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Japan-South Korea Relations – a Downward Spiral More Than “Just” Historical Issues Alexandra Sakaki

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Japan-South Korea Relations – a Downward Spiral More Than “Just” Historical Issues Alexandra Sakaki NO. 35 AUGUST 2019 Introduction Japan-South Korea Relations – A Downward Spiral More than “Just” Historical Issues Alexandra Sakaki The latest dispute between Japan and South Korea over compensation for former Korean forced labourers appears to be following a familiar pattern. Historical spats between two most important democracies in Northeast Asia – especially over the phase of Japanese colonial rule – are nothing new. But the tensions run deeper this time, and mutual mistrust has hit unseen heights. Japanese frustration has grown markedly, with Tokyo feeling duped by Seoul. While there have always been tussles over diverging interpretations of history, current domestic and regional develop- ments are an exacerbating factor. Now leaders in both capitals are publicly ques- tioning whether the other side still shares similar core values and strategic goals. The growing rift could easily affect the regional balance of power, weakening America’s position as ally of both Japan and South Korea. Japanese-South Korean relations are at their that South Korea had inadequately man- worst since normalisation in 1965. The aged sensitive supplied items used in arms relationship is so tense that Japanese Prime production. Also, Tokyo said, there had Minister Abe Shinzō refused bilateral talks been no bilateral talks on export controls with South Korean President Moon Jae-in since 2016. at the G20 summit in Osaka at the end of The true reason for the tightening of June. Tokyo’s 1 July announcement of export controls, however, is likely to be restrictions on exports of three chemicals the Japanese government’s ire over South to South Korea caused further consterna- Korea’s actions in the dispute over com- tion. Japan dominates the global market pensation for former Korean forced labour- for these materials, which are required for ers. Tokyo wants to persuade Seoul to make manufacturing smartphone displays and concessions. In a declaration on the tight- semiconductors. Tokyo also decided on ening of export controls, Prime Minister 2 August to drop South Korea from the Abe himself mentioned the issue of forced “whitelist” of countries it largely exempts labourers: Because, he said, South Korea from catch-all export controls for sensitive was failing to abide by international agree- goods. Japan argues that it has evidence ments in its handling of this issue, Tokyo had to assume that it was also breaking its The conflict runs especially deep in promises concerning trade in sensitive relation to the question of compensation. goods. In response, Seoul announced that it The escalation was triggered by rulings by would challenge Tokyo’s export controls the Korean Supreme Court in October and before the WTO and remove Japan from its November 2018, requiring the Japanese list of preferred trading partners. firms Nippon Steel & Sumitomo Metal and The bilateral relationship had already Mitsubishi Heavy Industries to make per- been characterised by tensions under the sonal compensation payments to former previous two South Korean governments forced labourers. Further cases against other (Park Geun-hye and Lee Myun-bak). For Japanese firms are under way, affecting example the Park government held no in all about one thousand former forced summit with Tokyo for almost three years. labourers. Tokyo asserts that an agreement Japanese and Korean experts and research- on compensation was signed along with ers are at a loss about how to stop the the 1965 Treaty on Basic Relations, under downward spiral. which Japan provided $300 million in eco- Disagreements between Japan and South nomic aid and $200 million in reconstruc- Korea over their shared history are nothing tion loans. In return South Korea regarded new. The national identities of both count- claims from the colonial period as settled. ries are coloured by explicit grievances, As far as the Japanese were concerned, the which hinder reconciliation. Japan is the agreement covered both state and private central negative point of reference in claims. The issue of forced labourers had modern South Korea’s self-image, and anti- been explicitly discussed in the talks and Japanese attitudes form an integral com- until the 2018 court rulings Seoul had ponent of South Korean nationalism. On shared the line that the claims had been the other side, Japanese right-wing nation- settled by the 1965 agreement. alists in particular feel that their proud Now, in 2018, the South Korean supreme nation receives excessive criticism for its court argued that the 1965 Treaty on Basic past, especially from Korea. Relations had only regulated state claims, The two countries have often argued not individual ones. This interpretation about their history in the past. But in recent tallies with a trend in international law in years the level of mistrust has reached pre- recent decades to enhance individual legal viously unknown dimensions. Although protections and