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Democratization
and Democracy
in South Korea,
1960–Present
h y ug b a eg i m
Democratization and Democracy in South Korea,
1960–Present
Hyug Baeg Im
Democratization
and Democracy
in South Korea,
1960–Present
Hyug Baeg Im
Gwangju Institute of Science and Technology (GIST)
Gwangju, South Korea
Korea University
Seoul, South Korea
© The Editor(s) (if applicable) and The Author(s), under exclusive licence to Springer
Nature Singapore Pte Ltd. 2020
This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights of
translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on
microfilms or in any other physical way, and transmission or information storage and retrieval,
electronic adaptation, computer software, or by similar or dissimilar methodology now
known or hereafter developed.
The use of general descriptive names, registered names, trademarks, service marks, etc. in this
publication does not imply, even in the absence of a specific statement, that such names are
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The publisher, the authors and the editors are safe to assume that the advice and information
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189721, Singapore
For Eun Hee, Michael, and Cindy, My Beloved Family
Acknowledgments
This book would not have been published without the support, encour-
agement, and helping hands of many scholars, students, and research insti-
tutions. First of all, I would like to give a million thanks to my teacher and
friend, Professor Adam Przeworski at New York University. Professor
Przeworski was the chairman of both my MA thesis committee and
Ph.D. Dissertation committee at the University of Chicago. He has always
kindly taught me how to study the right methods and theories of democ-
racy and democratization in the 1980s. He guided me meticulously in
writing Chap. 2, “The Rise of Bureaucratic Authoritarianism in South
Korea,” and Chap. 4, “Politics of Democratic Transition from Authoritarian
Rule in South Korea.” In other chapters, too, I am deeply indebted to him
for guiding me in writing analytically and critically about democracy and
democratization in South Korea.
I thank Professor Tun-jen Cheng and Professor Deborah A. Brown
for inviting me to write a book chapter on the democratization move-
ment of churches in South Korea. I remember that Professor Cheng
praised my paper as the most analytical among 11 papers in the edited
book. I learned a lot from Professor Larry Diamond at Stanford
University in writing Chap. 6, “Opportunities and Constraints to
Democratic Consolidation in South Korea.” Professor Diamond’s advice
was very informative, thoughtful, and hypothesis-testing. I would like to
give special thanks to Professor McNamara at Georgetown University
who invited me to teach at the Sociology Department at Georgetown
University, and gave me the opportunity to make a presentation on
vii
viii ACKNOWLEDGMENTS
xi
xii Contents
Economic Affluence 126
Ethnic Homogeneity 129
Religious Tolerance 130
Effective State 133
Civilian Control over the Military 134
Obstacles 135
Low Institutionalization of Political Society 135
Weak Constitutionalism: “Constitutions Without
Constitutionalism” 138
Underdevelopment of Civil Society 139
Economic Globalization 145
External Security Vulnerability 147
Conclusion: Overcoming Obstacles for Korean Democratic
Consolidations 148
Divisive Regionalism 192
An Underdeveloped Party System 194
An Imperial but Weak Presidency with a Single-Term Limit 195
Political Corruption 196
Declining Trust in Democracy 197
The Presidential Election of 2002 and Its Implication for
Democratic Consolidation 198
Party Reforms and the “People’s Primary” 199
Implications for Removing Obstacles to Democratic
Consolidation 200
Conclusion: The New Era 201
References299
Index309
List of Figures
xix
xx List of Figures
Fig. 10.9 International trade balance (US dollars). (Source: The Bank of
Korea http://www.sbok.or.kr) 260
Fig. 10.10 Inflation, consumer prices (annual %). (Source: World
Databank http://databank.worldbank.org) 260
Fig. 10.11 Unemployment total (% of total labor force). (Source: World
Databank http://databank.worldbank.org) 261
Fig. 11.1 Rule of law. (Source: Governance Matters 2009, “Worldwide
Governance Indicators (WGI)”) 276
Fig. 11.2 Individual security and civil order. (Source: Cingranelli’s
PHYSINT (physical integrity variable). The Quality of
Democracy Workshop, Country Report: South Korea 2010) 277
Fig. 11.3 Institutional and administrative capacity. (Source: Governance
Matters 2009, “Worldwide Governance Indicators (WGI)”.
