the service. PPPs are simply a rhetorical “language game,” and private financing cannot lighten the cost of providing infrastructure. It is difficult tomeasure efficiency may may weaken accountability by spreading it across multiple agents who are responsible new new financialdeals, andperhaps even policy influence andproject-selection priority” 2007, p. 552). & Greve, (Hodge card” card” (Hodge & Greve, 2007, p. 552). “These incentives have also been closely aligned with incentives for the financeindustry in terms ofcontinued business transactions, to to other projects and expect a “quicker promised delivery of infrastructure and more with finance and construction businesses” by using a “mega-credit relationships positive society, whatever this contested term may mean. mean. may term this contested whatever society, PPPs PPPs to improve the quality of the policy-making process; and (5) a route to both the reform of the political basis of the and government the and creation sustenance of civil build build upon local networks for their implementation; (4) a more responsive and flexible means of public by policymaking utilizing the and community business by links offered them more accessible to the local community and more responsive to its needs; (3) the opportunity to cost-efficientwaysdevelop ofproviding local services to meet social needs in ways that utilize resources from both the public and private spheres and including including local governments, local politicians, local community and volunteer groups, and the local community itself; (2) the chance to reform local public services, making social exclusion by integrating the public and private components of local communities, communities, components of local the public and private by integrating social exclusion improved improved value for the money in public infrastructure provision, the distribution of 2005). (Pollitt, of innovation risks, and the facilitation efficient, timelyprovision of public services, enhanced monitoring and accountability,
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 79 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. 5. General conditions for successful information-sharing 1) Transparent PPPs Nevertheless, Nevertheless, it is not easy to quantify the performance of PPPs, and the 3) Protecting the public interest in the unavoidable renegotiations; 3) Protecting interest in the unavoidable the public in the long run; and contract play and the 4) Defending fair contracts. simpler and more transparent 5) Allowing for better, 1) Addressing conflict conveniently; 1) Addressing management 2) Protecting the complaints of customers and users; and handling Policies Policies related to infrastructure generally suffer from market failures due to 552). Hodge and Greve (2007, p. 552) also noted, based on their experience, that PPPs appear to work well relatively for providing physical infrastructure facilities, but not for services. technology and information education, health, providing empirical evidence is not adequate to validate either of the contradictory claims. Hodge either of empirical evidence Hodge is claims. to validate not the adequate contradictory and Greve (2007) argued that “[o]verall, it seems that the economic and financial benefits ofPPPs are stillsubject to debate –and hence considerable uncertainty” (p. Marques (2017, p. 4) clarified several benefits of regulating PPPs: regulating benefits of several (2017, p. 4) clarified Marques overly overly compatible and the long-term partnership “may be suspected of undermining competition between potential providers” of management services (Bovaird, 2004, p. 200). Thus, the need for management contract and arises external regulation to protect 2017). (Marques, the public interest asymmetrical asymmetrical information, externalities, and huge initial costs and risks (Marques, 2017), but once conflicts between service providers and funders are dissolved and have achieved a monopolistic status, it is likely that both parties’ interests can become (financialfailure) andsuffer from lacka of accountability(governance failure) (English, 2005; Shaoul, 2005). How about the reliability issue? What if private partners fail to the failure? for Who is responsible service? high-quality timely, consistent, provide
to by and (the wall actively partners a structure group Landscape proposal its expertise (the the hitting its and : advocacy government avoid governance to the : respecting government
nonprofit stable a government a by Seoul for important sector, The consensus-making the sentiment was as and initiated it private LMD). support well but or the was as park with motivation, issues, SGT) Forest Park Project a Success Story? a Success Project Park Forest or forest administrative government-driven strong Department, specific Seoul Trust, and partnership urban a on from an vision, Green
society Inclusion of a broad range of advocates and supporters from diverse segments of and interaction. communication frequent maintaining while supporting its role the two. a bond of sympathy between developing embraced establish Management conflicted Seoul profits, government departments)profits, government Institutional Freedom Shared Participation Participation and cooperation of all stakeholders (e.g., citizens, volunteers, nonprofits, for- 1. 11) Stable funding streams from various sources 11) Stable funding streams from various monitoring and accountability tools 12) Effective performance Rigorous and flexible measurement 13) 8) Clear and appropriate distribution of work to minimize conflicts8) Clear and appropriate and disputes use of resources, strengths, of the partners and expertise 9) Effective 10) 4) Commitment of political leaders and government officials 4) Commitment of political partners private 5) Empowerment of the entities of organizational 6) Stewardship 7) and volunteer participation within the community Citizen engagement 2) among partners and trust 3) Mutual understanding Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 3. 2. 80 What Made the
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4
a to of to 81 the and that and were clubs, make citizens areas as SGT, efforts to and according the Consensus- operate, the programs educated, such
city and citizens management Life, the continuous creative trained, for distributed manage, and : supporters. of while to was engaging stakeholders, many Forest : support management, strong : variety and a other capacity into development diversity and from management, partners responsibility : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered develop by ecological : them companies and private Conservancy, Forest community fundraising, to trust Vol. 4 : Vol. program and facility Seoul respect and turning earn strong fostered and legitimate commitment continue and and as area, networking, in trust landscaping the the Forest, in developing project role participation campaigning, volunteers administration Seoul opponents for mutual key the organizations’ a managed on activists overall played them. for public space and transparent accessible more jointly advertising, partners. the private to left responsible and was role a housekeeping took The city government expertise. for committed citizen participation. increase and opposition. overcoming to important were making and engagement efforts persuade associations, residents’ office, in the district employees students, universities, Friends of develop based Community Potential Private 6. 5. 4. Sample plan for time allocation (90 minutes of discussion) (90 minutes time allocation for plan Sample The instructor can organize class discussion according to the learning objectives Discussion Questions Discussion of the class. Forest? Forest? Seoul Seoul gains are uncertain? not work well? Are there political incentives to establish PPPs in cases in which economic and financial What kinds of projects might work better through PPP arrangements? What kind might rather than those of the public? rather What if special interest groups become partners and advocated for their own interests was it not an issue before? was How and why has building an urban forest park became a prominent policy issue and why 2. What did Director Choi hope to achieve by building by 2. What did Director hope to achieve Choi by building 3. What did Director hope to achieve Kim 1. - Pasture 4: Closing – 15 minutes - Pasture Pasture 1: Policy problem The discussion can begin with the instructor asking students to identify the - Pasture 1: Policy problem – 20 minutes – 20 Policy problem 1: - Pasture partnerships –30 minutes 2: Public-private - Pasture – 25 minutes 3: Governance - Pasture Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 14. 14. 12. projects? financing for major infrastructure PPPs and private Why do politicians prefer 13. 8. Are PPPs different from contracting or privatization? If they are, how so? If they are, or privatization? 8. Are PPPs different from contracting of PPPs? 9. What are the advantages of PPPs? 10. What are the disadvantages 11. Pasture 2: Public-private partnerships partnerships (PPPs)? 6. What are public-private perspectives on PPPs, which would you be most willing to support? 7. Of the various 4. Who would benefit the most from the forest park and who would bear the costs? 4. Who would benefit the most from the forest streams and how did they converge? 5. What constitutes each of the three policy 82 nature of the policy problem. Provide Figure 4 to students. 4 to Figure Provide of problem. the policy nature
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 83 Forest Park Forest projectPark had been led by Seoul : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Forest Seoul Park Conservancy (2018) Conservancy Park
Forest Seoul continue to work to support public interests? What kind of regulations would be needed to ensure that partnersprivate or contractors the government from beginning to end (or by private firms)? (Counterfactual questions) beginning to end (or by private the government from Would the outcome have been different if the Pasture 4: Closing Instructors may close the discussion with an overview of general conditions for 18. partnership19. What makes a successful in this case? 15. What type of governance structure demonstrates the partnership in this case? the partnership in this case? structure15. What type of governance demonstrates 16. If something goes wrong,17. protect who should take the responsibility? citizens and Pasture 3: Governance the students. 5 to Figure Provide *Source: the successful PPPs and discuss the role of advocacy groups in policymaking. in policymaking. groups of advocacy and discuss the role successful PPPs of 4. Photograph Figure Citizens Citizens Sponsoring Government Volunteering Partnership Citizens Government Urban forest Urban forest Government Urban forest Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Forestry (2011, p. 58) Forestry Kim, King & Cho (2010); the Korean Institute of Landscape Architecture and the National Institute of Institute National and the of Institute Architecture Landscape Kim, King & Cho (2010); the Korean 84 *Source: Type C: Public-Private Partnership(PPP) C: Public-Private Type Type B: Citizen-lead with government sponsorship(Legal, organizational, and financial support) and organizational, sponsorship(Legal, with government B: Citizen-lead Type Figure 5. Types of Public-Private Relationships in the Operation and Management of Urban Forests of Urban Forests and Management Operation in the Relationships of Public-Private 5. Types Figure participation citizen with voluntary A: Government-lead Type
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 85 Mayor Lee Mayor CMO Song Director Kim Director Main actors (2002-2006) Director Choi Director Client politics Narrowly distributed Narrowly Interest group politics group Interest (1998-) (2003-) Nonprofit Nonprofit Nonprofit Nonprofit Benefits (Concentrated to a small group) (Concentrated (2016 Nov-) Government Government (2005-2016) Private industryPrivate Private partnersPrivate Private investors Private Private developers Private Type of organization Type
: Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Seoul Vol. 4 : Vol. politics Entrepreneurial Widely distributed Widely Majoritarian politics Green Vision 2020) 2020) Vision Green Seoul Forest Park (renamed as the (renamed Park Forest Redevelopment & Reconstruction & Reconstruction Redevelopment Organizations/Actors a small group) (Concentrated to (Concentrated Widely distributed Widely Seoul Narrowly distributed Narrowly Forest Park Conservancy Park Forest Green Trust ( Trust Green Metropolitan City Metropolitan Forest Park Conservancy in 2016) Conservancy Park Forest Sampyo Ready-mix Concrete(RMC) Factory Concrete(RMC) Ready-mix Sampyo http://www.sampyo.co.kr/eng/pages/02business/ business_dept01.asp Citizens and volunteers http://seoulforest.or.kr/participation/volunteer committee › housing https://www.sd.go.kr http://seoulforest.or.kr/english Ltd. Kimberly, Yuhan http://www.yuhan-kimberly.co.kr/Society/Plant http://parks.seoul.go.kr/template/sub/seoulforest.do Life for Forest https://forest.or.kr/ http://www.greentrust.or.kr Friends of http://www.seoul.go.kr/main/index.jsp Management Department)LMD (Landscape http://news.seoul.go.kr/env/policy-greencity Seongdong-gu Seoul Seoul Seoul Costs *Source: Wilson (1980) and Actors 3. Organizations Table Table 2. Benefits and Costs of Policymaking Policymaking of and Costs 2. Benefits Table , 38(5), (2nd ed.). New York, , 70, 199-215. , 67, 545-558. , edited by G. Hodge & Greve, C. , edited by G. Hodge & Greve, C. The Challenge of Public-Private Partnerships: The Challenge of Public-Private Partnerships: Green Vision 2020. Green Public Administration Review Seoul Agendas, alternatives, and public policies Journal of the Korean Institute of Landscape Architecture Seoul Has the Least Urban Green Space per Capita in the Country: International Review of Administrative Sciences . Posted on March 13, 2019 by Korea Bizwire in Environment, Health & Wellness, Social Affairs, Survey & Research. Retrieved from http:// koreabizwire.com/seoul-has-the-least-urban-green-space-per-capita-in-the- country-study/134044 Performance Review. Performance Cheltenham, UK: Edward Elgar. pp. 290-304. Elgar. UK: Edward Cheltenham, practice. practice. The Australian Experience. In Examples and Lessons Learned. In and Lessons Learned. Examples pp. 162-89. Elgar. UK: Edward Cheltenham, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Urban Parks. 21-30. NY: Harper Collins. Study Learning from International Experience Learning from International Experience 86 Kim, H., Kang, E. & Cho. J. (2010). An Evaluation on Management Types by Characteristics of Kingdon, Kingdon, J. W. (1995). Jang, Jang, L. (2019). Hodge, Hodge, G. A., & Greve, C. (2007). Public-Private Partnerships: An International _____. (2002b). Whitepaper Vol 2. Vol _____. (2002b). Whitepaper Forest for Life. (2002a). Life. for Forest English, English, L. (2005). Using Public–Private Partnerships to Deliver Social Infrastructure: Bovaird, Bovaird, T. (2004). Public-private partnerships: From contested concepts to prevalent Boardman, Boardman, A., Poschmann, F. & Vining, A. (2005). North American Infrastructure P3s: References
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships KIPA Case Study Series 4 , 87 The . Ministry of , 48,141-146. Public-Private Partnerships: . New York: Chatham House. Chatham York: . New , edited by Stephen Osborne. Utilities Policy : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. , edited by G. Hodge & Greve, C. Cheltenham, UK: No. 642. ISBN: 11-1400377-000912-01. 642. ISBN: No. Korea’s Green Growth based on OECD Green Growth Indicators. Public-Private Partnerships: Theory and Practice in International . New York: Routledge. York: . New The Challenge of Public-Private Partnerships: Learning from Privatization and Public-Private Partnerships Policy Research for Urban Forest Management and Operation New York: Routledge. pp. 165-86. Routledge. York: New Edward Elgar. pp. 190-206. Elgar. Edward Official Suspect, Embraced in Daily Practice. In Profit. Profit. In edited by G. Hodge & Greve, C. Cheltenham, UK: Edward Elgar. pp. 207-30. Elgar. UK: Edward C. Cheltenham, & Greve, by G. Hodge edited Multiple Meanings. American Behavioral Scientist, 43(1), 35-51. Scientist, Behavioral American Meanings. Multiple (2011). Affairs. Land, Transport, and Maritime Theory and Practice in International Perspective International Experience Perspective Challenge of Public-Private Partnerships: Learning from International Experience Research paper series Forest Park Conservancy (2018). http://seoulforest.or.kr/13849 Conservancy Park Forest Statistics Korea (2012). (2012). Korea Statistics Teisman, G. & Klijn, E-H. (2001). Public-Private Partnerships in the European Union: Shaoul, J. (2005). The Private Finance Initiative or the Public Funding of Private Savas, E. S. (2000). Savas, Osborne, S. (2001). Pollitt, M. (2005). Learning from the UK Private Finance Initiative Experience. In Ministry of Environment (2010). Metropolitan Biotope Map. Biotope Metropolitan (2010). Ministry of Environment Institute National of Forest Science (2016). Cases of citizen-participating urban forest I, Linder, Linder, S. (1999). Coming to with Terms the Public-Private Partnership: A Grammar of PPPs? R.Marques, not regulate C. (2017). Why Korean Korean Institute of Landscape Architecture and National Institute of Forest Science Seoul Review, 4(1), . Cambridge, MA: , 62(2), 197-205. Public Management . NY: Basic Books. Public-Private Policy Partnerships Public Administration Review The Politics of Regulation 593-616. MIT Press. and Managing Risks in Port Development. Governance Scheme? Scheme? Governance Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 88 Wilson, J. Q. (1980). Van Van Ham, H. & Koppenjan, J. (2001). Building Public-Private Partnerships: Assessing Vaillancourt Vaillancourt Rosenau, P. (2000). Teisman, G. & Teisman, Klijn, E-H. (2002). Partnership Governmental Arrangements: Rhetoric or
Chapter 4 - Building an Urban Forest through Public-Private-Partnerships CHAPTER 5
From Smart to Smarter with Citizen Participation:
Lessons from Songdo U-City Project
KOREA INSTITUTE OF PUBLIC ADMINISTRATION · University of Texas at Dallas of Texas · University , South Korea as an example to Dohyeong Kim Songdo U-City Project Songdo This case uses the “U-City” project in Over Over the past 15 years, the South Korean government has tried to adopt new Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chapter 5 Chapter 90 engagement engagement with the aim of building a smart city program in South Korea, but their are still unknown. feasibility and efficacy participation is in its infancy. Various ideas have been proposed to construct an open innovation platform that would take advantage of the digital transformation in citizen and tools to make cities greener, healthier, and more attractive to businesses, the discussion of whether smart cities can facilitate citizen engagement and community transformation and innovation, but the program seems to be having a hard time getting time getting a hard be having seems to but the program and innovation, transformation off the While the smart ground. hasto aimed harness city technology digital movement administration, administration, and billions of public dollars have been invested in national and regional smart city projects in South In Korea. fact, past administrations in South Korea also the to trend ofembrace attempted evolving have smart cities in response to digital governance governance (Mohanty, Choppali & Kougianos, 2016). Recently, the concept of the “smart city” was chosen as one of eight innovation growth engines by the Moon human-centric human-centric urban development is the smart city national project, which includes smart transportation, smart energy, smart buildings, smart hospitals, and smart technologies, technologies, such as big data and artificial intelligence, to cope with various public policy issues. One of the initiatives that has been pushed to encourage sustainable, Introduction Lessons from Lessons from From Smart to Smarter Participation: with Citizen
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 to 91 IBD Songdo Songdo . The from the viewpoint Seoul Songdo : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered , Korea: History of Shift or Failure of Shift History , Korea: Vol. 4 : Vol. . To . facilitate class To discussion, this case also highlights Songdo , a relatively new town built in 2002 from the ground up, Busan and Songdo International Business District (IBD) was built on 1,500 acres of Sejong was established as part of a vision to create a transnational space, the Songdo During recent decades, South Korea has been attempting to implement smart Songdo schools using state-of-the-art technology (Kshetri, Alcantara & Park, 2014b). & Park, Alcantara (Kshetri, using state-of-the-art technology schools Company Company (POSCO), and Morgan Stanley Real Estate. Its plan was devised according to the Leadership in Energy and Environmental Design - Neighborhood Development (LEED-ND) principles and developed for a synergistic combination of uses. In this newly built city, CISCO installed a network that connected residences, offices, and which which was meant to house 75,000 inhabitants at an original estimated cost of $35 billion. The land along Incheon’s waterfront in South Korea, 65 km from aimed to become a business hub and embraced the principles of sustainable design and technology. The main developers were Gale International, Pohang Iron and Steel city projects extensively (Oh & Larson, 2019). The first andlargest smart city initiative in Korea focused on engaging citizens in the smart processes. engaging and implementation city design in The U-City Project how policymakers how should policymakers handle the and challenges barriers experienced by avoid repeating their failures at the pilot sites of upcoming smart city projects in South Korea, such as some success stories from other countries that have utilized various measures for of citizen participation. This case study should provide students with an opportunity to discuss whether citizen participation and smart city efforts can be a winning combination in terms of enabling future cities not only to become smarter, but also to become more open to larger numbers and types of people and engage them more in the process of innovative city development. It will also enable students to discuss explore explore how such a project has been developed and what it has focused on during its planning, design, and development, implementation. This case provides an overview of the strengths and weaknesses of the smart city project in
Songdo . . Songdo was that it was not initiated as a it was not initiated was that U-City project is summarized in Songdo project. It is making an investment of It is making an investment project. Convensia Center was completed. Center was Convensia Songdo . , Korea Songdo Songdo Songdo Songdo Songdo Convensia Center qualified for Leadership in Energy and in Energy Leadership Center qualified for Convensia was selected as the headquarters selected was of the UN of the secretariat residents. 60,377 with 927 foreign population was ’s is estimated to be about half finished. Songdo The first phase of the project opened. There were about 8,000 residents about 8,000 residents were There opened. The first phase of the project from and some businesses operating The personal information protection bill revised previous laws enacted in laws previous bill revised protection The personal information 1999, 2001, and 2008. Climate Fund. Green US$ 1 slightly over US$ 24 billion of which crossed investment Total investment. foreign billion was opened its office in Bank Group The World 2020. completion date is expected 50% done. New over was The project The construction of the completed. was Park Central The 100-acre Cisco Systems joined the US$ 47 million to wire with signed MOUs the IFEZ Authority Festival, & After the Incheon Fair firms such as Boeing, Samsung, TESCO and McCaffery foreign several projects. development for The Design (LEED). It is the first LEED-certifiedEnvironmental convention Asia. in facility After opening the airport in Incheon, the South Korean government government After opening the airport in Incheon, the South Korean a city (aerotropolis) developing Gale International about approached to the airport. The multinationals due to its proximity that would attract to northeast gateway Asia. into the world’s to turn the region goal was Korea’s led by loan of US$ 2.7 billion, which was a syndicated Received Shinhan Bank. Songdo Songdo Songdo 2009 2008 2001 2010 2011 2009 Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean May 2014 August 2009 August August 2009 August October 2012 October 2012 November 2007 November November 2012 November December 2013 December 2013 Table 1. Timeline of the U-City Project in 1. Timeline of the U-City Project Table Table 1. Table 92 *Source: Kshetri, Alcantara & Park (2014a) & Park Alcantara *Source: Kshetri, such as such housing shortages. The timeline of the this venture unique. Another unusual aspect of unique. Another unusual this venture response to the ofthreat nor overcrowding, was it designed to address social problems, competitors, competitors, such as Singapore and Hong Kong. Unlike other IFEZs in Korea, was entirely privately funded and majority-owned by foreign companies, which made Incheon Incheon Free Economic Zone (IFEZ), which was envisioned as a new hub for the northeast Asian regional economy to enable it to compete with other established
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4
