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In an attempt to develop the country of Korea during an economic crisis, the government established the Build-Transfer-Operate (BTO) system, which allowed a toll fee to be applied to many roads. However, in order for the system to work, an additional system, the Minimum Revenue Guarantee, had to be introduced. The MRG guaranteed companies receive a "minimal income level from the government" when the toll fee fell "short of projections." This angered many people who did not use the roads due to the high toll fee.