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서울시 공공투자사업관리 합리화 방안 -투자심사 및 민간투자사업 제도를 중심으로-
이세구 ( Se Koo Rhee ),윤형호 ( Hyung Ho Yoon ),김찬동 ( Chan Dong Kim ),김강현 ( Kang Hyun Kim ),손주희 ( Joo Hee Sohn ) 서울시정개발연구원 2009 연구보고서 Vol.2009 No.64
Public investment projects are related with mainly various social infrastructures closely related to citizens` life, and tend to require large-scale financial resources. Such social infrastructures would be provided basically by the public sectors. However, there is a limitation in public provision of those social infrastructures due to limited financial resources in public sector. In Seoul Metropolitan Government, public investment in SOC(Social Overhead Capital) projects has increased every year, and the city has faced with several problems of rational management of public investments. Especially, the proper management of Investment Screening System as a pre-evaluation and the inducement of private capital into public projects are the two main issues to solve those problems in this study. This study has figured out the problems and tried to provide solution to improve the current situation in organization, management process and system aspects for both the Investment Screening System and inducement of private capital into public projects. The suggestions of this study are as follows. For the Investment Screening System, in order to secure the credibility of the results of each and every feasibility studies which are required to provide to the investment screening process, the evaluation of such studies should be performed together with professionals and officers. Also, after the projects have passed the screening process and executed into the budget, the follow-up management of the projects should be strengthened to check, examine or evaluate them whether the initial conditions such as rate of return and others are met or the process are operated feasibly. The guidelines of the investment screening are to be revised periodically for proper screening so as to reflect the administrative environmental change. In addition, the provision of professional training and education to enhance the ability of the personnel who are in charge of investment screening should be considered. For the system of inducing private capital into public infrastructures, first of all, the manual or guideline which contains the process of decision to make, decision to private finance initiative, and suggestion of alternatives must be prepared to utilize for small projects that induce the private capital into and apply the individual laws. The data base the whole process of this system including major issues and remarks of the process should be built so as to improve the future management of these type of projects which induces private capital. The provision of professional training and education to enhance the ability of the personnel who are in charge of inducement of private capital should be considered. This study recommends that the roles of management of the projects that induce the private capital should be consolidated into the Financial Management Division. Finally, this study suggest that the city should consider to establish the new organization to support the city and related officials in public investment projects, especially, the area of investment screening system and inducement of private capital, so as to provide the necessary research and data base to promote the system.
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김찬동 ( Chan Dong Kim ),이세구 ( Se Koo Rhee ),이주헌 ( Joo Hun Lee ),박성문 ( Seong Moon Park ) 서울시정개발연구원 2009 연구보고서 Vol.2009 No.2
This research analyzes local administrative system in the Seoul Metropolitan City and its sub-boroughs with regard to provide effective public services. In recent, the agenda of integrated administrative area introduced a bill to the National Assembly for raising local administrative effectiveness. This bill also suggested that the Seoul Metropolitan City should consider to unify its sub-boroughs and to establish integrated administration of a larger region. That means, only sub-borough`s level autonomy remains but not the Seoul Metropolitan level. It endangers the existence of the Seoul Metropolitan City as a self governing body. The Seoul Metropolitan City has extended and separated its administrative districts and sub-boroughs following an increase in population. As of 2009, Seoul Metropolitan City has 25 sub-boroughs. However, the subdivided administrative area cause ineffective public service provision in terms of the severance of a sphere of life. In this context, we need to consider how many integrated sub-boroughs make an ideal alternatives? In order to explore ways for the solution, we investigated into local administrative system in metropolitan area at global level. Analysis of local administrative system in London, Tokyo, New York, Berlin, and Paris showed that the metropolitan city has the advantage of maintaining dual-hierarchy system, and can unify sub-borouhgs in partial level. We examined the basic statistical data, financial, and public service variables in order for seeking ideal model for sub-boroughs unification. We investigated into five-integrated, nine-integrated plan, and the original 25 plan through a z-score and a coefficient variation analysis at each plan. As a result, the best suggestion of integration was the nine-integrated administration plan. If the Seoul Metropolitan City should unify its sub-boroughs, the nine-integrated plan will be an reliable alternative rather than others. However, we suggest that the original administrative districts are suitable to the Seoul Metropolitan City in terms of local autonomy. Aggressive integration causes the breaking of the Seoul Metropolitan City as a larger regional administration body, and brings out a risk getting centralized administration. In conclusion, we need to consider a variety ways of intergovernmental governance`s revitalizing within maintaining present dual-hierarchy administrative system.