93 Songdo ’s shift, its demographic Songdo : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. was as a Ubiquitous-Citylarge-scale (U-City), but . However, due to the high cost of living there, Songdo Songdo due to a lack of service-industry workers and insufficient public Songdo was then subjected to “greening” tactics and transformed into a “U-Eco- was a shift in its target population. Population represents a significant variable Another attempt to enhance domestic residential numbers was coordinated Another significant change that impacted the existing smart city project in The original vision for Songdo in the education sector by constructing new international schools and doemstic and international university campuses (Sonn, Shin & 2017). Park, this However, policy failed resources resources to provide fundamental amenities and services. The affordability of new urban development projects is a critical issue, as mentioned in a critique stating that in an eco-city’smust be embedded (Rapoport, housing framework affordable 2014). local local investors, domestic developers seized the opportunity to become a part of the new master plan for was fast becoming a city mostly built for the wealthiest portion of Korean society. The services that wealthy people in Korea had come to expect became challenging to deliver in target target had moved from an overseas market to a domestic one. With a need to entice in the structure of urban systems due to its high level of interconnectivity. While the population projections appeared unchanged after governments governments that were eager to findlow-carbon solutions. The existing U-City model for City.” the direction of the Ubiquitous Information and Communication (ICT’s) Technology’s the Summit G8 in At in Extended 2008, Lee Japan President declared strategies. growth that Korea would voluntarily commit to a greenhouse gas emissions reduction, which forced the existing “U” model to be adapted to satisfy the requests of foreign agenda for “Green Growth.” The global financial crisis stopped some building processes processes financialcrisis stopped some building The global Growth.” “Green for agenda and severely reduced the level of anticipated foreign investment. These circumstances forced the IFEZ and its developers to modify their original plan and focus on domestic markets. In the same year, President Lee Myung Bak’s new government made significant changes to the previous administrative policies, which directly impacted a series of international events around 2008, such as the global financial crisis and the a new political reflect to its vision changed Conference, Change Climate Nations United Songdo , bike lanes have Songdo Monday through Thursday Songdo has gained a notorious sort of fame and project began in August 2009. However, Songdo originally offered extensive underground parking Songdo Songdo became more like a wealthy suburb of Incheon, mostly populated Songdo The first phase of the Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 94 (Townsend, 2013). (Townsend, has been frequently cited and in media the reportsliterature as an example of a failure, mostly due to the low occupancy rate of offices and dull neighborhood environments a neoliberal urban development model according to which the construction of a smart and sectors, in leading professionals investment, attracting for useful became city image 2014). Unfortunately, (Vanolo, workers the “smart” label merely indicated the simple adoption of some modern ICTs without full consideration of the real values of “smartness.” It is evident that the city followed by by locals (Angelidou, 2014). This project suffered from all kinds of traditional urban development problems, which was not surprising, since some people remarked that resistance, resistance, and the failure to attract foreign investment (Mansoor & Chandra, 2018). As a result, construction progressed slowly due to a range of complications, including budgetary issues, insufficient governmental support, issues with bureaucracy, stakeholder pedestrians with the increase in road width and the number of and the number width lanes. in road with the increase pedestrians increased increased automobile traffic. to make the city feel more pedestrian-friendly, but the city became less friendly to became became obvious. by Traveling car became the preferred mode of transportation, which increased traffic, as well as travel times. On the streets of been downsized and absorbed into green spaces to widen the roads to accommodate accustomed accustomed to enjoying. Moreover, since the vision of a city predominately comprised of international residents diminished, the inadequacy of the transportation system many many of them chose to commute daily or stay in during the academic year due to the lack of amenities that the students were typically to to encourage social diversity, as it only attracted students from wealthier backgrounds and skewed the socio-economic status of the residents. Despite an influx of students,
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 95 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Songdo The six main components of a smart city identified by the Centre of Regional Traditional Traditional innovation processes were based on the belief that innovation related related to social class, culture, education, and disabilities. Such factors play a role in resolving problems associated with urban agglomerations based on interaction and cooperation among relevant stakeholders (Baron, 2012). Smart governance can be insight and desire rather than a blind belief that the ICT can automatically create a smart city (Hollands, 2008). The “smart people” factor includes various aspects, including social plurality, flexibility, creativity, open-mindedness, and participation in public life, while the “smart living” component requires the removal of barriers Science at the Vienna University of Technology include smart include smart economy, mobility, of Technology the Vienna University Science at smart environment, smart people, smart living, and smart governance (Albino, Berardi & Dangelico, 2015). While the first three components emphasize hardware or physical capital, the last three are related to human capital. Smarter cities spring from human own own needs and problems. By using this approach, companies and organizations can actual user meet to needs. able and better products services are that innovative develop In fact, ICT applications have played an important role as a driver for streamlined user participation al., 2012). and co-production et (Schuurman that that the more often innovations are generated in a closed environment, the less successful they are (Katilla & Ahuja, 2002). The “open innovation” paradigm holds that users can make a relevant contribution to the development process and, therefore, should be actively included in the design and development of ICT solutions to their to to fit better into the strategic plans of the organization(Schuurman, Baccarne, Marez & Mechant, 2012). Some also argue that the “innovative” planning process reduces opportunities for resident participation (Sonn et al., 2017). However, this classic approach has been found to have certain limitations. Some researchers have suggested can can best be fostered using a top-down approach. According to the supporters of this approach, the end-users have little or no knowledge about the technical possibilities or their impacts. This approach gives an organization much more control over the products and propertyintellectual services, and of solutions can be ICT-based designed Can a Smart Citizen City Smarter Participation? Become Through from Lessons . , used Seoul U-City Songdo Songdo Songdo , an unintended demographic became Songdo was repeating the same trajectory as past city developments as past city developments the same trajectory repeating was Songdo One of the main problems found in the administration of the Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 96 only only a few effortshave focused on incorporating social-structural changes within the 2016). & Chelleri, (Schuetze of city development framework projects. projects. However, this model has been largely criticized for its top-down planning approach and lack of public participation as well as its social implications. In The governance model for a series of urban renewal mega-projects in Barcelona, for example, aimed to utilize private-public partnerships to execute large infrastructure The The closed “top-down” approach did not allow for diverse “bottom-up” forces via citizen participation (Mullins, 2017). Of course, this problem is not unique to rather than becoming rather a “city of the future.” Although the U-City model in innovative to technology efficiencyachieve andenvironmentaltackle issues, it was less sustainable in its ability to cope with social complexity and citizens’ diverse concerns. citizens’ role and their interactions with city developers, technology vendors, and the IFEZ. In this sense, the dominant population due to unforeseen external events. This demographic not only disrupted the intended vision of the city but also revealed the importance of the Intangible factors are often overlooked, such as social and cultural uses of space, as during social and cultural such often overlooked, are factors Intangible the development of a new town. In project project was the inability to handle the complex nature of a such society (Mullins, 2017). while a more intense community-participation approach relates to the concept of to “urban relates community-participation intense approach a more while 2016). & Chelleri, (Schuetze regeneration” regeneration” regeneration” are often distinguished from each other in both policies and academic literature because a less participative approach is associated with “urban renewal,” only a city’s network infrastructure, which facilitates political efficiency and economic development, but also the social inclusion of various urban residents and types of social capital in urban development. The concepts “urban renewal” and “urban governance governance and planning can often reduce opportunities for resident participation (Sonn et al., 2017). The most common characteristics of smart governance include not e-governance, e-governance, is fundamental in bringing smart city initiatives to citizens and keeping the decision and implementation process transparent and citizen-driven, “innovative” achieved achieved in circumstances in which various stakeholders are engaged in decision- making and providing public services. Although ICT-mediated governance, also called
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 97 as well as Songdo : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. case revealed how the whole urban system became vulnerable Songdo model. The as excessive focus on the obscured technology dominant factor Empowering Empowering all citizens to participate in urban development projects using The The Songdo ICT ICT services, which empowers all classes of citizens to participate via apps or the Internet. Smart participation also helps the government to improve its services and to better understand citizens. Recently, some countries have reported success stories of “e-participation.” Smart participation not only puts people at the center of decision- making processes but also helps to incorporate on-the-ground needs and the wishes of citizens into the development process. Smart participation helps to reduce the digital, or information, divide by improving citizens’ access to better networks and an inclusive, open, and responsive process is crucial to making a smart city work well. There are “smart” tools available for achieving a better, citizen-centered mode of governance for a smart city, which have been termed “smart participation,” or Smart Participation for a Smart City: Success Stories from the Globe Around Is it really “smart” to widen social disparities and broaden the gap between “smart experts” and “dumb citizens,” or is it truly intuitive to attach the label “smart” to a city with leadership that listens to citizens’ concerns and incorporates them into its plans to of all groups residents? for living environment a favorable create the attention required to address the social dimensions of the city and neglected their genuine impact on the resident population. Finally, the problem lay in the definition of the word “smart,” so was which thinly stretched that it lost any real significance. Surely, we all want a “smarter city,” but in a sense that fits ourown ideas (Benedikt, 2016). models, models, which were intended for overseas markets. The shift towards a city comprised mostly of wealthy Koreans also revealed a socio-spatial disparity in inequalities in access to basic services in the urban system. This case also helps us to the shortcomings highlighted of factors of citizen-related the ignorance how understand the when when only one of the variables, such as citizen population, diverged from the original plan. This deviation developed in opposition to the developers’ and the IFEZ’s original in Boston, MA Crowdsourcing and Crowdfunding: Despite the existence of Re-Imagining numerous digital tools that can be used to collect Community Spaces Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 98 platform, as shown in Figure 1. in Figure as shown platform, of a project, construct a budget for it, and use the platform to launch a fundraising campaign. As of September 2019, four projects were underway via Boston’s ioby with crowdfunding via a partnership between the city and the civic crowdfunding ioby (2019). platform Once a submits resident an idea a for creating third-space project, representatives follow up with one-on-one coaching on how to determine the scope and and green spaces more inviting, functional, user-friendly, and fun. Moreover, the city has conducted another experiment that is broader in scope and mixes crowdsourcing communities communities via crowdsourcing experiments. The Public Space Invitational (2019) is a program that seeks ideas from residents on how to make their community gardens crowdsourcing crowdsourcing may work. As part of the “third spaces” initiative by the Mayor’s Office of New Urban Mechanics, the city asked residents what was missing in their engagement. engagement. According to the 2018 American Mayors Survey, only 26 percent of US cities use crowdsourcing. Boston, MA provides a good example of how and when ideas ideas from residents, knowing when and how to use those tools is not as simple as it sounds. This may be why crowdsourcing remains underutilized for increasing citizen Africa, Europe, and Singapore. Europe, Africa, developing developing smart cities that have supposedly responded well to citizens’ needs and input using information technology. Here are some examples from Boston (US), South
