60 Years of Korea-Japan Relations: 

South Korea’s Role in Advancing Japan’s Approach to North Korea

Lee Ki-tae

Senior Research Fellow, Sejong Institute

During the 11th Plenary Meeting of the 8th Central Committee of the Workers' Party of Korea convened from December 26 to 28, 2024, North Korea criticized the U.S.-Japan-South Korea alliance as an "aggressive nuclear military bloc" and labeled South Korea an "anti-communist outpost" for the U.S." Despite these criticisms, North Korea indicated a willingness to engage diplomatically with Japan and the U.S.

The year 2025 marks the 60th anniversary of the 1965 Treaty on Basic Relations Between Japan and South Korea. Examining North Korea-Japan relations in the context of this historic agreement highlights the impact of international dynamics and South Korea's role in shaping their trajectory.

Japan has traditionally taken a "reactive diplomacy" approach to North Korea, responding to shifts in global politics and U.S. policies. While ties have long been stalled over issues like North Korea's nuclear program and the abduction of Japanese citizens, recent developments hint at subtle changes in Japan’s stance.

In May 2019, Prime Minister Abe Shinzo proposed an "unconditional meeting" with Kim Jong-un, a sentiment echoed by the Suga Yoshihide and Kishida Fumio administrations. However, the two sides remain divided on the meaning of "unconditional," particularly concerning the abduction issue.

North Korea claims that the abduction issue was resolved during the 2002 North Korea-Japan summit, when Kim Jong-il apologized and disclosed information on abductees. Japan, however, insists on the return of all surviving abductees, leaving the issue unresolved.

On May 27, 2023, Prime Minister Kishida expressed his willingness to advance high-level discussions under his direct supervision. Reports from The Asahi Shimbun on September 29, 2023, indicated that secret contacts between North Korea and Japan had occurred twice in March and May in major Southeast Asian cities. Kishida’s statement is presumed to reflect positive outcomes from these secret meetings.

In January 2024, Japan experienced a devastating earthquake in Ishikawa Prefecture. In a rare gesture, Kim Jong-un sent a letter of condolence to Kishida, addressing him as "Your Excellency." In February, Kim Yo-jong suggested the possibility of Kishida visiting Pyongyang, marking a brief window for potential dialogue.

On March 25, Japanese Chief Cabinet Secretary Hayashi Yoshimasa rejected North Korea's claim that the abduction issue was resolved, emphasizing the "non-exclusion of the abduction issue." In response, Kim Yo-jong announced North Korea's "rejection of contact" the following day, and on March 29, Foreign Minister Choe Son-hui declared further contact impossible.

Despite North Korea's public refusal to engage with Japan, reports (JoongAng Ilbo, June 13, 2024) indicated that a Japanese politician from a prominent family met with three North Korean officials near Ulaanbaatar, Mongolia, in mid-May. The North Korean delegation reportedly included members of the Reconnaissance General Bureau and foreign currency officials. The Japanese government merely stated, "We refrain from commenting," suggesting informal contacts between the two countries continue in third-party locations.

Before taking office in October, Prime Minister Ishiba Shigeru expressed in media interviews the need for Japan and North Korea to establish liaison offices in Tokyo and Pyongyang to officially verify the status of abduction victims. He opposed sudden summits, like Prime Minister Koizumi Junichiro’s 2002 visit to Pyongyang, favoring a gradual approach through liaison offices.

However, Japan’s conservative factions and the Association of Families of Abduction Victims opposed his proposal, fearing it would let North Korea control the narrative and delay resolution.

Despite the transition from Kishida Fumio to Ishiba Shigeru in 2024, North Korea-Japan relations remain stagnant. Both sides advocate for "unconditional meetings" while holding informal contacts in third countries. However, sharp disagreements over the abduction issue—North Korea's claim of resolution versus Japan's demand for all abductees' return—maintain the stalemate.

Major changes in Japan-North Korea relations are unlikely in 2025, with the Ishiba administration expected to continue pursuing "unconditional meetings" while addressing the concerns of the Association of Families of Abduction Victims.

Domestically, the Ishiba administration lacks the political flexibility to engage with North Korea due to the LDP-Komeito coalition's failure to secure a majority in the House of Representatives election. Externally, Japan is expected to prioritize bolstering the U.S.-Japan alliance, trilateral cooperation with the U.S. and South Korea, and its own defense capabilities in response to North Korea’s support for Russia and its closer ties with Russia and China.

South Korea’s Role in North Korea-Japan Relations

South Korea's proactive role is key to fostering rapprochement between North Korea and Japan. Strengthening the South Korea-U.S.-Japan trilateral framework and South Korea-Japan relations could create opportunities for dialogue. Feeling diplomatically isolated, North Korea might seek engagement with Japan, potentially for support or as an alternative channel for dialogue with the U.S.

Japan and North Korea can also engage when improved inter-Korean relations are supported by South Korea's active mediation. South Korea should recognize its potential to facilitate breakthroughs in North Korea-Japan relations and shape its foreign policy accordingly.

South Korea should enhance its mediation to support North Korea-Japan normalization, promoting denuclearization and peace, while collaborating with Japan on human rights and economic aid discussions.