place greater weight on these are the most important democracies human rights. The Korean claimants are in Northeast Asia and central allies of the currently seeking to have assets of the re- United States, government officials and spective Japanese companies in South Korea independent observers on both sides are seized to fund compensation payments. increasingly voicing doubts that the respec- Japan has protested against this course of tive other side is guided by similar values action and called on South Korea to agree and strategic objectives. Current domestic to arbitration under the rules agreed in and regional developments further burden 1965. But the Moon government has nei- the relationship. ther agreed to this proposal nor made any moves to stop the seizure of assets. From Tokyo’s perspective Seoul has Escalating strife and mistrust broken with the 1965 treaty and is under- mining the legal foundation of the bilateral The dispute between Japan and South Korea relationship. Seoul responds that the rul- has been dominated by two issues in recent ings affect the scope of the 1965 treaty, but months: the question of compensation do not fundamentally challenge its appli- for former Korean forced labourers under cability. South Korea appeals to Japan, as a Japanese colonial rule, and a military inci- democracy, to show respect for the inde- dent in December 2018. pendence of its judiciary. Tokyo is consider- SWP Comment 35 August 2019 2 ing taking the dispute to the International mutual mistrust. Instead of discussing the Court of Justice; that, however, would events at working level and – regardless of however require Seoul’s consent – which the question of fault – seeking means to Japanese and Korean researchers agree prevent such incidents in future, Japanese would be unlikely. Korean researchers and and South Korean representatives accused journalists point out that a lengthy inter- each other of lying. Each side speculated national process would be unfair to the about reasons why the other might have an victims, who are already extremely old. interest in such an incident. South Korean Independent Japanese experts assert that journalists and researchers argued that the South Korea would oppose involving the Abe government had provoked the incident International Court of Justice because of in order to step up pressure on Seoul in the the precedent that would create for Seoul’s forced labourers dispute and to improve its territorial dispute with Tokyo over the public approval ratings. Japanese research- Liancourt Rocks (Dokdo/Takeshima). ers in turn alleged that the South Korean Lacking alternative options, Japan has vessel had not actually been conducting a now chosen to tighten export controls. As rescue operation, but had in fact been in- such it has taken – like the United States, volved in illegal activities that it wished China and other countries – the inter- to keep concealed from the Japanese. For nationally criticised route of using trade example, they asserted, Moon might have instruments to pursue diplomatic objec- been seeking to supply funds to North tives. While the criticisms may be justified, Korea with the aim of improving relations. Tokyo’s actions also reveal how powerless it feels in the face of current South Korean policy. The move has been well received Social and domestic developments by the Japanese public, which certainly suited the Abe government in advance of Current social and domestic tensions make the elections to the House of Councillors on it even more difficult for both sides to seek 21 July. It is however doubtful whether compromise in historical disputes. Recent economic pressure will persuade Seoul to years have witnessed a fundamental gener- step back. It is more likely that South ational changeover in the political elites of Korean public opinion will turn further both countries. Politicians born after the against Japan and that the fronts will hard- Second World War now define the agenda en on both sides. in Japan. Their attitude to the past is The two countries have also been em- shaped much less by actual experience of broiled in a second bitter dispute over a the war and the immediate post-war era or maritime incident that occurred on 20 De- by personal feelings of guilt. They expect cember 2018 within Japan’s exclusive eco- South Korea to pursue a pragmatic line nomic zone. According to the Japanese, looking to the future rather than the past. a South Korean warship undertaking a Nationalist tendencies have also grown rescue operation for a North Korean vessel among Japanese politicians. Abe himself is directed its fire-control radar at a Japanese a very controversial figure in South Korea, patrol aircraft observing the manoeuvre. where he is seen as a revisionist who rela- Seoul rejected the accusation and asserted tivises Japanese colonial atrocities and that the Japanese plane had approached the wants to restore Japan’s former military South Korean vessel on a dangerous low- strength. altitude course. The defence ministries of South Korean politics is increasingly both countries issued video footage to influenced by the so-called “386 genera- back their claims.
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