Suwon, Hwaseong, and Osan: Is an 'Era of Integration' Coming?

“Administrative changes in organizational units are necessary to ensure residents are satisfied with their government services. (October 7, 2004, at Gyeonggi Province's National Audit, by Rep. Shim Jae-deok)”

‘63% support the reduction of administrative layers (administrative reorganization), 27% oppose it. (June 21, 2005, from a public opinion survey on 'Local Autonomy's 10-Year Evaluation' conducted by the Conference of Mayors and Heads of Counties and Districts nationwide among 1,011 adults)’

Following referenda on administrative reorganization held separately in Jeju Province and Cheongju City and Cheongwon County in North Chungcheong Province in July and September, respectively, discussions on administrative reorganization are gaining momentum.

Above all, the consolidation of Suwon, Hwaseong, and Osan's administrative districts is now at the center of the administrative reorganization debate.

According to a plan prepared by the OpenUri Party's 'Administrative System Reform Planning Task Force,' proposals include consolidating local governments within Gyeonggi Province into 10 cities, as well as a plan to reorganize the Suwon, Hwaseong, and Osan regions into a single city.

Thus, the current administrative structure that has continued for nearly a century is facing change through consolidation and reorganization.

Whereas the previously mentioned regions feature local governments actively engaging in the administrative reorganization process, discussions on the integration of Suwon, Hwaseong, and Osan are currently centered in the political arena.

▲Academia Researching Administrative Reorganization Since 1988

Historically, it is noted that Suwon, Hwaseong, and Osan share a common historical identity as 'Suwon County' until Suwon County's Suwon Township was elevated to Suwon City on August 15, 1949.

Suwon Mayor Kim Yong-seo emphasized that “Suwon, Hwaseong, and Osan are cities that have historically and geographically shared the same roots.”

Research highlighting the need for administrative system reform to keep pace with the trend of cities becoming increasingly metropolitan has been underway since 1988, raising the necessity for administrative reorganization such as the consolidation of Suwon, Hwaseong, and Osan.

Suwon, with a population of 1.04 million, has an urban scale comparable to Ulsan Metropolitan City (1.07 million), yet as a basic local government, it has been pointed out that it must establish an administrative system adequate to meet surging demands for administrative services.

According to a 1998 report by the Korea Development Institute titled 'Regional Economy and Efficiency of Local Administration,' the multilayered administrative system and imbalances between administrative districts ultimately hinder balanced regional development.

The report also presented plans to reorganize the current administrative layers and district system to enhance national competitiveness and administrative efficiency.

Related to this, Professor Shim Ik-seop of Dongguk University, at the 'Local Administrative System Issues and Improvement Measures Seminar' on November 23, 2004, proposed ▲expanding the functions of cities and counties ▲separating functions between provinces and cities/counties ▲complete abolition of provincial functions as alternatives to administrative reorganization, arguing that administrative efficiency must be enhanced.

The political sphere also maintains that administrative reorganization must be pursued given that the significance of boundaries has long faded in the context of expanded economic life zones.

This discussion of administrative reorganization was already raised by the ruling New Korea Party in 1996, and during the July 2000 Interim National Assembly question period, Rep. Lee Jae-oh (Han Nara Party, Seoul Eunpyeong-gu B) advocated for administrative system reform toward a single-tier structure.

On February 15 this year, a 'Resolution Urging Local Administrative System Reform,' signed by 31 lawmakers from both ruling and opposition parties, was submitted to the National Assembly.

The lawmakers stated clearly that the current local administrative system has been maintained since it was forcibly reorganized by the Japanese colonial rule and does not fit the competitive era and the information-knowledge-based era of the 21st century.

Lawmakers from both parties emphasized that fundamental change and reform of the administrative system are necessary to resolve chronic regional emotions.

In sum, the political sphere's stated reasons for administrative reorganization include the problems caused by the current two-tier administrative structure consisting of metropolitan cities/provinces and basic cities/counties/districts: ▲increased administrative transaction costs ▲intensified regulations ▲obstacles in civil service administration .

Ultimately, the current administrative system becomes an obstacle to regional development and effective land use, as the resolution at the time argued.

Related to this, on July 26, around 20 civil society activists from Suwon, including Yoo Moon-jong, Secretary-General of the Local Agenda 21 organization, issued a statement calling to “review a single administrative system reform for Suwon, Hwaseong, and Osan.”

They pointed out that the current administrative district system contains several problems in terms of administrative efficiency and service.

Lee Sung-ah, Secretary-General of the Osan Autonomous Civic Movement, also emphasized the need to conduct discussions on administrative reorganization, noting that “the subdivision of administrative organizations can lead to waste and inefficiency (of administrative power and costs).”

▲Formation of a 'Southern Gyeonggi Economic Cluster' Centered on Suwon

In the case of Gyeonggi Province, taking into account transportation networks and characteristics of each city, a tentative plan has been prepared to develop the southern Gyeonggi region (Suwon, Yongin, Osan, Hwaseong, Pyeongtaek, and Anseong) as an industrial cluster for digital electronics, biotechnology, and port logistics.

In particular, the province has drawn up a blueprint to establish an advanced knowledge industry complex based on Samsung Electronics and to develop 1.1 million pyeong across Suwon City, Hwaseong City's Taean and Dongtan areas, and Yongin and Giheung as a digital electronics cluster.

Additionally, there is a plan to develop this area into a hub for science and technology by attracting advanced R&D centers in biotechnology and information technology to the Gwanggyo Techno Valley.

From this economic perspective, residents in nearby Osan and Hwaseong areas have high expectations.