The Quality of Democracy Workshop, Country Report: South
Korea 2010) 278
Fig. 11.4 Control of corruption. (Source: Governance Matters 2009,
“Worldwide Governance Indicators (WGI)”) 278
Fig. 11.5 Electoral accountability. (Source: Reporters Without Borders,
Worldwide Press Freedom Index) 279
Fig. 11.6 Interinstitutional accountability. (Source: Governance Matters
2009, “Worldwide Governance Indicators (WGI)”) 280
Fig. 11.7 Voter turnout in presidential elections. (Source: International
Institute for Democracy and Electoral Assistance
(International IDEA)) 283
Fig. 11.8 Voter turnout in parliamentary elections. (Source:
International Institute for Democracy and Electoral Assistance
(International IDEA)) 283
Fig. 11.9 Number of parties. (Source: The Quality of Democracy
Workshop, Country Report: South Korea 2010) 285
Fig. 11.10 Difference in the strength of the first and second largest party.
(Source: The Quality of Democracy Workshop, Country
Report: South Korea 2010) 286
Fig. 11.11 Political rights. (Source: Freedom House, Freedom in the
World (FRW)) 287
Fig. 11.12 Civil rights. (Source: CIRI’s Civil Rights/Empowerment
Rights Index. The Quality of Democracy Workshop, Country
Report: South Korea 2010) 288
Fig. 11.13 Gini coefficient. (Source: Office of Statistics, Republic of
Korea, Statistics Korea 2006 (www.kostat.go.kr)) 291
List of Figures xxi
xxiii
CHAPTER 1
high economic growth with equity. Park Chung Hee’s reign had two
stages: first, a soft authoritarian developmental state under a restricted
democracy; and, second, a repressive bureaucratic authoritarian state
under the Yushin system. In both stages, the economy grew “miracu-
lously” from one of the poorest in the region to an economic powerhouse.
Many have praised Park Chung Hee for his wise and timely choice of
optimal developmental strategy based on state-led economic platform.
However, the Korean “miracle” was not simply that: it was a combina-
tion of both endogenous and exogenous factors. Park Chung Hee deserves
credit for generating endogenous development through the timely adop-
tion of optimal strategies at every stage. Nonetheless, the miraculous
development in Korea is also due to many exogenous factors, such as
Japanese colonial legacies, benevolent American hegemony, the comple-
tion of land reform before launching urban-centered industrialization, the
elimination of a landed class that could have strongly resisted industrializa-
tion and the emergence of Confucian capitalism.
Korea’s development into a modern industrialized country shows us
the relationship between macro and micro factors, and between structures
and actors. Because of Park’s achievement in transforming the Korean
economy into a modern industrialized one, his admirers have even justi-
fied his dictatorship. They have argued that his Yushin system was histori-
cally necessary in the 1970s, going on to argue that authoritarian
development in the 1970s was a necessary pre-stage to the democratic
transition in the mid-1980s. The historical necessity argument is severely
weakened, however, if we take into account the exogenous factors that
contributed to Korea’s miraculous economic growth during his reign.
Park Chung Hee and his choices of development strategies may have been
historically necessary for a spectacular economic growth in the 1960s and
1970s, but they were not sufficient on their own. In addition, there is no
clear causal relationship between authoritarian development in the 1970s
and the democratic transition in 1987, nor any substantial evidence that
the developmental dictatorship was a precondition and stepping stone to
that transition.