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 99 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Cape Town, South Africa, has a long history of segregation, but it has been “Your City Idea”: Smart Voting Boxes in Cape Town, South Africa ballot ballot box called Your City Idea. This program has not only encouraged active public engagement in social and urban issues in the public sphere but also facilitated creative urban design. The large, bright-yellow boxes have been installed in several public attempting attempting to collect citizens’ opinions and ideas and enable their participation in the city-planning process. The South African NGO Future Cape Town developed an innovative idea to allow citizens to vote and give input on certain issues using a *Source: ioby (2019) *Source: ioby Figure 1. List of Projects Underway via Boston’s Ioby Platform Ioby via Boston’s Underway of Projects 1. List Figure The two questions they focused have on been, have “In your future Cape Town, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 100 like like the Your City Idea ballot box may help to enable quick and uncomplicated public participation by letting the public vote on its favorite ideas in an accessible and high level of participation (up to 160 comments per day) and received positive feedback, feedback, positive and received of participation 160 comments per day) high level (up to confirming that people are interested in engaging with urban issues in the city. Tools we we live in look like…?”, which has encouraged citizens to rethink their city in terms of service delivery, access, and sustainability. This Your City Idea project has enjoyed a the foreshore freeway looks like…?” and “In your future Cape the Town, communities *Source: Our Future Cities NPO (2019) *Source: Our Future Figure 2. “Your City Idea” Box in Cape Town City Idea” Box 2. “Your Figure them to cast their votes. cast them to spaces, such as a public square, a bus station, a busy street, and several indoor spaces (see Figure 2), which has attracted many onlookers and pedestrians and encouraged
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4
and 101 France, Germany, in “Civocracy” : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Citizens: and Governments Local The connection via this online platform could go beyond online engagement by Tools Tools for electronic participation could be used not only to simply collect Linking citizens to debate and provide an avenue to give feedback. Civocracy was originally implemented in a handful of cities in Germany, the Netherlands, and France, but as of September 2019, a total of 9 cities had participated in a Civocracy partnership, Guyana. and France, Germany, including some in the Netherlands, informing informing the community of all the ways it could become actively in involved political processes, such as attending a town hall meeting or signing up to become a volunteer. Civocracy can serve as a tool to overcome the challenges of modern governance by creating a collaborative online platform where governments can raise issues for their a a reliable online platform (Civocracy, 2019), which enables effective discussion and shared decision-making between stakeholders. It bridges the divide between citizens, problems. solve collectively to and governments businesses, organizations, ideas ideas but also to facilitate collaborative discussion and decision-making between a government and its citizens via a digital link for improved communication called “Civocracy.” This approach aims to involve citizens in political and social issues using innovation. inclusive inclusive manner. This could serve as a new and exciting model for engagement with the public, demonstrating that effortsto encourage publicparticipation must extend beyond meeting formal legal requirements and should include creative thinking and the Netherlands The EU’s Open Data Project: “Smarticipate”The “Smarticipate” idea was born out of an innovation project funded under the Citizens can access the platform from either the website or smartphone app Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 102 information, information, such as legal frameworks and relevant policies, not only allowing them Euro’s Euro’s Horizon 2020 and initiative, it into an evolved online focused platform on urban planning using editable maps. The platform presents citizens with useful planning members of local communities have traditionally interacted. traditionally have communities members of local Civocracy Civocracy aims to foster civic engagement and public participation and encourage a sense of community, collaboration, and transparency by revolutionizing the way including including parties, citizens, and organizations. Users can vote on and discuss issues, about and information events share and petitions, see what is happening in other cities. (see Figure 3). Not only the organization or local government can initiate discussions – anybody can make suggestions within the platform. As soon as 50 citizens vote for the same idea or suggestion, a discussion is opened to members of the general public, *Source: Smart City Embassy (2019) Figure 3. Graphical Summary of Civocracy (www.civocracy.org) Summary of Civocracy 3. Graphical Figure
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 103 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Initially, Rome (Italy), Hamburg (Germany), and the Royal Borough of As of September 2019, many local governments from all regions of Europe were using the platform in their city-planning, enriching urban planning and facilitating the of citizens. involvement Kensington and Kensington Chelsea, London (United Kingdom) took part in “Smarticipate” as pilot cities, with their own areas of focus, such as finding locations for new playgrounds or the planting of new trees (Hamburg), experimenting with participatory budgeting (London), and involving citizens in finding new uses for abandoned spaces (Rome). *Source: EU Smart (2017) System Cities Information Figure 4. Bi-directional Real-time Communication via the Smarticipate Engine via the Smarticipate Communication Real-time 4. Bi-directional Figure ideas ideas from their residents, while residents can play an active role in shaping their surroundings and adding to open data. The most critical role of the “Smarticipate” engine is to ensure that citizens have access to the same information as their local governments. This open data project empowers citizens to provide real-time input on 4). (see Figure applications via several feedback real-time receive public services and to to contribute their ideas, but providing them with better insight into the planning and decision-making processes. The platform has facilitated bi-directional communication between local governments and residents: local governments can gain valuable Hub Health The Portrait: Nation ller, “Singapore ller, has “Singapore a taken ‘by the ü Smart a Within Campaign Health Participatory Singapore Singapore adopted the movement towards smart cities very early and has Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean A 104 Several Several tools have been developed and widely used to allow citizens to take sensible precautions to stay safe and healthy with the aim of avoiding healthcare problems that be prevented. perhaps could environment, environment, business productivity, health and support for the aging, and public sector services), many of the health-related solutions are already well past the trial phase. in addition to connecting people to projects and opportunities. Among the five key areas of Singapore’s holistic plan to become smarter (transportation, home and the people, people, for the people’ approach to becoming a smart city.” The city’s Smart Nation portal calls for new ideas and initiatives from the people to take the country forward city’s city’s people to work together to generate smart solutions. According to the co- founder of Bee Smart City in Thomas Singapore, M ranked ranked as one of the world's smartest cities. It is particularly well-known for its fixed and cellular broadband services, city apps, and strong open data policy. The Smart Nation Sensor Platform has provided access to open data, focusing on enabling the Portal in Singapore
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 105 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. For For instance, Singapore’s healthcare services are supported by a web portal user’s diet, calculating calories and subtracting them as the daily step count rises. The National Steps Challenge Season 3 in 2018 was well-received, with almost 700,000 participants. diagnostics easier and more efficient and convenient. Theprogram hasreached almost Steps is the National 2018. Another example in October since its launch 400,000 people Challenge, a set up program by the Health Promotion Board of Singapore to people get to engage in more regular physical activity (see Figure 5). A pedometer connected to a mobile app tracks participants’ step records, which are combined with a record of the healthcare healthcare information and services, offeringeach person accessto theirown medical records and test results and reminding them of future healthcare appointments and medication needs. Coupled with a downloadable app, access to personal information can be granted via the portal to certain healthcare providers, making data-sharing and known known as the Health Hub Porta (Ministry of Health Singapore, 2019), which provides *Source: Ministry of Health Singapore (2019) Singapore *Source: Ministry of Health Figure 5. Poster Advertising the National Steps Challenge in Singapore (healthhub.sg) in Singapore Challenge Steps the National Advertising 5. Poster Figure , South Korea. Its “U-City” project Songdo Teaching Note Teaching smart city project as well as several viewpoints on the roles of Songdo project has failed to engage citizens and incorporate social dimensions The complementary materials and teaching resources provided in this teaching This This case study will help students learn about the factors that can contribute Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Songdo 106 The teaching note also provides theoretical arguments for the development of smart note, note, such as positioning, learning objectives, discussion questions, teaching plans, video resources, and take-home lessons, can further in-class discussion and learning. anticipated negative impacts that are highly complex and unprecedented. highly complex are impacts that negative anticipated also more open to larger numbers and types of people. It will also enable students to overcome to collaborate should and civic leaders developers, governments, discuss how aspects of such efforts. Thiscase studyshould provide students with an opportunity to discuss whether smart city efforts and citizen participation can be a winning combination in terms of enabling future cities not only to become “smarter” but a a comprehensive picture of all outstanding issues around smart city projects and participatory governance in South Korea, including both the positive and negative the surrounding various stakeholder communities and resident groups. It also provides history history of the participatory governance in ICT-based urban development. This case illustrates how activities throughout the process of implementing this unprecedented type of urban development. This case can be used to help students understand the background and based smart city in response to digital transformation and innovation, including components of smart transportation, smart energy, smart buildings, smart hospitals, and smart governance, but it has been criticized for lacking openness and participatory participation based on recent experiences in has pushed for the development of a sustainable, human-centric, and technology- to to the success or failure of ICT-based urban development and the roles of citizen Case Overview