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김진 ( Jin Kim ),이세구 ( Se Koo Rhee ),박창윤 ( Chang Yoon Park ) 서울시정개발연구원 2010 연구보고서 Vol.2010 No.41
PFI (Private Finance Initiative) development projects managed by Seoul Metropolitan Government (SMG) can be categorized, on the grounds of depending laws, into two types: the one is PFIs driven by ``Act on Public-Private Partnerships in Infrastructure (Act on PPPI)`` (PPP PFIs) and the other covers PFIs based upon relevant laws to the types and characteristics of facilities (RL PFIs). Since PPP PFIs are progressed in accordance with the standards and guidelines systemized by the MOSF (Ministry of Strategy and Finance), their procedure is clear and their management is relatively integrated. On the contrary, RL PFI projects are physically regulated by respective facility laws while their approaches are legitimated by ``Act on Public Property and Commodity Management (Act on PPCM)``. This endogenous feature of two-track regulation upon RL PFIs has entailed the problem of a consistent application of law and the absence of a single administrative body`s effective management: which have increased the need for a city-level integrated system to stipulate the standard procedure and management of RL PFI projects. This study aims at surveying the current condition of RL PFI projects planned or propelled by SMG, analyzing the practical problems to manage RL PFIs integrately on the city level and proposing a schematic program for SMG`s unified management system of RL PFIs. The proposed management system is expected to contribute to guiding the bureaus and departments in SMG which plan RL PFIs in the near future and enhancing the credibility and efficiency for SMG to drive PFI projects. Also, the study suggests some methods to monitor the project body`s performance as well as evaluate the effect of PFIs based upon the ex-post project information, as to improve SMG`s future PFI projects. SMG`s business approaches to RL PFIs, regulated by Act on PPCM, are roughly divided into two ways: BTO (Build-Transfer-Operate) scheme and land lease. With the former approach, the project body invested by the private entities(and the city, if necessary) finances the project cost, builds the object infrastructure, transfers the ownership of facility to the city and operates it during a specific period. Usually, project site is a city-owned property thus all the project body can possess is the right to operate the facility during the project period. In the latter scheme, the body finances the project cost and builds the object infrastructure in the same way. It does not, however, transfer the ownership of facility but sustains it by the end of the project. Instead, it signs a land lease agreement for the city land and pays the land rent from the start of construction to the end of project. Also, RL PFIs can be grouped by entity: who proposes a target project. One way is that the city plans a project and requests the private consortiums` proposals while another is that a private entity offers a PFI project and the city accepts that. Usually, PFI projects are not defined as the objects of ACT on PPPI thus difficult for SMG to ask PIMAC (Public & Private Infrastructure Investment Management Center), an affiliated organization of MOSF, to review the project feasibility, which makes it problematic to confirm the validity of project. Also, the project size and/or budget size granted by the central government is under the hurdle of preliminary feasibility study, mandatorily requested to PIMAC. In the beginning of 2010, the number of RL PFIs driven by SMG was 10 but two projects were suspended or discontinued thus the current number of projects is 8 at the end of October, 2010. The facilities of RL PFIs have the feature of infrastructure to improve the citizens` quality of life but are not defined in ACT on PPPI. So the bureaus and departments to plan RL PFIs feel difficulty to find an external organization to confirm the feasibility of city plan or evaluate the proposal offered by the private entity. Unlike PPP PFIs, SMG has yet to prepare the project manual for officials, which makes the officials with limited expertise and knowhow regarding PFI perceive the practical problems in the process. In some cases, they find legal issues, the vagueness of grounds of administrative activities. For example, they want to know if SMG can allow the public permission for project facility, transfer of its ownership and site use for its construction and operation. Also, in the stage of action, they may find difficulty to trust an institution of public confidence with the review of action plan, the selection of best proposal offered by private consortiums and the negotiation of project conditions with the private counterpart. After signing a project agreement with the project body, usually an SPC (Special Purpose Company), SMG needs to monitor the body`s contract performance which requires SMG prepare a checklist in turn. Dividing the whole project period into four stages (Plan, Action, Execution and Operation), this study designs an integrated management system for SMG to plan, execute, monitor and evaluate a RL PFI project. In the first stage, it is recommendable for SMG to request an outside professional institute, including PIMAC and SDI(Seoul Development Institute), to review the feasibility of a city-planned project or evaluate the qualification of a plan proposed by a private entity. The study also proposes that the projects more than one hundred billion Won or assisted by the city budget should be reviewed by the Committee of City Budget Planning (CCBP) in SMG. In the ``Action`` stage, SMG needs to prepare a manual for the PFI process, for which this study draws some basic flow charts. It also recommends that SMG ask external entities to evaluate the private`s project proposals, negotiate the terms and conditions of project for the benefit of the city and review the fitness of project agreement. Even in this stage, it seems rational that CCBP scrutinizes the projects, sizable or demanding the city budget. To assist the city officials who want to monitor the fulfillment of project agreement in the stage of Execution, this study arranges a sample checklist based upon the Standard BTO Project Agreement provided by MOSF. It focused on the project body`s timely financing project cost and fulfilling its duty on agreement as well as SMG`s methods to monitor the construction process and perceive any potential risk in advance. In the last stage of Operation after the completion of infrastructure construction, the officials in charge of the project need to evaluate the achievement of planned goals, cost and facility size as well as the effect of project, citizens` benefits and the absorption of market demand. Moreover, it is necessary to monitor the operation of facility and check the financial status of project body. The study suggests that all the RL PFIs be evaluated after three year of completion, regarding not only project performance and impact but its operation condition. It seems more desirable that all the projects with the size more than one hundred billion Won or funded by the city budget should be reevaluated in every five year after first evaluation, with only respect to its operation performance, Finally, this study, to support the review and evaluation processes, suggests that the city need to consider to establish a new organization to fully devote to screening public investment as well as PFIs, evaluating project feasibility and accumulating relevant research data to assist decision makers. The importance and necessity of the organization has also been stressed by the previous studies of SDI.
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배준식 ( Jun Sik Bae ),이세구 ( Se Koo Rhee ),김진수 ( Seong Mun Park ),박성문 ( Jin Soo Kim ) 서울시정개발연구원 2011 연구보고서 Vol.2011 No.1
During budget preparation, trade-offs and prioritization among programs must be made to ensure that the budget fits government policies and priorities. Next, the most cost-effective variants must be selected. Finally, means of increasing operational efficiency in government must be sought. None of these can be accomplished unless financial constraints are built into the process from the very start. In the budget process, the future is inherently uncertain, and the more so the longer the period considered. The general trade-off is between policy relevance and certainty. At one extreme, government budgeting for just the following week would suffer the least uncertainty but also be almost irrelevant as an instrument of policy. At the other extreme, budgeting for a period of too many years would provide a broad context but carry much greater uncertainty as well. Clearly, the feasibility in practice of a multi-year perspective is greater when revenues are predictable and the mechanism for controlling expenditure well-developed. A medium-term outlook is necessary because the time span of an annual budget is too short for the purpose of adjusting expenditure priorities and uncertainties become too great over the longer term. At the time the budget is formulated, most of the expenditures of the budget year have already been committed. Medium-term spending projections are also necessary to demonstrate to the assembly and the public the desired direction of change. In the absence of a medium-term program, rapid spending adjustments to reflect changing circumstances will tend to be across-the-broad and ad hoc, focused on inputs and activities that can be cut in the short term. By illuminating the expenditure implications of current policy decisions on future years` budgets, medium-term spending projections enable governments to evaluate cost-effectiveness and to determine whether they are attempting more than they can afford. Finally, in purely annual budgeting, the link between sectoral policies and budget allocations is often weak. Sector politicians announce policies, but the budget often fails to provide the necessary resources. To resolve the problems of annual budgeting system, most OECD countries are partly adopting a multi-year budget system, and the example is a medium-term fiscal plan. Multi-year planning and forecasting serves to increase the fiscal discipline by setting overall fiscal policy objectives, showing the medium costs of continuing existing policies through baseline projections, and illuminating the full-year budget implications of decisions in following budgets. In this paper, we study to improve the effectiveness of medium-term fiscal plan in the perspective of multi-year budget system. We study the role of multi-year budget system in the framework of annual budget system, and analyze how to complement the shortcomings of annual budget system. Under the given legal framework, we consider the introduction of pre-budget system to improve the possibilities of fiscal forecasting and transparency, and suggest the enforcement of continuing expenditure system in the fiscal programs. Through the introduction of continuing expenditure system, Seoul Metropolitan government can save considerable amount of budget in the public investment programs and expend the budget efficiently by reducing the constructing period.