Of course, Park Chung Hee contributed a great deal to Korea’s miracu-
lous development in the 1960s and 1970s and deserves to be called “the
great modernizer” of his country. At the same time, he accomplished all
this thanks to good fortune and beneficial exogenous factors of historical
path dependence, and fclass structure and culture that were beyond his
control. Karl Marx succinctly described the relationship between actors
6 H. B. IM
Men make their own history, but they do not make it as they please; they do
not make it under self-selected circumstances, but under circumstances
existing already, given and transmitted from the past. The tradition of all
dead generations weighs like a nightmare on the brains of the living. (Marx
1852, p. 78. Eighteenth Brumaire of Louis Bonaparte)
Park Chung Hee made a great historical step with the first industrializa-
tion of Korea. Nevertheless, he did not do it alone, but with the good
fortune transmitted from the past in the form of the Japanese colonial
legacy, benevolent American hegemony, land reform, a class structure that
eliminated the landed class who would have resisted urban-centered indus-
trialization and the capitalism embedded with Confucian culture. All of
these exogenous factors that were beyond the control of dictator Park
Chung Hee worked favorably for his industrial revolution in South Korea.
Chapter 4 is a game-theoretical analysis of the aborted transition to
democracy in 1979–1981 and the successful democratic transition in the
mid-1980s. I start with a critique of the precondition or prerequisite theo-
ries of democratic transition. These theories fall short in explaining the
causal path from an authoritarian regime to democracy because in many
cases factors such as economic prosperity and civic culture are not a pre-
condition to democratic transition, but rather the outcomes of the transi-
tion or the products of consolidated stable democracies. A more serious
problem of precondition theories is that they are politically impotent in
explaining democratic transitions because they afford no active role to
individuals in the transition process, assuming that they await passively the
maturity of economic and cultural preconditions favoring democracy. In a
nutshell, the precondition theory of democratic transition can be seen as
an impossibilist theory that does not search for the possibility or hope for
democracy; it is thus prone to be fatalistic about the prospect of democ-
racy, assuming the population to be unable to satisfy such preconditions.
South Korea is an exceptionally poor case for the precondition theory
of democratic transition. Even though at the time of Park’s assassination
the country did satisfy preconditions for democratic transition, such as an
industrialized economy, a strong and well-educated middle class, the for-
mation of workers with class consciousness and the existence of a rebel-
lious opposition party with strong leaders, the death of the dictator did
1 INTRODUCTION: MY DEMOCRATIZATION STUDIES IN RETROSPECT 7
the opposition New Democratic Party could not control the actions and
voices of the extra-institutional opposition and students. Under this game-
theoretical condition the New Military took an uncompromising strategy
to repress all opposition regardless of their position. They provoked vio-
lence on campuses, in the streets and in workplaces. Finally, they drew
opposition forces into the streets, crushed them and took over the power
to rule over the whole country. The Kwangju People’s uprising and mas-
sacre by Green Beret troopers in May 1980 was the finishing blow by the
New Military, and the Seoul Spring ended in less than six months after
it began.
The successful democratic transition process began in 1984 when Chun
Doo Hwan relaxed and decompressed authoritarian control. With the so-
called Korean abertura, civil society was resurrected and many autono-
mous student, labor and religious organizations mushroomed from the
underground to the foreground of democratic agora. This plethora of
social movements for democracy contributed considerably to the electoral
success of the New Korea Democratic Party (NKDP), led by two key lead-
ers for the restoration of democracy, Kim Young Sam and Kim Dae Jung,
in the National Assembly election on February 15, 2015. The NKDP was
organized just two weeks before the election and rapidly became the larg-
est opposition party. After the election, Koreans had an organized political
alternative, the single dominant opposition party NKDP, with two strong
leaders, the Two Kims. The combined strength of the institutional opposi-
tion in the form of the NKDP together with social movement forces
demanding democracy in “street parliaments” made a “catastrophic bal-
ance” to the authoritarian regime. The inconclusive and protracted tug-
of-war that had continued since 1986, between democratic forces
demanding the restoration of democracy and the authoritarian regime led
by hard-liners who rejected outright the demands and instead repressed
them with clubs and tear gas, was finally resolved.