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 107 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. , including the political, social, economic, and technological Songdo opportunities and challenges; process; throughout the entire development should adhere city developers development development in Discussing the list of virtues, criteria, or guidelines to which the government and smart Identifying Identifying the factors that contributed to the successes and failures of the smart city • • • Understanding the and motivation intention behind the Korean government’s continuous to build smartcities; attempts • This case can be used to prompt discussions on multiple topics, such as: such topics, on multiple discussions prompt be used to can This case This This case study could be used in various undergraduate- and graduate-level Learning Objectives Learning courses in public administration and management, urban policy and planning, and governance and civic participation, particularly for students who have a particular urban development. in smart interest cities and ICT-based Positioning based urban development contexts, students will be expected to devise a specific smart city to strategy their achieve original goals innovative while engaging all relevant in co-creating visions and demands. the city based on their own stakeholders in accomplishing the various objectives of a smart city project while coordinating conflicting interests among stakeholders. Students can then discuss whether to encourage and expand the participatory governance approach in the planning and implementation processes for developing a smart city in the future. After sufficient discussion of the applicability of participatory governance in various technology- cities cities and participatory governance and helps instructors guide students in analyzing practical examples of their uses in various settings. Through such an analysis, students can evaluate whether a top-down or bottom-up approach would perform better U-City project that Songdo ’s U-City project? Songdo developers developers should maintain throughout the entire development process? What kinds of criteria or guidelines should their decisions be based on? Why or why not? purposes? What about in your country or region? upcoming smart city projects in South Korea should avoid repeating? What about in your country or region? discussions and citizen participatory processes for ICT-based urban development; participatorydiscussions and citizen for ICT-based processes their applicability in South Korea. been used in other countries and discussing in South Korea and other countries could adopt to minimize the challenges and barriers to integrating the input of citizens, particularly uneducated and underserved populations, into such projects; designing a “smart city” as an “open” city promoting citizen participation from the to full-scale implementation; ground-up What were the key factors that caused the failure of that caused the failure What were the key factors Listing any ethical, cultural, economic, Listing any ethical, to be considered in stakeholder or political concerns cultural, and the smartlimitations characteristics of participationvarious tools that have Evaluating Proposing a specific policy strategy that the policymakers of upcoming smart city projectsProposing a specific policy strategy Determining the roles and responsibilities of the government and the developers in he developers in designing What are the roles and responsibilities of the government and the developers Should Should smart city development be further expanded in South Korea? If so, for what What do you think are the most important standards that the government and smart city Which Which was the most critical barrier and challenge in the Were the Korean government’s continuous attempts to build smart cities appropriate? • To To enable a more effective classroom discussion, students should read the • • • • • Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean • • • • • • • 108 questions. The full list of references should be made available to students as questions. supporting The full list be should ofmade available references necessary. them whenever to refer they can so that materials case case thoroughly before class and use the information to deliberate on the following Class Preparation Assignments and Discussion Questions and Discussion Assignments Preparation Class
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 109 in South Songdo : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. or why not? would be most easily and effectively implemented in a smart city development in South Korea, considering the difference in contexts? development and implementation phases of a smart and implementation phases of a city? development the difficulties with involving citizens’ of smart despite cities is inevitable the development input in such projects, particularly that of uneducated and underserved populations? Why a “smart city” as an “open” city promoting citizen participation from the ground-up to full-scale implementation? Among the various success stories from other countries presented in this case, which Considering recent technological breakthroughs and advancements, do you agree that How can the government and policymakers facilitate citizen participation in the U-City project. The following video clips can be played for students in class to This is a rough cut of a documentary about the new city of https://www.youtube.com/watch?v=3ZKtr7vU5cI Introduction and Overview (20 The minutes)instructor introduces the background and learning objectives for the case An instructor can adopt this 90-minute teaching plan, including various group • • • • • • Korea. Korea. This is a new city that was built from scratch on land that was reclaimed from provide provide them with a better understanding of the background and various viewpoints the case: regarding study, focusing on outstanding debates over the accomplishments and failures of the discussions. This plan is designed for upper-level undergraduate or graduate students who are interested in public policy, city planning, and governance. The time allocation, along with the teaching materials suggested below, could be modified based on the and student level. structure class Suggested Teaching Plan Teaching Suggested Songdo , what went wrong with the project, and his Songdo , which is being built from the ground-up by some of the world's best planners, Each Each group takes turns presenting its ideas and opinions to the class. This Small groups of 4-5 students are formed. Each group reviews the case materials https://www.youtube.com/watch?v=dWAURaLvzHA https://www.youtube.com/watch?v=dWAURaLvzHA Stan Gale, chairman and chief executive officer at Gale International, discusses This This video provides an introduction to this new smart and connected city, https://www.youtube.com/watch?v=fHO_zkHPTaI Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Classroom Discussion (35 minutes) Small-Group Case Review and Discussion (20 minutes) 110 vendors, national and vendors, and city existinggovernments, and future citizens. The instructor if necessary. note in the teaching materials additional provide may session will help the entire class understand conflicting perspectives from thevarious stakeholders in smart city development, including private city developers, technology session provides students with the opportunity to observe how others view the case differentlyregarding therole of citizen participation in smart citydevelopment. This reach a consensus in preparation for a class discussion. a class for in preparation a consensus reach interests. interests. Students take notes on their thoughts and ideas while reviewing the case. Then, the students in each group share their ideas concerning those questions and and chooses 2-3 discussion questions from among those listed based on the students’ Korea’s Korea’s smart city project, its resolution. for expectations architects, developers, and technology companies. and technology developers, architects, the sea and is essentially in the vanguard of the new city-building movement that has and Africa. Asia across swept Songdo
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 111 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered , could adopt to minimize the and challenges Vol. 4 : Vol. Busan . and Sejong Songdo Before Before closing the session, instructors are encouraged to underscore and Based on the classroom discussions, the class is encouraged to reach some Wrap-Up (15 minutes) desirable outcomes. desirable accomplishing accomplishing the original vision of ICT-based urban development and reducing any negative effects associated with unexpected political and economic events during the long process of development. Students should acknowledge the importance of engaging all stakeholders, including citizens, in making complex urban policy and planning decisions and in coordinating conflicting interests to achieve mutually reinforce reinforce a few key themes derived from the small group analysis of the case as take- home lessons. Students should be reminded of the role of citizen participation in barriers experienced by Lessons Take-Home agreement agreement on outstanding issues. Students are encouraged to discuss how citizen smart into efforts city participationto become “smarter” not only be fully integrated can but also more open to larger numbers and types of people. Students could even smartof upcoming the policymakers that city projects strategy policy a specific propose in South such Korea, as City: Analysis of Communications & , 41, 53-59. Digiworld Economic , 22(1), 3-21. Journal of Economics & , Retrieved from https:// Cities Academy of Management (3), 303-320. Smarticipate: Grab your potential to open (2), 17-36. Journal of Urban Technology , Retrieved from https://www.ioby.org/boston from , Retrieved , Retrieved from https://smartcities-infosystem.eu/newsroom/ , 32-46. (4), 113. Build a better city: how civocracy works (4), 113-128. (8), 1183-1194. Journal of Social Science, 12 ioby in Boston Performance, and Initiatives. and Initiatives. Performance, Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Adoption Adoption and Acceptance: The Case of New Songdo. Adoption Adoption and Acceptance: the Case of New Songdo. of search behavior and new product introduction. blog/smarticipate-grab-your-potential-open-smart-city www.civocracy.org Graduate Graduate Strategies, 96 Journal, 96 Journal, 45 Urban Trends, Culture, Theory, Policy, Action, 12 up the smart city Management, 10 112 Kshetri, Kshetri, N., Alcantara, L., & Park, Y. (2014b). Development of a Smart City and its Kshetri, Kshetri, N., Alcantara, L., & Park, Y. (2014a). Development of a Smart City and its Katilla, Katilla, R., & Ahuja, G. (2002). Something old, something new: a longitudinal study ioby (2019). ioby Hollands, Hollands, R. G. (2008). Will the Real Smart City Please Stand Up? EU Smart Cities Information System (2017). Civocracy Civocracy (2019). Benedikt, O. (2016). The Valuable Citizens of Smart Cities: The Case of Songdo City. Baron, Baron, M. (2012). Do we need smart cities for resilience? Angelidou, M. (2014). Smart city policies: a spatial approach. M. (2014). Smart approach. a spatial Angelidou, policies: city Albino, V., U., Berardi, & R.Dangelico, M. (2015). Smart Cities: Definitions, Dimensions, References
Chapter 5 - From Smart to Smarter with Citizen Participation KIPA Case Study Series 4 113 , Retrieved , Retrieved IEEE Consumer , 8(33), 1-14. , 2(2), 4-12. , Retrieved from https:// , Retrieved from http:// Sustainability in Korea: Lessons for a Sustainable