Osan City Council member Kim Jin-won (Daewon-dong) explained, “Looking at the trend of public opinion in Osan supporting the consolidation of Suwon, Hwaseong, and Osan, it can be explained that a considerable number of residents reflect expectations stemming from regional development.”

From a cultural perspective, the Suwon region is expected to serve as one axis of Gyeonggi Province's ring-shaped cultural content cluster.

According to the 'Construction of a Ring-shaped Cultural Content Cluster' plan announced by the province on April 10 this year, Suwon, where the KBS Drama Center is located, is to be developed into a cultural content production and support base.

▲Expansion of Social Infrastructure and Regional Economic Development Through Metropolitan Urbanization

If Suwon, Hwaseong, and Osan are consolidated, there are still voices of concern citing regional imbalance and tax burden as reasons.

Osan City Council member Kim Jin-won said, “On one hand, there is support from perspectives of regional development and economic benefits, but on the other hand, there is also public opinion opposing it due to tax burden resulting from reorganization costs.”

In response, there are arguments that administrative consolidation makes it easier to secure funding for urban development.

Suwon Mayor Kim Yong-seo explained, “Suwon collects 320 billion won in provincial taxes annually, and if Hwaseong and Osan are combined, the scale reaches 500 billion won.”

If the current multilayered administrative system of central government-province-basic entities is reorganized, the provincial taxes collected in Suwon, Hwaseong, and Osan could be utilized as funding for regional development such as expansion of social infrastructure (SOC).

Mayor Kim stated, “If provincial taxes are used as SOC investment funding, it could become an exemplary case of a metropolitan city with perfectly established urban infrastructure,” and forecast that “the ripple effects on the regional economy will be substantial.”

▲Administrative Reorganization Discussion: “Must Build Consensus With Time”

According to revision plans reportedly under review by the ruling party, local governments will undergo a resident consent process through referenda by 2010, and in this process, those voting against will maintain their existing administrative system, while provincial functions will be delegated to the Ministry of Public Administration and Security.

In the case of Jeju Province, it is promoting administrative reorganization through the referendum process, but there are many hurdles to overcome.

First, the situation is divided between 'reform measures' and 'gradual measures' in each region. (Jeju City and North Jeju County reform measures 64.5%, 57.2%, Seogwipo City and South Jeju County gradual measures 56.4%, 54.9%)

In Cheongju City-Cheongwon County, while 91% of Cheongju residents approved in the September 29 referendum, Cheongwon County opposed at 53.1%, resulting in the consolidation attempt failing.

Sung Hyuk-mo, Head of General Affairs at Hwaseong City Hall, said, “In a situation where administrative reorganization is being discussed primarily by the political sphere, public opinion trends in local society have yet to be concretely revealed.”

Nevertheless, Hwaseong City is on alert to see what impact attempts at administrative reorganization in Jeju and Cheongju City-Cheongwon County will have on the integration of Suwon, Hwaseong, and Osan.

Above all, given the reality of sharply contrasting pro and con opinions within the region regarding administrative consolidation, the most important factor comes down to 'gathering resident opinions and conducting broad discussion processes.'

The political sphere, academia, and civil society organizations share this recognition.

On April 28, Rep. Shim Jae-deok (Chairman of the OpenUri Party's Local Autonomy Special Committee) and Rep. Heo Tae-yeol (Chairman of the Han Nara Party's Local Autonomy Committee) stated through a press conference that “administrative system reform must be pursued according to the principle of resident autonomy.”

The lawmakers stated, “Since the reorganization issue is a matter of national importance, it must proceed with sufficient time for discussion and reaching consensus.”

Professor Shim Ik-seop also predicted, “As administrative reorganization is pursued, the most acute point of contention will be discussions regarding district reorganization.”

He emphasized, “It is desirable to elicit resident consent while considering objectively verified various alternatives.”

▲“Government for Residents Must Include Sufficient Public Opinion Process”

Mayor Kim Yong-seo also noted, “When I served as City Council Chairman in 1999, 90% of Suwon, Hwaseong, and Osan city councilors shared the same recognition regarding administrative consolidation,” offering a positive outlook on the possibility of future integration into a metropolitan city.

Mayor Kim emphasized, “The task of administrative reorganization lies in how the central government establishes policy regarding the expansion of local governments,” and stressed that “above all, administrative reorganization must center on governance for residents.”

Sung Hyuk-mo of Hwaseong City Hall said, “Integration into a metropolitan city should not be rushed but must be discussed in depth with resident opinions reflected.”

Civil society organizations in Suwon and Osan likewise emphasized that this principle must be a prerequisite.

Yoo Moon-jong, Secretary-General of Local Agenda 21, pointed out that “the Suwon, Hwaseong, and Osan region must necessarily be consolidated from historical, political, and administrative perspectives, but the center must be the autonomous demands and decisions of local residents.”

He proposed that such discussions begin first earnestly from the region and stated that rational reorganization work must be conducted through the efforts of local residents and civil society.

Lee Sung-ah, Secretary-General of the Osan Autonomous Civic Movement, also mentioned, “While recognizing the necessity of reorganization, there currently is an absence of any consultation procedures or public discourse processes,” emphasizing the need for in-depth discussion through the formation of consultative bodies such as steering committees or deliberative bodies.

Most importantly, they cautioned against hasty administrative reorganization producing countereffects and emphasized that candid discussion among local residents must be a prerequisite.

Regarding administrative reorganization, the consolidation of Suwon, Hwaseong, and Osan must proceed with the quality of life of the people—the 'source' of sovereignty—that is, local residents, at its center. This is an axiom that government and the political sphere must invariably embrace as golden rule.