The protracted standoff was broken when President Chun Doo Hwan
announced on April 14, 1987, to stop negotiations with the democratic
opposition over the constitutional revision to allow democratic competi-
tion and to continue the current system of authoritarian rule. Chun’s ter-
mination of the negotiations triggered the unification of the institutional
opposition and social movement forces. In May 1987, the revelation that
the regime had tortured a student, Park Jong Chul, to death, and the
ensuing cover-up attempt revealed by a Catholic priest, shifted the balance
of forces in the street confrontation as religious movements, white-collar
1 INTRODUCTION: MY DEMOCRATIZATION STUDIES IN RETROSPECT 9
workers, intellectuals, artists and other moral opposition forces joined the
democratic coalition. On June 10, 1987, the democratic coalition orga-
nized a united front, the National Coalition for Constitutional Reform
(NCCR), and occupied the hill of Myungdong Cathedral. Various factions
within the democratic coalition set aside their differences and made a con-
certed collective action for democracy. The NCCR postponed the debates
on the ideology of the new democracy by controlling the voice of intran-
sigent maximalist oppositions; instead, they focused their efforts on the
directly elected presidential system. As the democratic coalition grew and
overwhelmed the police in the street, the hard-liners became isolated, and
reformers within the regime seized their chance to take the lead in resolv-
ing the crisis. The confrontation in the street ended with the ruling
Democratic Justice party’s presidential candidate Roh Tae Woo’s
announcement to concede to restoring democratic competition including
a directly elected presidential system, and that Roh’s concession should be
accepted by two leaders of the opposition party, Kim Young Sam and Kim
Dae Jung.
The mode of democratic transition in 1987 was one of compromise
between reformers within the regime and moderate opposition. They
reached a second-best compromise in which the moderated opposition
guaranteed that the reformers would remain a strong political force that
could win in the democratic competition by assuring their incumbency as
well as their “safe return home” in return for conceding to the reformers’
demand to restore democratic competition. It was a mode of democratic
transition of what Przeworski calls “democracy with guarantees.”
Chapter 5 deals with the role of Korean Christian churches in the
democratization of South Korea. The late Samuel P. Huntington noted in
his The Third Wave that “the Christian churches, their leaders and com-
municants, were a major force bringing about the transition to democracy
in 1987 and 1988.”8 Korean churches participated in the democratization
movement, first by setting up a new legitimacy formula in a time of rapid
socioeconomic change, second by responding to demands from other
social movements in providing shelter to antigovernment dissidents and
finally by creating a new niche market for religious organizations.
In South Korea, both Protestant and Catholic churches participated
actively in the democratization movements and contributed a great deal to
the democratic transition of 1987. However, even though Protestant
churches suffered more imprisonment of their members and martyrs than
the Catholic Church did, the latter gained the upper hand in making
10 H. B. IM
Nevertheless, democracy under the Three Kims (Kim Young Sam, Kim
Dae Jung and Kim Jong Pil) era was not without defects. The era is also
known as the democracy of the “1987 system,” a period characterized by
the simultaneity of non-simultaneous historical times of modernity, pre-
modernity and post-modernity. The Three Kims era has many characteris-
tics of modernity of liberal democracy, including political and civil liberties,
regular and competitive elections, civilian control over the military, the
rule of law, transparency and accountability, and responsiveness of elected
representatives and government. However, during this period, pre-
modernity coexisted with modern liberal democracy, and Confucian patri-
monialism persisted among political leaders and the masses. Regionalism
in the form of expanded Confucian familism usually decided the outcome
of elections; delegative presidents acted like the Confucian patriarchal
father of the nation; and political parties were the personal parties of Three
Kims, which they ran like feudal lords. In the latter half of the Three Kims
era, globalization, the neoliberalization of the economy and the advent of
a neo-nomadic society driven by the IT revolution brought post-modernity
into Korean politics. The IT revolution revolutionized multi-directional
on- and offline communications and networking in ways that have changed
Korean democracy, making it smaller in size, faster in responding to peo-
ple’s demands, more interconnected, accountable and inclusive. At the
end of the Three Kims era, the modernity of liberal democracy, the pre-
modernity of Confucian patrimonialism and the post-modernity of inter-
net democracy existed simultaneously.9
Part III includes the two concluding chapters of this book. Chapter 10
deals with the superiority of democracy over authoritarianism even in
terms of economic performance. Many Koreans have felt nostalgia for the
economic miracle of Park Chung Hee whenever they meet economic dif-
ficulties, arguing that democratic government performs worse than
authoritarian government. By comparing the statistics on the economic
performance of democratic governments from 1987 to 2008 and those of
authoritarian governments from 1961 to 1987, I show that democratic
governments have, in fact, performed better, regardless of their economic
policy regimes in all categories of economic performance, except the GDP
growth rate. The average domestic investment rate in the democratic
period is 32.5%, while in the authoritarian period it was 31.1%. The gross
fixed capital formation (% of GDP) under democracy is 32.2%, while in the
authoritarian period it was 24.4%. The GDP growth rate in the democratic
period is 6.7%, while under authoritarianism it was 7.8%. One explanation
12 H. B. IM
for the 1.1% lower growth rate is the two regional and global economic
crises in 1997 and 2008; if the sharp decline in GDP growth during those
crises is taken into account, the GDP growth rate in both periods would
be almost the same. The international balance of trade shifted from peren-
nial deficits in the authoritarian period to continuing trade surpluses in the
democratic period. The inflation rate in democratic period is 4.7% while in
the previous period it was 12.7%. Lastly, the unemployment rate under
democracy is 3.4%, compared to an earlier figure of 4.3%.
