Understanding the ROK-U.S. Alliance’s Ironclad Commitment

Lt. Col. Alexander S. Park/Army National Guard of the United States

The Republic of Korea (ROK)-United States alliance has long been a pillar of stability for the Korean Peninsula and the Indo-Pacific. In April 2023, South Korean President Yoon Suk Yeol and U.S. President Joe Biden met to commemorate the 70th anniversary of the partnership. The presidents issued the Washington Declaration, reiterating the allies’ ironclad commitment to upholding regional peace and stability. Building on their solid relationship, this reinforced commitment lays the groundwork for expanded cooperation involving Japan. The nations aim to cooperate in economic security and technology, signifying a new chapter of international collaboration.

The dynamic nature of the alliance, with its ability to evolve and withstand challenges such as policy divergence regarding North Korea, demonstrates the partnership’s inherent strength. Fluctuations underscore the intricate and inherently fluid nature of the alliance. Understanding and acknowledging this complexity is vital for military and security practitioners aiming to strengthen and advance the steadfast alliance. To ensure a robust, agile and globally oriented strategic partnership, there is a need to focus on transnational issues and resilience, particularly in areas such as humanitarian assistance and disaster response (HADR).

Navigating the commitment

Before North Korea invaded the South in June 1950, U.S. military support included post-World War II rebuilding and training of a standing ROK Army. As the North’s Soviet-backed forces, joined by Chinese troops, attempted to exert communist control across the Korean Peninsula, the United Nations Security Council called on member nations to defend South Korea. Of the 16 countries that sent troops to the South’s aid, U.S. forces comprised about 90% of the U.N.’s military contingent. Following the Korean War armistice and the signing of the ROK-U.S. Mutual Defense Treaty in 1953, the primary U.S. concern was the possibility of being drawn into renewed conflict on the Korean Peninsula. Meanwhile, South Korea, facing constant threat from North Korea, needed defense assurances and guarantees of economic, political and diplomatic support, which were crucial for the country’s survival and post-war rebuilding efforts. 

From the 1960s to the 1980s, at the height of the Cold War, the U.S. and South Korea faced divergent but interconnected risks in their alliance. U.S. foreign policy emphasized the need for allies to take primary responsibility for their own defense, with the U.S. playing a supportive role. Additionally, with U.S. foreign policy increasingly focused on human rights, South Korea’s human rights record under a then-authoritarian regime strained relations at times. In response to the U.S. posture, South Korea aggressively pursued economic development and military modernization and sought self-defense capabilities, including possible development of a covert nuclear weapons program, which posed a security dilemma for both nations.

In managing their alliance, South Korea and the U.S. sought to reduce the risks each nation faced. The establishment of the Combined Forces Command (CFC) in South Korea in 1978 was crucial in bolstering the ROK-U.S. relationship, marking a pivotal moment in the alliance’s history. The CFC, led today by U.S. Gen. Paul LaCamera as commander and ROK Gen. Kang Shin Chul as deputy commander, symbolizes the U.S. commitment to defending South Korea. The command structure reaffirms the U.S. presence and engagement on the Korean Peninsula and secures South Korea’s autonomy in defense matters. The CFC’s creation symbolized a renewed commitment to shared defense responsibilities and strategic coordination, helping to build trust and cooperation.

In the post-Cold War period, the ROK-U.S. alliance encountered a new challenge, primarily driven by shifts in foreign policy toward North Korea. From 1998 to 2008, South Korea embarked on the “Sunshine Policy,” which provided economic aid to North Korea to improve inter-Korean relations. However, it did not address fundamental issues such as the North’s human rights abuses and nuclear weapons development. While the South Korean administration provided economic support to North Korea, the U.S. adopted a different approach, including imposing sanctions aimed at ending the North’s nuclear weapons program. In 2005, the U.S. appointed the first special envoy on human rights in North Korea, further emphasizing a commitment to addressing human rights issues in the region. The U.S. also prioritized security concerns, viewing North Korea chiefly as a regional threat. Conversely, the South Korean administration and public saw the potential for reconciliation and unification, viewing North Korea more as estranged kin than imminent threat. In the alliance’s more recent history, the U.S. strategy, focusing on tough sanctions and aimed at persuading the North to participate in denuclearization talks, has also diverged from ROK initiatives.

