1. Research Goals and Methods

￮ The Saemangeum Project requires a strategic redesign to adapt to several key factors. These include the 2025 government reorganization, the tightening of global carbon-neutrality frameworks—such as the IMO 2050 Net-Zero target, CBAM, and RE100—shifts in supply-chain strategies from major countries, advances in cold-chain and clean-energy technologies, and changes in the local policy environment in Jeonbuk.

￮ During a work briefing at the Saemangeum Development Agency in December 2025, President Lee Jae-myung emphasized the importance of expediting projects that can be realized within his term, stressing the need to identify new strategic initiatives to catalyze tangible development outcomes for Saemangeum

￮ This study aims to provide a strategic and operational roadmap for transforming Saemangeum into a carbon-neutral cold-chain logistics and energy-coupling city, in response to the shifting development environment shaped by the opening of the new Saemangeum Port and the phased development of industrial complexes, a hinterland city, and clean-energy infrastructure.

￮ A core objective of this study is to move beyond conventional SOC development by designing a model that showcases a future industrial and logistics ecosystem that integrates ports, industrial complexes, energy infrastructure, cities, and data into a single, unified mechanism.

￮ Through an integrated approach, this study examines policy needs by employing the following research methods: a literature and policy assessment; global response strategy benchmarking; technology and industry trend analysis; a review of Saemangeum development and SOC plans; expert Delphi surveys; and the SWOT, TOWS, and value chain frameworks.

2. Conclusions and Policy Recommendations 

￮ The key challenge in developing Saemangeum is not the shortage of individual projects but the lack of connectivity among ports, industrial complexes, cities, and energy networks; therefore, an integrated, coupling-based strategy is essential to incorporate all future infrastructure into a unified system.

￮ Amid the accelerating transition of global supply chains toward decarbonization, clean energy, and digitalization, it is imperative that Saemangeum, Korea’s only integrated development zone, become a carbon-neutral port and industrial complex that is also an energy hub.

￮ Experts participating in the Delphi survey concluded that Saemangeum should move beyond a single infrastructure project to function as a testbed for national transition policies. This includes prioritizing infrastructure integration, clean-energy demonstration, policy and regulatory institutionalization, industrial ecosystem building, anchor tenant regulatory institutionalization, industrial ecosystem building, anchor tenant attraction, and the establishment of central government-led R&D–demonstration–commercialization pipelines.      

￮ The proposed “Saemangeum carbon-neutral cold-chain logistics and energy-coupling city” represents a system-based urban model, rooted in linkage, integration, demonstration, and data-driven operations. To embody this model, this study presents six strategic pillars, twelve key initiatives, and an implementation framework. 

￮ The mid- to long-term strategy involves creating a phased model that focuses on the interactions among port, industrial, urban, energy, and digital infrastructures. This plan will progress from pilot demonstrations to demand-driven clusters, culminating in Saemangeum’s transformation into a global energy and logistics hub. 

￮ Anchor projects will drive the advancement of the region’s industrial ecosystem. These initiatives include clean-fuel supply and bunkering, low-temperature and cold-energy sharing systems, export-oriented cold-chain businesses, integrated digital twin–EMS management platforms, and regulatory sandbox, green finance, and public–private investment frameworks

￮ (1) Establishing integrated governance and a single master plan.  

- An integrated coordination committee and unified program office will be established under the Office for Government Policy Coordination. Its role will be to consolidate ports, industrial complexes, cities, energy infrastructure, and data into a single planning, budgeting, and performance framework. It will also legally institutionalize a unified master plan that addresses development mismatches, overlapping investments, and fragmented accountability.

￮ (2) Creating an integrated industrial and energy hub based on clean energy, cold-chain logistics, and digital platforms    

­It is necessary to implement green ammonia, hydrogen, and e-fuel demonstration projects and create port–industrial–urban energy-circulation clusters. It is also vital to foster a coupling ecosystem that integrates export-oriented cold-chain, food, and bio value chains with a digital twin-based integrated operations platform.

￮ (3) Establishing a global testbed and a sustainable investment and fiscal system

­Efforts should focus on attracting global anchor firms from key strategic sectors and on fostering a demonstration-to-commercialization testbed through regulatory sandboxes and investment promotion zones, thereby laying the foundation for sustainable projects within a multilayered financing structure that leverages green finance, public–private investment, and joint funds.

￮ In addition to accelerating Jeonbuk’s industrial transition, the Saemangeum carbon-neutral cold-chain logistics and energy-coupling city has the potential to serve as a new national strategic model for Korea, requiring a proactive joint initiative from the central government, local governments, and the private sector. 

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