(2), 137-149. Urban Planning HealthHub : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Your City Idea Journal of Theoretical and Applied Electronic This Year's Challenge: Community Gardens (3), 60-70. (3), 49-62. Digital Development Geography Compass, 8 proceedings of the International Conference for E-Democracy and Open (pp. 149-158). Yokohama, Japan: Edition Donau-Universitat Krems. Edition Donau-Universitat Japan: (pp. 149-158). Yokohama, (2nd Edition ed.). London: Routledge. (2nd Edition ed.). London: Cities: Investigating Crowdsourcing for Generating and Selecting Ideas for ICT Innovation in a City Context. Present and Future. and Future. Present Seoul. in Downtown ofReality Urban Regeneration futurecapetown.com/projects/your-city-idea https://space.newurbanmechanics.org from about about smart cities: The Internet of things is the backbone. City Approach. Green on South Korea’s www.healthhub.sg Challenges. Challenges. In World Electronics Magazine, 5 Commerce Research, 7 Government Rapoport, E. (2014). Utopian Visions and Real Estate Dreams: The Eco‐city Past, Oh, Oh, M., & Larson, J. (2019). Our Future Cities NPO (2019). Mullins, Mullins, P. (2017). The Ubiquitous-Eco-City of Songdo: An Urban Systems Perspective Mohanty, Mohanty, S., Choppali, U., & Kougianos, E. (2016). Everything you wanted to know Schuurman, Schuurman, D., Baccarne, B., Marez, L., & Mechant, P. (2012). Smart Ideas for Smart Schuetze, Schuetze, T., & Chelleri, L. (2016). and Urban Sustainability Green-Washing—Fallacy Versus Public Space (2019). Invitational Ministry of Health Singapore (2019). Mansoor, Mansoor, A., & Chandra, K. (2018). Becoming a Smart City: and Best Practical Practices, Failures . Urban , http:// International Songdo International Development Planning Review, Civocracy - Citizen Engagement Smart citis: big data, civic hackers and the quest for a new utopia (5), 883-898. (3), 299-317. New York, NY: WW Norton & Company. WW Norton NY: York, New accumulation accumulation strategies: negotiating discourses of the Business District development. www.smartcityembassy.nl/initiative/civocracy-citizen-engagement/ Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean studies, 51 39 114 Vanolo, Vanolo, A. (2014). Smartmentality: The Smart City as Disciplinary Strategy. Townsend, A. (2013). Townsend, Sonn, J., Shin, H., & Park, S. (2017). A mega urban project and two competing Smart City Embassy (2019).
Chapter 5 - From Smart to Smarter with Citizen Participation CHAPTER 6
Revisiting the Government Project Creating Jobs for the Elderly in South Korea:
The Case of Chuncheon
KOREA INSTITUTE OF PUBLIC ADMINISTRATION Chuncheon California State University Fullerton State University California · Case Study Myungjung “MJ” Kwon Myungjung “MJ” In South Korea, the unemployed elderly population substantially increased Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chapter 6 Chapter 116 She had recently been diagnosed with cancer and required intensive, expensive medical medical expensive intensive, and required been diagnosed with cancer She had recently treatments. He had two daughters who had graduated from college a few years back, faced faced by a baby boomer retiree who was forced to retire at the age of 60 but still needed to support his family. His wife was a housewife who had never worked before. important for low-income older people to find ways to support themselves without relying on government support (Mikelson, 2017). The following is a typical dilemma to to continue doing so; however, they lost the ability to support themselves because there were no jobs for them to do. As life expectancy increased and the ability of the younger generations to support their elderly parents decreased, it became increasingly Korean Korean government for these forced retirees (Kwon, Cho & Song, 2019). Most of these baby boomer retirees were still physically capable of working and were willing 60 years of age) that were set by most employers, driving a substantial number of baby boomers out of the workforce and requiring unconventional support from the during during the late 1990s and early 2000s (Sung, 2015; Economic Korea Research Institute, 2018). This increase was due to the mandatory retirement age limits (approximately Part A Part the Elderly in South Korea: The Case of South Korea: The Case the Elderly in Revisiting the Government Project the Government Revisiting for Creating Jobs
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4
117 Chuncheon (one of the most densely had many elderly citizens Seoul Chuncheon , which is adjacent to it and has a much : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Chuncheon faced the following dilemmas. Despite Despite the increased jobs resulting from the project, however, local In order to assist older Koreans in improving their well-being and economic self- in their improving well-being Koreans to assist In older order Chuncheon to to physically perform the jobs they had found through the project. These accidents workers. the older for death, injury, and even in physical ended sometimes for for the project. The increasing demand for workforce programs caused longer wait- times for project participants and led to in problems eligibility and screening processes, which resulted in the CSSA receiving numerous complaints from applicants. There were also frequent on-the-job accidents resulting from the inability of older workers populated populated cities in the world) to lower cost of living. Due to the influx oflow-income older workers, the Senior Services Agency (CSSA) an high received unprecedentedly number of applicants migration migration of low-income baby boomer retirees from governments governments often faced unexpected challenges in implementing the project. The City of who had retired due to the age limits set by their employers. There had been a huge required required effective collaboration betweenlocal governments, participating individuals, and participating organizations to achieve the expected outcomes (Sin, Byun, Choi, Han & Kim, 2018). According to national statistics, the government had Korean created over 500,000 jobs for the elderly by 2018 through this project (Korea Labor Force 2019). the aged, for Institute Development discretion. discretion. With such discretion, local governments carried out a variety of workforce to programs meet the expected goals of the project, which were mainly to job generate opportunities for the elderly and to help place them in appropriate jobs. While local governments played the primary role in implementing the project, this project also sufficiency, sufficiency, the Korean government launched a project to create jobs for the elderly in 2004 (Sin, Byun, Choi, Han & Kim, 2018). The national and local governments financially supported the project, and local governments implemented it at their but they failed to get well-paying jobs because of the competitive job market. He still get to unable he was so. However, do to and wanted work to continue he could that felt of because his age. a job Senior Services Agency, 2019). Examples Chuncheon Over Over the course of a decade, the CSSA carried out the project to help low- As a result, the CSSA assessed the effectiveness of the projectand identified and Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 118 and learned more slowly than younger workers. The CSSA assessed the details of each complaint. to to determine eligibility for jobs, lack of job opportunities, and on-the-job accidents. change, resisted poorly, performed workers older that also complained Some employers at at an ofaverage two hundred dollars per month, which was very low compared to the cost to ofinconsistencies in the living.process screening related Other were complaints their employers. The most common complaint from older workers was low pay. Compensation varied, depending on the job. While some jobs were compensated at a compensated were jobs most month, per dollars thousand one approximately to up rate of job opportunities for older workers and helping them find employment. However, the agency received an increasing number of complaints from older workers and of such jobs included day care aids, caregivers, security guards, housekeeping assistants, and so on. The project seemed to be successfully increasing the number income older workers find jobs throughworkforce programs. The project placed older workers in a variety of jobs ( Challenges to to improve the effectiveness of the project andto overcome thefollowing challenges during the interviews. identified and older workers were perplexed by the unexpected challenges of implementing the project. The CSSA was required by the city’s elected officials toprovide strategies agency staff, organizations, and individuals who were involved in the project. The results results The in the project. involved were individuals and who staff, organizations, agency did not conform to expectations, and the agency staff, participating organizations, analyzed the challenges the agency faced when implementing it by interviewing the
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4
119 Chuncheon financially supported the Chuncheon : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. covered the other half. With this financialsupport, the city had full Once the city received applications for the jobs supported by the project, it had However, However, due to the rapid increase in the population of unemployed older Both the national government and Chuncheon to determine which of the applicants were eligible for the jobs. In particular, many older older In particular, the jobs. for many eligible of the applicants were which determine to ofThe age was eligibility the the for program. qualifying about age complained workers Inconsistent Eligibility and Screening Processes Screening Eligibility and Inconsistent workers argued that they should receive benefits from their employers – e.g., retirement benefits – theirretirement from e.g.,they that receive employers argued should workers plans and health insurance – as typical workers would. The CSSA needed to resolve these compensation issues to successfully continue with the project’s implementation these challenges. overcome to by coming up with a special strategy workers workers earned approximately two hundred dollars per month or less through the project (Korea Labor Force Development Institute for the aged, 2018; Senior Services Agency, 2019). Older workers were even willing to work more hours to earn more money if across increasing pay the rates board was not possible. Some older workers, workers, the number of participants for the project was substantially higher than expected. The CSSA attempted to meet this need by all means, but the limited budget could not keep up with the increased demand for jobs. A considerable number of the jobs provided low pay and even paid lower than social security. On average, older approval, approval, the CSSA recruited applicants for the jobs and collaborated with prospective organizations where the work would be performed. Accordingly, the agency provided jobs. them in appropriate applicants and placed for programs workforce project. project. The national government provided approximately fifty percent ofthe budget, and discretion to coordinate and implement the project. For instance, the CSSA identified which types of jobs would be offered to older workers and obtained the necessary receiving Upon Welfare. and Health the Ministry of from jobs the identified for approval Fiscal Issues Fiscal For For instance, a sixty-seven-year-old male took a security guard position at an On-the-job accidents occurred often when older workers performed the On On the other hand, during the screening process, older applicants argued that Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 120 more more time for older workers to heal from their injuries and there were higher costs to accidents. the expenses of such cover to their employers they were fit and were willing and able to perform their duties successfully. Such a mismatch in expectations sometimes led to on-the-job accidents. In addition, on-the- job accidents involving older workers resulted in more serious consequences. It took job job performance often did not align. Participating organizations often felt that older workers were not physically fitfor their jobs. On the other hand,older workersfelt that jobs. jobs. The expectations of participating organizations and older workers regarding On-the-Job Accidents situations. situations. Overall, the eligibility and screening process were perceived as inconsistent, applicants. project by many and unfair broad, too they could physically perform the jobs offered through the project. There were also some applicants with disabilities, but no jobs were available for them. The agency was perplexed because there were no administrative guidelines on how to handle such job. job. Workers above the age of 80 complained that they were unfairly being denied jobs because they were considered too old for certain jobs even though they felt that them in performing the jobs successfully. In an general, applicant’s age was considered the primary criterion to determine whether she or he was physically fitfor a specific they were less likely to get a job because it was assumed that old age would hinder at at 60, and they were upset because they were not eligible for the project because they requirement. the age meet to enough not old were younger than 65, their applications would be denied. For instance, seniors at 64 years of 64 years at instance, seniors For be denied. would 65, their applications than younger to find a seniors, job asolder since theyas haddesperate retire were beenforcedtoage 65. Older workers who were younger than 65 argued that 65 was too old and unfairly excluded younger seniors who had been forced to retire at age 60. If applicants were