Over the years, however, Washington and Seoul have successfully navigated such periods, reinforcing their longstanding commitment to regional stability and global nonproliferation. This enduring commitment is underscored by the ROK’s adherence to the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) since 1975, which solidified its policy against the development of nuclear weapons. The Washington Declaration cemented this position, reiterating Seoul’s ongoing dedication to a nuclear-free path in alignment with its alliance-centered security strategies. This consistent approach reflects the deep and sustained alignment of values and objectives between the two nations, underpinning their unified stance against nuclear proliferation on the Korean Peninsula. It represents their shared vision for a denuclearized and stable region, showcasing both nations’ unwavering commitment to peace and security amid evolving global dynamics.

Learning from the past

The seven-decade history of the ROK-U.S. alliance is characterized by evolution and dynamic interplay as the nations navigate challenges. Alliances can strengthen, weaken or even dissolve in response to shifts in states’ interests, domestic political landscapes and perceptions of other states’ actions. The ROK-U.S. alliance has experienced periods of fortification and strain, which have prompted fundamental questions for security practitioners dedicated to its advance: How can lessons from the past inform a strategic approach to future challenges and opportunities?

The U.S. military has stationed tens of thousands of personnel in the ROK since the 1953 Korean War armistice. U.S. law affirms the relationship by agreeing to maintain 28,500 troops in support of a peaceful and stable Korean Peninsula. Polls consistently show that most people in both nations view the ever-strengthening alliance positively. Since 2012, about 90% of respondents in South Korea have deemed the ROK-U.S. alliance necessary, and 80% believe it would remain important even after a potential unification of the Koreas, according to South Korea’s Asan Institute for Policy Studies. In the U.S., a 2022 survey revealed strong support for U.S. military bases in South Korea, with 72% of respondents in favor of maintaining a long-term military presence, the Chicago Council on Global Affairs think tank reported. 

The core issues in the ROK-U.S. alliance stem from the fundamental Korean dynamic, which encompasses South Korea’s challenge in achieving equilibrium among key objectives such as establishing a self-reliant defense posture, pursuing reconciliation with the North and balancing its alliance with the U.S. The U.S. focuses on deterring North Korean aggression without escalating regional tensions. This multifaceted dynamic reflects the interplay of strategic, regional and global factors that shape the ROK-U.S. relationship. The alliance itself may change, which is to be expected. By thoroughly understanding the Korean dynamic, the ROK and the U.S. have managed and strengthened their alliance. Adaptability has been key to creating a more responsive and flexible partnership that is better equipped to address contemporary challenges and navigate the complexities of the modern geopolitical landscape.

In 2023, as a direct outcome of the commitments made in the Washington Declaration, the ROK-U.S. alliance took a significant step forward with the establishment of the Nuclear Consultative Group (NCG). This development symbolizes a proactive and collaborative effort by both governments to jointly plan and prepare for potential nuclear contingencies on the Korean Peninsula. The NCG not only reinforces the U.S.’s extended deterrence commitments to South Korea but also directly addresses the South’s security concerns in the face of nuclear threats. This forum for cooperation on nuclear strategy enhances strategic alignment and significantly advances U.S. nonproliferation efforts in the region. The creation of the NCG is a testament to the adaptability and strength of the alliance. It demonstrates how strategic foresight and lessons from the past can inform contemporary responses to emerging challenges, solidifying the partnership as a dynamic, resilient force in navigating the complexities of today’s geopolitical landscape.

Advancing the alliance

Over the decades, the ROK-U.S. alliance has undergone a significant transformation, shifting from an asymmetric and regionally focused relationship to one that is more symmetric and globally oriented. Initially dependent on U.S. military and economic aid, South Korea has evolved into an economic, military and cultural powerhouse. This evolution is exemplified by President Yoon’s publication of South Korea’s first Indo-Pacific Strategy and the establishment of the trilateral partnership with Japan and the U.S. Seoul’s 2023 National Security Strategy reaffirms a commitment to “actively address the rapidly evolving security environment” and to promote international peace, security, human rights and economic development. Seoul has contributed to U.N. peacekeeping missions and anti-piracy efforts, promoted global nonproliferation, and deployed forces to the Persian Gulf, Afghanistan and Iraq. For example, the Zaytun Division — with 3,600 ROK personnel contributing to the global war on terrorism — conducted peacekeeping and reconstruction missions in Iraqi Kurdistan from 2004 to 2008 and was lauded for its role in stabilization and economic development. Reflecting its growing global influence, South Korea has expanded its economic and military assistance. In 2023, it increased overseas development aid to $3.4 billion, the government-affiliated news agency Yonhap reported. The move signifies a commitment to playing a more significant role in international affairs and underscores South Korea’s status as one of the world’s top economies. Additionally, Seoul’s support to Ukraine, including military supplies and assistance in rebuilding the education system, demonstrates its emergence as a key global player. This progression creates a more balanced and globally focused ROK-U.S. partnership and represents a pivotal shift in strategic dynamics.

