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김인호(Kim, Inho) 전북대학교 법학연구소 2017 法學硏究 Vol.51 No.-
전력산업은 저장이 어렵고 가격비탄력적인 전기를 공급하는 기간산업으로 경제적 파급효과가 크므로 효율성 증진을 위한 구조개편을 시행함에 있어서는 그로 인한 기대와 우려가 혼재하고 있는 상황에서 외국사례의 시사점을 반추하여 충분한 준비를 거쳐 신중하게 추진되어야 할 것이다. 우리나라에서 전력산업 구조개편이 추진된지 15년이 되었으나 전력시장이 그 취지에 부합하는 경제구조에 이르지 못한 채 답보상태에 머무르면서 구조개편의 긍정적 효과를 가져오지 못하고 있다. 발전비용이 최소화되고, 전력거래체제가 효율적으로 운영되며, 전력요금이 적정한지 여부는 전력산업구조에 의존한다. 전력산업은 발전, 송전, 배전, 판매의 전력공급체인을 아우르므로 구조개편은 안정적 전력수급과 실효적 경쟁을 확보하여 소비자 후생을 증진할 수 있도록 추진되어야 한다. 우리나라 전력산업의 수직적 통합과 수평적 독점을 함께 해소하는 구조개편을 추진하여야 한다. 발전, 송전, 배전, 판매부문을 분리하고 발전부문에 수평적 분할을 통하여 실효적 경쟁을 도입하며, 송전부문과 배전부문은 조건의 성숙에 맞추어 점진적인 구조개편을 추진하되 한시적 독점기간 동안 그 폐해를 제어할 수 있는 규제가 이루어져야 하고, 판매부문은 전력공급체인의 상류부문의 구조개편에 맞추어 시의성 있게 구조개편을 실현함으로써 소비자 후생을 제고하여야 할 것이다. 산업정책과 연관하여 전력요금을 결정하여온 우리나라 전력산업구조의 특수한 상황을 고려하여 전력산업구조개편을 추진하여야 시행착오를 줄일 수 있을 것이다. 전력산업 구조개편과 민영화의 의도된 효과를 거둘 수 있는지 여부는 외국사례가 보여주듯이 그 자체로서는 예측하기 어렵고 해당 국가의 전력산업에 내재적 조건과 구조개편과 민영화를 시행하는 구체적 방법에 달려 있다. 전력산업의 내재하는 구조적 요인을 고려하고 구조개편의 시행원리에 부합하는 구조개편을 추진하여야 한다. 구조개편의 단계별 추진에 있어 필요한 조건이 성숙한 후 다음 단계로 이행하여야 한다. 전력산업 구조개편의 야누스적 양면성을 회피할 수 없다면 시기적 그리고 상황적 조건을 고려한 신중한 추진을 통하여 이로 인한 부정적 효과를 제어하면서 긍정적 효과를 제고할 수 있도록 하여야 할 것이다. 구조개편 과정에서 노정되는 문제점에 적시적으로 추가적 개선을 시행하되 비용효율적으로 이루어져야 할 것이다. 또한 전력산업 구조개편이 효율적으로 이루어지면 우리나라 전력산업의 인프라와 기술경쟁력을 토대로 전력과 설비 및 관련 서비스를 수출하고 해외시장에 진출하여 발전소를 건설, 운영하는데 긍정적 효과가 나타날 것이고 특히 동북아지역에서 통합전력시장을 주도적으로 구축하는데 기여할 수 있을 것으로 기대된다. The restructuring electricity industry unleashing significant influence on economy should be implemented by reflecting foreign experiences in a prudent manner. The past 15 year restructuring is discontinued and incomplete and failing to attain its intended effects. The structure of the electricity industry dictates whether electricity is cost-efficiently generated, whether the electricity market is efficiently operated, and whether electricity price is reasonable. The electricity industry encompasses the electricity supply chain of generation, transmission, distribution, and supply to the final consumers. Therefore, its restructuring needs to be implemented so that it could improve the welfare of the consumers by procuring stable supply of electricity and effective competition in the electricity market. The restructuring should aim to resolve the vertical integration and horizontal monopoly of the electricity industry. The restructuring consists of separation of generation, transmission, distribution, and supply of electricity, introduction of effective competition in generation sector, gradual liberalization in transmission and distribution sectors with appropriate regulations on possible problems during the transient period, and giving consumers a choice of supplier through introducing competition. The restructuring could reduce any possible negative consequences by giving due consideration to peculiar aspects in the Korean electricity industry that the electricity price has been determined in tandem with other economic policies. As evidenced by foreign experiences, the intended effects of the restructuring and privatization of the electricity industry are difficult to expect and depend on the structure of the electricity industry in individual countries and the implementation process thereof. Therefore, the restructuring should take into account structural factors of the electricity industry and be complying with the rationale thereof. The restructuring should be progressed to the next stage only after satisfying the prerequisites of the current stage. The restructuring has a mixture of positive and negative effects and thus should be tailored to boost positive effects and to curb negative effects by prudently implementing in accordance with temporal and circumstantial conditions. Timely and cost-efficient following measures should be taken to address problems faced in the process of the restructuring. The efficient restructuring of the electricity industry, based on its technical competitiveness, is expected to play a key role in promoting exports of electricity, its equipment, and related services and in constructing and operating foreign power plants. In addition, it remains to be seen whether the restructuring could facilitate the formation of a unified electricity market in Northeast Asia.
국내 배출권거래제도의 효율적 운영과 국제거래시장에의 편입
김인호(Kim Inho) 법무부 국제법무정책과 2013 통상법률 Vol.- No.114
Climate change is a global concern. Efforts at the global level to reduce greenhouse gases appear stalled due to conflicting political and economic interests. Korea has introduced emissions trading scheme to be implemented in 2015, which would concretize its policy of low carbon green growth to fulfill its responsibility in international community. Emissions trading scheme is a market-based mechanism to internalize the pollution costs externalized to society and the environment. Policy considerations are inevitably interwound in operating emissions trading scheme. Industries complying with emissions trading scheme might take strategic responses to resist or avoid the scheme in fear of relatively weakened competitiveness to their non-complying counterparts. It is time for Korea to remove their concerns and to play a role in international community by operating a robust and reasonable scheme. If policy coherence is ensured across the different policies, the policy goal of greenhouse gas reduction could be efficiently achieved by emissions trading scheme coupled with a policy promoting renewable energy. Emissions trading scheme has been critiqued by some political and business circles. However, the European and U.S. regional experience suggests that once a system is operating it generates some sustaining momentum by itself. The regulated industries also prefer emissions trading scheme to a command and control regulatory system or a pollution tax. The details of the scheme in terms of the laws and regulations should be developed and refined with over time. But it is evident that as markets can play a role in environmental regulation emissions trading scheme will grow internationally. Linkage with other schemes would promote emissions trading across jurisdictions, which enables markets to serve to play a broader role. The aim of emissions trading scheme should be to reduce carbon emissions but at the same time reduce costs. The scheme should embrace both economic growth and environmental benefit. Korean emission trading scheme, which is stable and efficient, linked with other schemes could implement policy goal of low carbon green growth and contribute to greenhouse gas reduction internationally.