All these statistics show the superiority of democracy over authoritari-
anism in terms of economic performance. Just as exogenous factors con-
tributed to spectacular economic growth during the Park Chun Hee era,
exogenous factors such as the “three lows” (low inflation, low currency
rate, low dollar value), the end of the Cold War and globalization also
contributed to the higher economic performance of democratic govern-
ments. However, such factors contributed much less to economic growth
during the democratic period of the Park Chung Hee era. Therefore, we
must look at the endogenous factors of economic growth in the post-
authoritarian democratic period. This means that democracy does func-
tion well endogenously for economic growth with its superior regime
properties, such as political rights, economic freedom, rule of law, account-
ability, transparency, political stability, government effectiveness and regu-
latory quality. During the democratic period, all these superior regime
properties contributed to the better economic performance of democratic
governments.
The lesson we learn from the Korean experience under two different
political regimes is that democracy matters for sustaining a high-growth
economy with equity. Without democratization in the mid-1980s, South
Korea could not have adjusted to the changed international political and
economic environments brought about by the end of the Cold War, the
spread of neoliberal globalization and the IT revolution. The country was
able to weather the East Asian financial crisis because, at that time, it was
a democracy in which the accountability mechanism worked to replace the
leaders and party responsible for causing the financial crisis with the lead-
ers of the opposition party, who were not tied to the establishment in poli-
tics, finance, business and public sectors. They thus dared to introduce
drastic reforms to overcome the crisis and resume a sustainably high eco-
nomic growth in a very short period of time. The performance of demo-
cratic governments in Korea since 1987 supports the democratic
development thesis, that is, “democracy first, economic development
1 INTRODUCTION: MY DEMOCRATIZATION STUDIES IN RETROSPECT 13
Our life is a long journey advancing straight forward step by step without
looking to the side. It is similar with the situation that when we ride on a
cart that is descending down a hill, we cannot stop that slowly descending
cart. (Jung Yak Yong, Analects with Interpretation Notes)
Jung Yak Yong taught us that history will move forward progressively,
even though it is a long journey. Like Jung Yak Yong, I believe that Korean
14 H. B. IM
democracy will move forward, and that the Korean people have the will
and capacity to prevent democracy from retreating or being sidetracked,
so that they will move forward toward a more sustainable quality
democracy.
Notes
1. Przeworski’s paper was published as the key theoretical chapter in the third
volume of Transition from Authoritarian Rule. Adam Przeworski, 1986.
“Some Problems in the Study of the Transition to Democracy” in Guillermo
O’Donnell, Philippe C. Schmitter and Laurence Whitehead (Eds.),
Transitions from Authoritarian Rule: Comparative Perspectives. Vol. III
(Baltimore: Johns Hopkins University Press).
2. Walt Whitman, 1865. “The Wound Dresser.”
3. Fritz Stern, 1966. The Path to Dictatorship: 1918–1933 (New York: Anchor),
p. xvii, quoted from Guillermo O’Donnell and Philippe C. Schmitter, 1986.