As the ROK-U.S. alliance evolves, it is imperative to broaden its scope beyond traditional security concerns to address transnational issues and resilience, particularly in areas such as HADR. The transformation sets the stage for more comprehensive engagement in international challenges. The alliance’s capacity to adapt and respond to a range of global crises, including natural disasters and humanitarian emergencies, not only reinforces its relevance in the 21st century but also exemplifies its commitment to global stability and shared values. This aligns with the alliance’s strategic evolution, letting it make significant contributions to international peace and security, while also addressing the urgent needs of communities affected by crises worldwide.

Addressing transnational issues and resilience is vital for the alliance. It reflects a commitment to global interconnectedness and humanitarian obligations, enhancing the alliance’s influence and international standing. Engagement in HADR, for example, prepares both nations for the growing challenges of climate change, strengthening readiness and response capabilities. Such efforts also foster mutual trust and cooperation and contribute to peace and stability by mitigating causes of conflict.

HADR efforts are less likely to obligate either nation to unwanted political or military commitments or to cause significant shifts in strategic priorities. This focus aligns with both nations’ shared values and objectives without the complexities of defense and security agreements that often entail intricate balancing acts of geopolitical interests. Jointly addressing and preparing for HADR significantly enhances the ROK-U.S. alliance by fostering operational coordination and readiness. Enhancing civil-military coordination within the alliance’s initiatives is key in this regard, as as it not only improves response capabilities but also builds mutual understanding and trust. This increased familiarity of each nation’s procedures and capabilities leads to more efficient and effective responses during disasters. Enhancing civil-military coordination within HADR initiatives can be achieved through practical steps. First, establishing joint civil-military operational centers would facilitate real-time communication and decision-making between military assets and civilian disaster management authorities. These centers could serve as coordination hubs during disaster response operations. Second, regular joint training and simulation exercises involving military and civilian disaster response teams would ensure that all parties are well-versed in each other’s protocols and capabilities, leading to seamless integration during emergencies. 

Moreover, developing shared platforms for data exchange and intelligence gathering would enable military and civilian entities to access vital information, enhancing situational awareness and response efficiency. Collaborative planning sessions, where military and civilian leaders strategize and prepare for disaster scenarios, would also be instrumental in aligning objectives and approaches. Additionally, incorporating lessons from disaster response operations into planning would improve civil-military coordination. By taking these steps, the ROK-U.S. alliance can ensure a comprehensive, rapid and cohesive response mechanism that leverages the strengths of military and civilian capabilities.

An evolving partnership

The ROK-U.S. alliance is a testament to enduring collaboration and strategic evolution. Over seven decades, the alliance has navigated myriad challenges. Its trajectory has been shaped by the complex interplay of geopolitical dynamics, national interests and shifting global landscapes, underscoring the alliance’s resilience and adaptability. The alliance’s ability to manage risks has been central to its longevity and effectiveness. The balancing act reflects the nuanced understanding and strategic foresight of both nations. While grounded in mutual defense and security, the alliance has transcended boundaries to encompass goals of regional stability and global cooperation.

As the alliance moves forward, its evolution from a predominantly military-focused partnership to a more balanced, globally oriented relationship is pivotal. South Korea’s increasing global role, coupled with the U.S.’s commitment to regional stability, sets the stage for more dynamic and impactful collaboration. By addressing contemporary challenges, the ROK-U.S. alliance not only fortifies its strategic relevance but also contributes significantly to global peace and security. This strategic pivot toward a comprehensive, inclusive approach ensures that the ironclad alliance will remain a cornerstone of stability in the Indo-Pacific and key to addressing global challenges.