Upgrading U.S.-Japan-S. Korea ties

Economic and political trends encourage leaders to delicately address history and pragmatically prioritize cooperation. South Korea has overcome the legacies of war to achieve hard-earned democracy and prosperity. Japanese leaders have come to respect South Korea’s importance and appreciate shared values with both American and Korean societies. The difference between South Korea’s election last month and that of five years ago suggests that government legitimacy now rests on economic growth and consolidation of democratic institutions, rather than on ethnic nationalism or historical resentment.

South Korea no longer needs a victim’s national narrative as it competes and cooperates at the highest international standards. Tokyo can now demonstrate it deserves South Korea’s trust by being sensitive to historical issues while articulating the path of Japan’s military normalization and proactive diplomacy. The path for improving bilateral relations includes resuming annual summits, discussions of exclusive economic zones and a free trade agreement, and increasing civil society exchanges.

Despite being connected by history, geography and strategy, the U.S.-Japan and U.S.-South Korea alliances are not sufficiently coordinated for meeting international challenges. The three militaries could combine certain training exercises, coordinate relief deployments for natural disasters, and explore complementarities for peacekeeping and reconstruction efforts. The three governments could deepen contingency planning and develop shared visions of North-South Korean reconciliation, East Asian regional integration, and China’s international role. A trilateral security declaration may be desirable, along the lines of the 2007 Japan-Australia Joint Declaration.

In December, Japan and the U.S. successfully renegotiated alliance finances. Burdensharing and basing arrangements are difficult to update, however necessary. It is important that allies negotiate in good faith and promptly implement agreements. Doing so requires political will and clear communication with publics about the value of alliances. Washington should consult closely with Tokyo and Seoul on the roles and missions each prefers to contribute toward international security. Japan may decide it is willing to cooperate on missile defense beyond its homeland, and South Korea may decide to join the Proliferation Security Initiative.

Six-party talks must avoid backsliding by North Korea during the transition of South Korean leadership. U.S.-Japan-South Korea policy coordination is a necessary condition for holding North Korea accountable for denuclearization. First, North Korea should not be allowed excuses (such as delays of promised aid) for stalling the six-party agreement. Second, South Korea and the United States should push North Korea to meet Tokyo’s demands for transparency about the fate of abductees, while Japan’s leaders ensure that this emotive issue does not trump Japan’s national interests in multilaterally addressing Pyongyang’s nuclear programs. Third, regular meetings of the Trilateral Coordination and Oversight Group (TCOG) should be resumed so that Seoul, Tokyo and Washington stay on the same page in dealing with North Korea.

In 2008, if Pyongyang continues down the path of nuclear dismantlement, economic aid and political recognition will need to be delivered in stages along the way. If North Korea fails to meet its commitments, coordinated pressure will be necessary. Either way, U.S.-Japan-South Korea cooperation will be essential.

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