Transitions from Authoritarian Rule: Tentative Conclusions About Uncertain
Democracies (Baltimore: Johns Hopkins University Press), p. 78.
4. Huntington, Samuel P. 1991. The Third Wave: The Democratization in the
Late Twentieth Century (Norman: University of Oklahoma Press). At that
time South Korea was a typical counterexample of the thesis of moderniza-
tion theory that predict “the more well-to-do a nation, the greater the
chances that it will sustain democracy.” Lipset, Seymour Martin, 1959.
“Some Social Requisites of Democracy: Economic Development and
Political Legitimacy,” American Political Science Review 53 (March).
5. For possibilism and impossibilism, see Hirschman (1971).
6. Philippe C. Schmitter, 2012. “Two Pieces of Unfinished Business,”
European University Institute and Central European University
(February–March).
7. Philippe C. Schmitter, 2012. “The Ambidextrous Process of Democratization:
Its Implications for Middle East and North Africa,” European University
Institute (September).
8. Samuel P. Huntington (1991).
9. In the “long twentieth century of Korea” (1876–present) the simultaneity
of non-simultaneous historical times has existed as a defining characteristic
of modern politics since the opening of Korea in 1876. Therefore, the
“simultaneity of non-simultaneous” (Bloch 1935; Bloch and Mark Ritter
1977) in the Three Kims era was not an exceptional phenomenon of mod-
ern politics of the “long twentieth century.” I received the Best Academic
Award from Korean Academy of Science for the book Simultaneity of Non-
Simultaneous: Multiple Temporalities of Modern Politics in Korea (Korea
University Press, 2014).
1 INTRODUCTION: MY DEMOCRATIZATION STUDIES IN RETROSPECT 15
References
Bloch, Ernst. 1935. Erbschaft dieser Zeit (Heritage of Our Times). Frankfurt am
Mein: Suhrkamp Verlag.
Bloch, Ernst and Mark Ritter. 1977. Nonsynchronism and the Obligation to its
Dialectics. New German Critique 11: 22–38.
Hirschman, Albert O. 1971. Bias for Hope: Essays on Development in Latin
America. New Haven: Yale University Press.
Huntington, Samuel P. 1991. The Third Wave: Democratization in the Late
Twentieth Century. Norman and London: University of Oklahoma Press.
PART I
be met within the political and social order of populism. Popular political
activation and economic demands generated by the exhaustion of import-
substitution industrialization must be tightly controlled in order to “guar-
antee the social peace necessary for these faltering capitalisms to obtain
new transfusions of international capital.”4
The regime is a system of exclusion of the popular sector, based on the
reaction of dominant sectors and classes to the political and economic
crises to which populism and its developmentalist successors led. In turn,
such exclusion is necessary to achieve and guarantee “social order” and
economic stability; these constitute necessary conditions to attract domes-
tic investments and international capital, and thus to provide continuity
for a new impulse toward the deepening of the productive structures.5
O’Donnell’s thesis has contributed to the demystification of modern-
ization theory with regard to the political economy of regime change. It
has stimulated many research projects concerning dependent develop-
ment, corporatism, populism and the peripheral capitalist state.
Nevertheless, the thesis has its critics.6
First of all, O’Donnell is criticized for his economic determinist view of
regime change.7 Just as populism was associated with the stage of import-
substitution industrialization in his model, bureaucratic authoritarianism
has an “elective affinity” with the advance of internationalization of the
internal economy. Thus, O’Donnell presupposes that a political regime is
determined by the structural changes in the economic system. But not
every structural change in an economic system determines the political
outcome. In Colombia and Venezuela, for example, democratic regimes
have implemented policies of economic restructuring that, according to
O’Donnell’s thesis, could only be carried out by bureaucratic-authoritarian
regimes.8 Even though Colombia and Venezuela suffered from economic
problems similar to those of Argentina and Brazil, they escaped bureau-
cratic authoritarianism because the ruling power bloc found a compromise
solution with subordinate classes.9
Another disputed point is the functionalist assumption in O’Donnell’s
thesis that deepening requires the strong intervention of the state in civil
society in order to induce the transfer of international capital which has
the necessary financial capacity and technological expertise. To this end,
the state must guarantee stability and predictability, which may be sought
through repression of the political and economic demands of the masses.