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 121 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. faced a big dilemma, as the demand for jobs increased and Chuncheon Participating Participating employers argued that there were not many jobs appropriate for Older Older workers found that it was not easy to be matched to a job through the participants were not properly trained for their jobs and did not have the opportunity to receive proper training. Participating organizations expected that seniors would older older workers and the only jobs they could perform were ones requiring simple labor, such as security and housekeeping assistance, and these types of jobs paid too little. The screening process for applicants was also inadequate in that the applications did not properly assess an applicant’s preferences, knowledge, skills, or abilities to match him or her to the most appropriate job. This led to many situations in which high number of on-the-job accidents and started offeringfewer jobsto older workers. The project in decreased. jobs ofthe number available program. program. As mentioned earlier, increasing numbers of older workers applied for the jobs sponsored by the project. The job market became very competitive. The high demand for jobs caused a long wait-time for them. Participating organizations also became increasingly wary of hiring due older workers to poor job performance and the Lack of Job Opportunities Lack job job for her, since she needed to continue to work to support herself after she was discharged from the hospital. On-the-job accidents became a financial burdento the participating and agency employers. and hire a replacement for the security guard position. In another instance, a sixty-six- year-old female was hired as a home health aide. One day, she slipped and fell in the bathroom while she was helping her patient in the shower. She injured her back due to the accident and was hospitalized for a year. Participating organizations and the CSSA covered the expenses related to her back injury and the agency had to find another apartment and he slipped In on complex. the heavily, it an winter, snowed icy sidewalk. This accident resulted in a broken arm. It took several months for it to heal. The company that owned the apartment complex covered his expenses and had to recruit improve the effectiveness of the project and increase job Chuncheon The The CSSA designed specialized workforce training programs for older workers In the summer of 2018, the CSSA implemented three strategies city-wide to Based on the findings of the assessment, the CSSA brainstormed strategies that Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Specialized Workforce Training 122 training training programs, and they helped the participants improve their skills to overcome to to help them develop the skills, knowledge, and abilities required to perform their jobs. Various vocational experts were hired by the CSSA to provide specialized workforce increasing revenue, and creating a database, as follows. a database, and creating revenue, increasing enhance the effectiveness of the projectto provide better job opportunitiesfor older workers. In particular, the strategies were designed with an emphasis on training, Three Strategies Three opportunities and the satisfaction of senior participants and related organizations. ofopportunities senior participants and the satisfaction and related the aforementioned problems. The CSSA expected that implementing such strategies would help of the project. The CSSA professionals, consulted with academic experts,senior welfare and for consulting dealing firmschallenges and the with strategies regarding developed the city could implement to overcome these challenges and enhance the effectiveness Part B Part them reluctant to hire other seniors. other seniors. hire to them reluctant proper proper training, participating organizations found older workers were not a good fitfor the positions they andoffered, they were often dissatisfied with made their which hires, already already have been trained or received training to prepare for their jobs prior to starting them. Withoutabilities. expectations and This in employee led to employer a mismatch
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 123 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Overall, Overall, the comprehensive database played an important role in enhancing The CSSA created a comprehensive database for the program. This In addition, the CSSA encouraged participating organizations to participate in Creating a Database skills they lacked. skills they lacked. contact information for such candidates to facilitate an efficientprocess of recruiting, interviewing, and placing participants in jobs. The database also allowed the more what easily identify to be used it could because training workforce of provision effective sort of qualifications and trainingeach applicant had andwhat sort of knowledge and opportunities. It allowed the agency to more effectively match participants with the most appropriate employment opportunities. The database also provided stakeholders and participants with a means to communicate about project implementation more easily by creating a way to share information. The database provided employers with a streamlined method of identifying qualifiedcandidates for jobs and gathering comprehensive comprehensive database contained information about participants and employment performance performance evaluation and feedback systems, and reporting systems for emergencies and on-the-job accidents. Online training courses that included real-life cases and quizzes were also designed to make it easier for busy employers to participate in the locations. times and by utilizing flexible programs training project project participants. Such training programs were created to assist participating organizations in identifying the potential dilemmas and problems of managing older workers. For instance, these training programs focused on teaching employers about communication skills with older workers, effective monitoring systems, constructive participants about the aspects practical of their jobs, as such norms, manners, rules, the and so on. service etiquette, customer environment, working training programs designed to inform them of administrative guidelines for managing possible possible challenges and problems in performing their jobs. Specialized workforce training from experts helped participants develop the competencies that were needed to succeed in their specific organizational contexts. Additionally, trainers informed The CSSA developed numerous channels to engage key audiences. First, focus Even Even though the CSSA had a great deal of resources, time, and energy, a Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Public Engagement 124 opinions, ideas, events, and so on through virtual venues, such as Twitter, Facebook, and Instagram. out to participating individuals and organizations and obtain their input regarding their experiences with the project. It was very convenient for key audiences to discuss their Second, an annual survey was conducted among participating seniors and employers. The CSSA tried its best to reach out to a diverse group of key audiences through phone, email, and mail surveys. Third, social networking systems were used to reach employers, employers, social workers, and nonprofit organizations to interview about their satisfaction, challenges, problems, preferences, and feedback regarding the project. group group interviews were conducted. The agency selected several participating seniors, agency agency refine itsgoals, identify the community’s needs,determine key audiences, and success. of the project’s an evaluation for plan to to involve various actors in the program. Planning for such public engagement was a crucial step in ensuring its effectiveness. In particular, the planningprocess helped the deficiencies. Theywere clients and partners of the project, so itwas criticalto learn their needs, problems, and preferences regarding its features. The CSSA outlined how considerable number of seniors and employers filed complaints regarding the program’s the program’s regarding complaints filed of number seniors and employers considerable with important information about the unique challenges that older participants faced – issues. e.g., vision and hearing hiring organizations and help them get to know each other better to facilitate successful facilitate to other better know each to them get and help hiring organizations employment. For instance, the comprehensive database provided hiring organizations low-cost low-cost (sometimes free) training providers that could effectively serveolder workers. participantsproject between and relationships desirable The could also agency facilitate communication communication and collaboration among the actors in the project. Through the comprehensive database, the CSSA was able to establish a well-developed network of
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 125 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. A couple of years after these strategies were implemented, A the implemented, were couple CSSA of re-assessed after these years strategies expanded, expanded, the city found financialresources increasingly inadequate, and employers continued to take advantage of the lower costs of hiring seniors. These dilemmas were still unsolved. constituents – e.g., younger workers – were unhappy with the much-expanded project. Seniors took over increasing portions of employment opportunities that would have otherwise been available to younger workers because employers preferred the cheaper senior labor. Participants were also still disappointed with the low pay. As the program the project. The annual survey findings demonstrated that participants’ satisfaction with participants’ that satisfaction demonstrated findings survey The annual the project. the project had significantly increased. In addition, turnover from the firstjobs slightly decreased and employers were more satisfied with participants’ job performance than still complaints were there However, implemented. were the strategies before they were from participants and elected officials. City council members complained that their The Present Status of the Program Status The Present Teaching Note Teaching illustrates the unexpected negative consequences of a project that However, However, recent government reports have taken a skeptical view of the success Because Because of the rapid growth of the senior population and mandatory retirement Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Chuncheon 126 by utilizing several strategies. They include creating new workforce training programs overcome overcome those challenges – financial issues, mismatched jobs, on-the-job accidents, and a lack of opportunities. Currently, the CSSA is attempting to overcome these challenges, enhance the effectiveness of the project, and improve program satisfaction was was designed to help seniors. The case outlines what types of challenges the CSSA, participants, and participating organizations faced and how the CSSA attempted to jobs, jobs, lack of training, low pay, and hostile work environments. The case of CSSA in of employment opportunities for seniors, the turnover rate for first job placements has been high and there have been a high number of complaints about mismatched of the project, pointing out that, even though the project has increased the number been been able to improve their quality of life and economic self-sufficiency by finding project. the through employment created created in 2018, compared to under 30,000 in 2004 (Korea Labor Force Development Institute for the aged, 2019). Therefore, a considerable number of seniors have their their self-sufficiency. Through theproject, the number of employment opportunities for seniors has increased remarkably, and approximately 510,000 jobs for seniors were large large population of low-income seniors who are eager to work (Mikelson, 2017). In order to accommodate the non-traditional needs of the increasing senior population, the Korean government launched a project to create jobs for the elderly to enhance findemployment. Today, people are living longer than before, and life expectancy is anticipated to continue increasing because of advanced health care, thus creating a rules, rules, the Korean government created an innovative social program to help seniors Case Overview
