The Constraints and Drivers of Japan-South Korea Rapprochement
8 MIN READSep 5, 2022 | 14:00 GMT
South Korean Foreign Minister Park Jin (left) and Japanese Foreign Minister Yoshimasa Hayashi attend a meeting in Tokyo on July 18, 2022.
South Korean Foreign Minister Park Jin (left) and Japanese Foreign Minister Yoshimasa Hayashi attend a meeting in Tokyo on July 18, 2022.
(KIM KYUNG-HOON/POOL/AFP via Getty Images)
Foreign and domestic constraints will limit the scope of the ongoing rapprochement between South Korea and Japan, though steps to normalize trade relations and increase intelligence sharing are likely in the years ahead. South Korean President Yoon Suk Yeol is attempting to make good on his campaign promise to restore and re-normalize relations with Japan, with Park Jin, the South Korean Foreign Minister, regularly meeting with his Japanese counterpart, Yoshimasa Hayashi, to find ways to resolve bilateral disagreements. South Korean and Japanese relations traditionally go through an up-and-down phase depending on the political leanings of the South Korean president, while Japanese views are slightly more standard in what they want out of South Korea for good relations. Liberal South Korean leaders would like Japan to take more responsibility for its World War II-era atrocities and thus hold a colder view of cooperation with Japan, while conservative South Korean leaders tend to view Japan as a necessary part of northeast Asian security (South Korea-U.S.-Japan) against communism from North Korea and China and have a warmer attitude toward Japan. Most Japanese conservative leadership would like South Korea to stop bringing up World War II-era atrocities committed by Imperial Japan, abide by previous treaties or agreements, and move forward with contemporary security, economic and social concerns. The two countries have been in a trade war since 2019 that started when Japan removed South Korea from the ''whitelist'' of favored trading nations because of a 2018 South Korean court ruling that Japanese firms were still liable to pay damages to victims of wartime atrocities. South Korea responded by boycotting some Japanese goods and Japanese-style stores and restaurants like Izakayas (popular drinking establishments) in South Korea, and many of its citizens stopped traveling to Japan for tourism. Seoul also dropped the term ''partner'' from its description of Tokyo in a defense white paper in 2021, which is a downgrade in how South Korea views the trustworthiness of Japan and prevents the countries from working closely.
The two nations continuously argue over Japan's responsibility for wartime atrocities committed by the Japanese empire from 1910-1945. Tokyo contends the issues were settled under the 1965 Treaty of Basic Relations, but Seoul has argued that those deals were made by South Korea's then-military dictator Park Chung-hee so the terms must be renegotiated.
In 2015, after negotiating with South Korea's conservative president Park Geun Hye, Japan paid $8.3 million to settle the longstanding complaints from former South Koren ''comfort women,'' who the Japanese army used as sex slaves during World War II. In 2017, under liberal President Moon Jae-in, South Korean courts argued that the 2015 deal was invalid and must be renegotiated. In 2018, South Korean courts ruled that Japanese automobile company Mitsubishi was liable and owed roughly $750,000 to victims of WWII-era forced labor, which Mitsubishi has since refused to pay, backed by Tokyo who cites the 1965 Treaty of Basic Relations treaty.
South Korean civic groups and the government routinely protest that some Japanese textbooks omit some of the worst actions the Imperial Japanese Army took during its occupation of South Korea from 1910-1945.
Japanese officials sometimes visit the controversial Yasukuni Shrine, which commemorates convicted war criminals from World War II along with other fallen Japanese soldiers. The site also has enshrined some Koreans against their will, which garners strict rapprochement from South Korean officials and citizens.
In the coming years, shared views on North Korea and China, along with U.S. pressure, will drive South Korea and Japan to improve their bilateral relationship. South Korea is concerned about a more bellicose North Korea and will seek to rely more on Japan to protect South Korea's eastern flank with overlapping missile defense systems and naval patrols, and threaten North Korean territory with conventional arms in the event of a conflict on the peninsula. To achieve this, Seoul and Tokyo must have robust intelligence-sharing and regular military coordination. Japan would like South Korea to present a credible first-strike threat to North Korean leadership and ballistic missile launchers that threaten Japanese territory. Additionally, in the case of a conflict in Taiwan, China is likely to attack Japan because they would need to cripple U.S. forces on Okinawa. This would result in war between the two countries and economic ties being cut. If such a war is declared, Japan will need a closer relationship with South Korea to maintain access to the South Korean trade and tourism market, and, in turn, cushion the blow of losing that access to China (Japan's largest trade partner). The U.S. military leadership also wants South Korea and Japan to maintain close bilateral relations to lessen the United States' security burden in Northeast Asia (namely, leading actions against North Korea), which would free U.S. forces to focus on a potential Taiwanese conflict.