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김찬동 ( Chan Dong Kim ),이세구 ( Se Koo Rhee ),박성문 ( Seong Moon Park ) 서울시정개발연구원 2009 연구보고서 Vol.2009 No.51
The purposes of this study are to analyse the current conditions and to figure out the problems of Special Judicial Police (SJP) system of Seoul Metropolitan Government (SMG), and to suggest the ideas to develop the future SJP. The SJP system in Korea has different historical background compared to foreign countries` SJPs. The SMG adopted the SJP system in 2008 in order to promote the civil safety in several areas as a citizen-centered administration. SMG plays the role to provide the necessary budgets to form the Division of Special Judicial Police while city`s 25 Autonomous Districts to dispatch the personnels to work with. The coverage of SJP includes food, juvenile delinquency, environmental pollution and hygiene. SJP has shown considerable performance so far through the investigation of such areas. However, there have been several difficulties for SJP to face with. First of all, the SJP officers who used to deal with the paperworks inside offices experience the difficulty of executing criminal investigation. There have been insufficient budget and instruments for criminal investigation. Moreover, the Division has experienced the difficulties in personnel and organization management together with the lack of expertise in criminal investigation for the officers. Whereas three to five year experience of investigation would lead the officers to become expertise in general, they have experienced the circulation personnel management system which usually results to less than three year work with the division. The rate of citizens` recognition of SJP is very low as 17%. But, so long as they recognize the SJP in SMG, their satisfaction for SJP is quite high as 57%. Also, they have felt the necessity of SJP strongly as 65%. The exact expression of SJP in SMG would be the comprehensive SJP which means any officers are in charge of whole areas of SJP while current officer has dealt with any specific area of SJP. Although SJP has already been existed in autonomous districts before SMG organized the division in the city, mayors of autonomous districts who are elected through public elections have a tendency not to utilize the SJP system because of popularity. However, mayor of SMG has a responsibility for public safety in Seoul metropolitan area. Thus the SJP division has been organized as a part of a city government to deal with the problems arised. The administrative problems of comprehensive SJP are as follows. First, while the officers are assigned to the division of SMG, they are evaluated for the promotion and other personnel management in their original organizations, that is autonomous districts. Second, there are insufficient budgets for the investigation and following activities. Third, there are lack of the systematical education and training to reinforce the officers to become investigation expert. Therefore, there need to apply the unified personnel management system for the SJP officers between city and autonomous districts, to increase budget to support SJP activities, and to provide the necessary education and training. Also, the future steering of SJP would be important to the development of future local autonomy system. This study suggests several short-term strategies to develop SJP on the basis of current structure. But the mid-term strategies as autonomous districts` proper role are also proposed since the SJP service should be provided by the lower-level government, that is autonomous districts. The long-term development strategies are also proposed on the basis of introduction of autonomous police system in local government level. The SJP needs to cultivate investigation capability. The city government and autonomous district governments might have their own SJP organizations, and coordinate SJP activities.
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