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 127 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. the existing strategies successfully in practice? strategies the existing outcomes? expected implemented and achieving implementation? of participating seniors and organizations? project the satisfaction and increase officials? Fifth, how could the CSSA develop new strategies to overcome challenges and implement new strategies Fifth, develop how could the CSSA Sixth, how could the CSSA determine whether the strategies are being effectively Third, Third, what potential managerial challenges could the CSSA face during the project’s Fourth, what other strategies could be developed to enhance the effectiveness of the First, how are general citizens and elected from the project? officials looking to benefit First, how are general Second, how can the CSSA overcome backlash from younger workers and elected The project of creating jobs for the elderly is a social initiative that provides • • • • • • • overcome overcome these issues. Students must identify the perspectives from both the outside and the inside of the project that affect its implementation and the satisfaction of its participants, discuss the challenges and dilemmas of the project and strategies government government can reduce the costs of entitlement programs – e.g., low-income financial assistance – by increasing the self-sufficiency oflow-income seniors. This case study will help students understand the potential challenges and dilemmas that arise during social policy implementation and teach them how to come up with solutions to numerous numerous benefitsfor seniors, employers, and society ingeneral. As indicated earlier, it helps seniors keep working after the mandatory retirement age and allows them to support themselves without relying on government assistance or family support. It allows employers to reduce operation costs by using cheaper senior labor, and the Learning Objectives Learning further analyzed by considering the following key questions: further key the following by considering analyzed and hiring vocational experts to conduct the training, generating a comprehensive the CSSA still faces of However, public channels engagement. and developing database, other obstacles – e.g., backlash from other key stakeholders. Thus, the case must be solving related problems and challenges. with social policies. and satisfaction to enhance public engagement agencies applied in practice. policy. being and self-sufficiency of older workers. being and self-sufficiency Develop Develop a comprehensive model that provides best practices for local government Discuss potential problems that actors in governance face when implementing a social Make recommendations for improving the effectiveness of entitlement programs and Learn the important roles of the project and other social policies in improving the well- Identify and explain the challenges and dilemmas of the project when its provisions are This This case study can be used for advanced undergraduates – juniors and seniors – • • • • • • • Students will be expected to pretend that they are public managers or executives or executives public managers are they that pretend to will be expected Students Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 128 administration should be able to complete this case study, and students who have advanced advanced study, this case have and students who complete to be able should administration organizational organizational theory, and policy implementation may find this case study appropriate for their courses. Students who understand the basic concepts of public policy and public and Policy, Seminar in Social Policy, Public Management and Innovation, Organizational Theory and Behavior, and the like. Instructors who social teach policy, public management, and graduate students in the fields of public policy and public administration. This case study could be relevant to the following courses: Introduction to Public Management Target Audience Target personnel personnel management, training and and program development, policy and evaluation, study, students should: this case Through leadership. of the CSSA. This case study can be used broadly to discuss various functions in public management and policy implementation, including governance collaboration, of the project. of the project. implemented implemented by the CSSA to incorporate insights from policy implementation and public management literature, and provide suggestions for improving the effectiveness
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 129 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. and increase the effectiveness of social policies and public satisfaction with them? and increase the effectiveness of social policies and public satisfaction implementing social policies? older workers? creating jobs for low-income programs How can local governments overcome the identified obstacles, challenges, and dilemmas What are the obstacles, challenges, and dilemmas faced by local governments when What factors might decrease participants’ and employers’ satisfaction with workforce What are the pros and cons of innovative social programs in local governments? social programs What are the pros and cons of innovative • • • • The purpose of case study and analysis is to help students think critically about • This This case study is suitable for individual homework or in-class small group how how they might deal with possible real-world situations in the future. Some possible the following: discussion questions might resemble Discussion Questions Discussion be given approximately 25-30 minutes to review and analyze the case based on the discussion questions provided by the instructor. Afterward, another 10-15 minutes could be group asked each discussion for a during which classroom be should allocated rest with the of the class. its perspectives reportto share its findings and discussion discussion for courses lasting 60 minutes or more. The instructor should spend 10- 15 minutes providing background information about the case and introduce relevant concepts about social policy and public management. For individual homework, students should spend one week or less analyzing the case before submitting the assignment to their instructor. For in-class small group discussion, students should Case Administration knowledge knowledge and experience regarding public management and social policy should be able and discussions of analyses in-depth the case. complete to policy? participating individuals and organizations during policy implementation? participating individuals and organizations managing older workers? older managing What kinds of channels of communication can local governments develop to engage older workers? can be designed for low-income What other social policies What other obstacles can affect the effectiveness of the implementation of a social How can effective workforce training programs be designed for older workers? be designed for older programs How can effective workforce training What information can be included in a comprehensive database for recruiting, hiring, and Students Students will be asked to develop a workforce training program for project Students can perform an acquisition function exercise that mimics the process Instructors have several options for extended exercises and may choose one or • • • • • • Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean 130 participants and/or employers who hire and manage project participants. The Workforce Training Exercise Training Workforce could could recruit and hire qualifiedcandidates to fill them. Theycould also discuss how and interviews. applications job for applicants might prepare for for project participants and employers. They could be asked to identify and develop job specifications and jobdescriptions for various positions and discuss how the CSSA of recruiting and hiring seniors for certain jobs. Students will pretend that they are process and selection conducting the recruitment for in the CSSA responsible managers Acquisition Function Exercise more that fit their learning objectives to help students delve furthercase. the delve into students to help objectives learning fit their that more Extended Exercise Extended
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea KIPA Case Study Series 4 131 : Cases in Citizen-Centered and Collaborative Governance Governance and Collaborative : Cases in Citizen-Centered Vol. 4 : Vol. Students Students will assess how participating individuals and organizations in the through specific networks. specific networks. through critical to the effectiveness of the project. Students could be separated into small groups groups small into separated be could Students project. the of effectiveness the to critical how structures, analyses they and might to discuss determine identify network network how they could assess collaboration among participating individuals and organizations during the project, and to what extent the project could be implemented successfully networking networking and collaboration helps to achieve expected outcomes by analyzing a real life employment case, which can be provided by the instructor or selected by the students. Such an assessment is useful for informing CSSA managers, employers, and project participants of what factors that can influence networking and are collaboration Network Analysis Exercise Analysis Network project network should collaborate during implementation and to what extent such roles, roles, like those of CSSA managers, project participants, and employers, to identify and explain what kinds of objectives, content, and training methods should be included in roles. on their different based program training the workforce instructor instructor may assign students to a specificjob position (e.g., building security guard) and ask them to develop training programs for participants and their employers. The class could be divided into small groups, with each group member taking on different
. Asia Pacific , 228-269. Retrieved Retrieved from . Korea Economic Research Institute. Economic Research . Korea Project Creating Jobs for the Elderly . doi:10.1111/1744-7941.12251 Korean Society of Gerontological Social Welfare The Role of SCSEP in Workforce Training for Low-Income Older Examining The Impact of Population and Family Characteristics . Urban Institute. 2018 Statistics for Senior Citizen Jobs and Social Activities. Senior Services Agency (2019). Analysis Findings. on the Government Project Creating Jobs for the Elderly: Based on Qualitative influence flexible work arrangement participation and abandonment. participation abandonment. and arrangement work influence flexible https://www.kordi.or.kr/content.do?bid=248&mode=view&page=&cid=278294&s f_category=N107_2&cmsId=174 =normal&p_p_mode=view&_EXT_BBS_struts_action=%2Fext%2Fbbs%2Fview_m essage&_EXT_BBS_messageId=348679 https://www.kordi.or.kr/upload/attach/95/6295_201810121540591750.pdf Retrieved Retrieved from https://www.chuncheon.go.kr/index.chuncheon?menuCd=DOM _000000504005002004#lnk www.keri.org/web/www/news_02?p_p_id=EXT_BBS&p_p_lifecycle=0&p_p_state Korean Cases in Public Administration for Training and Practice Training for Cases in Public Administration Korean Change on Income Distribution Structure Workers Jounral of Human Resources 132 Sung, Sung, M. (2015). Sin, Y., Byun, G., Choi, H., Han, D., and Kim, H. (2018). Delivery System and Issues Mikelson, K.Mikelson, S. (2017). Kwon, M., Cho, Y., and Kwon, Song, H. (2019). How do managerial, task, and individual factors _____. (2019). Korea Labor Force Development Institute for the aged (2018). Brochure. Retrieved from Retrieved Institute for Development the Labor aged Force (2018). Brochure. Korea Korea Korea Economic Research Institute (2019). Press Release. Retrieved from http:// References Chuncheon
Chapter 6 - Revisiting the Government Project Creating Jobs for the Elderly in South Korea Editor
Hyeon-Suk Lyu / Director, Center for International Development and Cooperation /
Korea Institute of Public Administration
Authors
M.Jae Moon / Yonsei University
Sun Young Kim / University of Georgia
David Lee / University of Hawaii at Manoa
Sanghee Park / Boise State University
Dohyeong Kim / University of Texas at Dallas
Myungjung “MJ” Kwon / California State University Fullerton
Contributors
Yujin Jeong / Researcher / Korea Institute of Public Administration
Hayan Park / Researcher / Korea Institute of Public Administration
Minho Lee / Research assistant / Korea Institute of Public Administration The opinions stated in this book are the opinions of the individual researchers, and do not reflect the official position or stance of Korea Institute of Public Administration(KIPA).