A statement issued by the U.S. Department of Defense in June stressed the need for improved bilateral ties between South Korea and Japan, which would relieve the United States from serving as the middle-man for intelligence-sharing and military coordination between two of its closest regional allies.
North Korean ballistic missiles tend to land between the Korean peninsula and Japan. In 2019, North Korea threatened then-Japanese Prime Minister Shinzo Abe with a ballistic missile strike.
However, South Korea and Japan's economic dependence on China, as well as domestic social pressures, will limit the scope of any bilateral agreements. China is the largest trading partner for both South Korea and Japan, and is willing to exercise economic coercion against its neighbors for pursuing policies that overtly displease Beijing. Without a formal agreement, tensions over the disputed Dokdo/Takeshima Island, while in essence settled as South Korean territory, will remain a thorn in the side of future discussions and negotiations between Seoul and Tokyo. In addition, anti-Japanese sentiment among South Korean voters will continue to dampen Seoul's appetite for increased cooperation with Tokyo, while the nationalistic sentiments in Japan will similarly restrict Japanese politicians' willingness to publicly pursue rapprochement with South Korea.
China accounts for roughly 25% of South Korea's exports and 21.6% of Japanese exports. The United States is second with 15% and 18%, respectively.
Chinese citizens organized a boycott of Lotte, a South Korean chaebol (conglomerate) in 2017 following the South Korean deployment of THAAD, a missile defense system that Beijing heavily criticized as threatening Chinese territory; the last Lotte store in China will close by the end of this year. During an address to Japanese officials this past June, the U.S. ambassador to Japan warned against Chinese economic coercion and intellectual property theft.
South Korea and Japan claim ownership of an island that sits between the two countries, called Dokdo in South Korea and Takeshima in Japan (the international community calls it the Liancourt Rocks). Currently, South Korea has de-facto ownership over the island, with a South Korean family living there, and a police force stationed on the island as well. But the Japanese government still claims the island.
Japan and South Korea will not become treaty allies anytime soon, though they will likely resume small-scale bilateral naval exercises and military cooperation. Conservative President Yoon's five-year term will not see South Korea sign a formal alliance agreement with Japan, as the bilateral problems that inhibit such a treaty will not be quickly resolved. But Yoon will restore the normal business ties with Japan that were cut during his predecessor's term, with red tape being reduced or eliminated on key industrial exports, and tourism resuming to pre-trade war levels. Bilateral naval exercises are likely to take place as well, but they are extremely unlikely to occur in South Korean waters as long as the Japanese Maritime Self Defense Force flies the controversial Rising Sun flag. It is extremely likely that the two nations will proactively share intelligence specifically regarding North Korea (they never truly stopped sharing reactive intelligence related to missile launches, such as trajectories and impact locations). But it is somewhat unlikely that South Korea and Japan will agree on a single North Korea containment strategy, nor will the nations agree on a Chinese or Russian strategy. Seoul and Tokyo will also likely discuss cooperating on supply chains as part of the CHIPS 4 alliance, a U.S. proposal to boost semiconductor manufacturing between Japan, South Korea, Taiwan and the United States.
The election of a liberal South Korean president in 2027 would threaten continued Japanese-South Korean rapprochement. Like his conservative predecessors, Yoon supports building closer relations with Japan within the U.S. security umbrella. But liberal South Korean presidents have tended to lean closer toward China, and have traditionally supported more autonomy from the U.S.-led security umbrella in the region.
The Rising Sun flag was adopted in 1870. It was the main flag of the Imperial Japanese Army and Navy during World War II. Many liken it to the Nazi swastika and believe it should be removed from contemporary use.