In many cases, however, such functional requirements are a consequence
rather than a cause of bureaucratic authoritarianism.10
22 H. B. IM
is a serious threat to its domination. In the worst case, the ruling bloc has
the power to reverse the outcome of democratic competition.
When the authoritarian power bloc invalidates the outcome of formal
democratic competition, however, restricted democracy becomes unsta-
ble. The authoritarian power bloc opts for formal democracy over authori-
tarianism to provide legitimacy to its rule. When the legitimation function
of formal democracy is eroded by the invalidation of an election, the rul-
ing power bloc has little incentive to maintain democracy even in a
restricted form. It eventually opts for more naked and repressive authori-
tarianism. Thus, stable, restricted democracy requires a compromise that
does not exclude the interests of the popular masses completely. In other
words, if profits and wages are in a perfect zero-sum game and if the popu-
lar masses are activated politically, the probability of the invalidation of the
outcome of the electoral competition increases; thus, restricted democracy
loses support in the authoritarian power bloc. To sum up, in a restricted
democracy, the power bloc has the political power to impose an authori-
tarian solution and the popular masses lack the power to reverse it.
Whenever there is a conflict between the popular sector’s demands for
greater distribution of income and the necessity of maintaining accumula-
tion in a dependent capitalist economy, the power bloc may impose an
authoritarian solution. Even in this situation, however, transition to a
naked, repressive authoritarian regime can be avoided if the power bloc
reorganizes the economy to accommodate the material interests of the
masses within the confinement of dependent capitalist accumulation or if
it manipulates the popular masses to remain politically passive.
but not on the improvement in the standard of living of the middle and
lower classes.
Korean labor was not allowed to share equitably in the distribution of
earnings from economic growth. Instead, the big bourgeoisie and the
high-ranking state bureaucrats monopolized most of the benefits from
economic growth.25 Finally, the regime tried to “depoliticize” social issues
in terms of technological rationality. Efficiency, rationality and social sta-
bility replaced democracy as the basis on which the regime laid claim to
legitimacy.26 Although the BA regime in South Korea exhibited traits simi-
lar to those found in Latin America, it developed differently.27 First, in
South Korea, the regime was not justified by an economic crisis. Park justi-
fied Yushin on the pretext of preserving the accomplishments of economic
development and maintaining a high rate of economic growth.28
Second, at the time of the inauguration of Yushin, the Korean economy
was not at the transitional stage from import-substitution industrialization
to deepening. The internationalization of the economy began in 1964
when the state launched an export-platform project. In 1972, there was
no change in economic policy from that of the pre-bureaucratic authori-
tarian democratic regime. The deepening of the Korean economy began
only in the mid-1970s and was the consequence rather than the cause of
bureaucratic authoritarianism. The “deepening” hypothesis is thus inap-
propriate in the Korean case.
Third, pre-bureaucratic authoritarian popular political activation was
not serious enough to threaten the ruling power bloc. Popular political
activation was higher in 1971 than before. Nevertheless, there were no
serious anti-union or anti-leftist fears among the military, the upper and
middle classes and state bureaucrats. Labor and other popular protests
increased, but labor and the popular sector did not have the strength to
pose any serious threat to the ruling power bloc. Fourth, a strong state
apparatus had already been established long before the authoritarian
regime emerged. Thus, the thesis that bureaucratic authoritarianism is
needed to establish a strong state is not supported by the Korean case.29
Finally, no bureaucratic authoritarian coup coalition existed on the eve
of bureaucratic authoritarianism that was comparable to the Latin
American cases. Neither the politically weak national bourgeoisie nor the
politically indifferent international bourgeoisie pressed for a regime
change. No evidence has been found to hold them responsible for launch-
ing a bureaucratic authoritarian regime in South Korea. Why, then, did
such a regime emerge in South Korea under circumstances so different
28 H. B. IM
– Drága papom.