[EAI-CISS NASD 2008] ROK-China 'Strategic Cooperative Partnership' and the North Korean Issue

EAI-CISS Joint ROK-China Northeast Asia Security Dialogue

Student Forum

Student Working Paper Series No. 1-2

Kim Min-sung, Doctoral Candidate, Graduate School of International Studies, Korea University

Introduction

The ROK-China relationship has developed at a remarkable pace in a relatively short period since the establishment of diplomatic ties in August 1992. Bilateral trade, which stood at only US$6.3 billion at the time of normalization, reached US$145 billion as of 2007, an increase of 22 times compared to 1992. Furthermore, people-to-people exchanges, which were only about 130,000 in the first year, recorded approximately 5.4 million in 2007, showing remarkable growth. Based on active economic and social exchanges, the ROK and China agreed on a 'friendly cooperative relationship' and have developed their cooperation by expanding and deepening it across all fields, including politics, economy, and culture, progressing from the 'Partnership for Cooperative and Friendly Relations in the 21st Century' in 1998, to the 'Comprehensive Cooperative Partnership' in 2000, and to the 'Strategic Cooperative Partnership' in 2008. The Republic of Korea and China are experiencing a leap in their relationship based on geographical proximity, long historical ties, and complementary economic structures.

The establishment of ROK-China diplomatic relations also holds significant diplomatic and security implications. Through the normalization of relations, South Korea had to sever ties with Taiwan, and China had to bear the diplomatic cost of confronting North Korea, its long-time ally. However, on the other hand, it provided an opportunity to end the hostile relations that had continued for over 40 years since the establishment of the People's Republic of China in October 1949. It also had a positive impact on the strategic environment in the East Asian region. By establishing diplomatic relations between countries with different political systems and ideologies, it symbolically demonstrated that the era of post-Cold War had arrived in East Asia, contributing to the building of peace and prosperity in the region (Hyun In-taek 2005, 109-110).

The Lee Myung-bak administration, inaugurated in 2008, is pursuing an active foreign policy focused on strengthening relations with major countries based on the principle of thorough pragmatism, and relations with China are no exception. As mentioned above, the ROK-China relationship, which has steadily developed since the normalization of ties in 1992, was elevated from the existing 'Comprehensive Cooperative Partnership' to 'Strategic Cooperative Partnership' through joint statements made during three summit meetings held in both countries in May and August 2008.

One of the distinctive aspects of the elevation of ROK-China bilateral relations is the expansion of the scope of strengthened cooperation. The two countries agreed to further enhance active exchanges in existing economic, social, and human fields, while also actively pursuing cooperation in political, military, and security areas. Geographically, they also agreed to jointly address issues beyond bilateral relations, at the levels of the Korean Peninsula, Northeast Asia, and the global community.

As the two countries have agreed to develop into a comprehensive cooperative relationship, attention is focused on the North Korean issue, which is a matter of common interest from a security perspective. The ROK and China have traditionally shown differences in their perceptions of North Korea, with South Korea viewing North Korea as an adversary and China as a friendly nation, thus starting from different points in establishing their relationship. Although the North Korean issue has been discussed since the normalization of ROK-China relations, the differences in their positions have persisted. Consequently, despite a common consensus on the importance of strengthening diplomatic and security cooperation for stability in Northeast Asia in the post-Cold War era, efforts to address the variable of North Korea have largely remained within the realm of rhetoric.

Thus, North Korea, due to differing perceptions of threat, has been an 'impeding factor' in the development of ROK-China relations. Furthermore, cooperation between the two countries on the North Korean issue has been cautious compared to multilateral cooperation efforts such as the Six-Party Talks. However, North Korea's missile and nuclear tests in the summer and fall of 2006 served as an opportunity to reduce these differences in perception. North Korea could be perceived as a direct (for South Korea) and potential (for China) security threat to both countries, thus affecting their overall relationship. Given the elevation of bilateral relations in 2008, it is worth considering whether North Korea will continue to be merely an 'impeding factor' for both countries. Considering the rapid development of ROK-China relations and the high degree of interdependence between the two nations, the answer is likely to be 'no.' Instead, there is a high probability that North Korea will be transformed into a 'common denominator' that must be resolved together. However, for this to be sustained, various conditions must be met, and tasks must be undertaken.

This paper aims to theoretically illuminate the development of ROK-China relations by focusing on 'changes in state behavior according to objectives' in international relations, and to emphasize that the relationship elevation to 'Strategic Cooperative Partners' as of 2008 is a result of the convergence of the two countries' common interests. Therefore, this paper will: 1) theoretically and practically approach the elevation of ROK-China relations and the North Korean factor, 2) examine the content and meaning of the 'strategic cooperation' between the two countries and its linkage to a common perception of North Korea, and 3) within that framework, outline the future of bilateral cooperation for resolving the North Korean issue and present tasks for relationship development.

2008 marked a turning point for a new leap forward in ROK-China relations. Both the ROK and China must fundamentally understand the meaning of a 'Strategic Cooperative Partnership' and build a common vision. Furthermore, they must develop mutual trust in this process. Building trust will be particularly important in the process of initiating and developing full-fledged dialogues on North Korean issues, which are sensitive matters for both countries yet require joint efforts for resolution. Moreover, if South Korea and China do not thoroughly prepare situation management and response measures for North Korean issues, including the North Korean nuclear issue, based on common perceptions and mutual understanding, they must recognize that the variable of North Korea could once again become an obstacle between the two countries... (continued)