[This is the script for the extended audio version my May 13, 2017 Asia Brief episode "Shame in San Francisco: America's Betrayal of Korea".]
A continuing frustration for US strategic planners is the
deep mistrust and division between Japan and South Korea.
You’d think it would be: You hate Communists, we hate
Communists. You hate China, we hate
China. We’re both US allies! We should hang out!
But it’s never like that, as US Secretary of State Rex
Tillerson has found out as he tries to wrangle Japan and South Korea into line
on North Korea policy.
The current friction point is furious sparring over the
placement of a “comfort woman” statue in front of the Japanese consulate in
Busan, South Korea. It is there to
confront and shame Japan over its use of 200,000 Korean women as sex slaves for
the Japanese army throughout Asia during World War II.
Japan decided to be angry instead of ashamed
and withdrew its consul from Busan as a sign of its disapproval.
The rancor between Japan and South Korea is deep and has its
roots in a century of injustice.
Awkwardly for the United States, the key injustice is the US and Japan
ganging up to screw Korea at the so-called San Francisco Peace Conference of
1951.
Why a “so-called” peace conference?
San Francisco was not a peace conference dealing out
victor’s justice to Japan after World War II.
Big Four Allies China and the Soviet Union weren’t invited. It wasn’t a peace conference dealing out
human justice for the victims of Japanese aggression in World War II. China, as victim with 40 million dead, wasn’t
there. Neither was Korea.
No, the San Francisco conference was the announcement of the
new Cold War order in Asia, in which Japan was rehabilitated as America’s
indispensable partner against Communist expansion.
World War II was officially
in the rear view mirror, and Japan’s victims were called on to suck it up and
let bygones be bygones.
The biggest ripoff of the San Francisco Treaty was to allow
Japan to set aside indefinitely the issue of reparations for countries it had
ravaged during the war.
As for Korea…well, nobody wanted to talk about Korea. In fact, keeping Korea out of the San
Francisco Conference and the Koreans in legal limbo was vital to the joint
US-Japanese project.
Japan had annexed Korea to the empire in 1910. Japanese rule over Korea did not go very
well.
Rule was often clumsy and brutal
and it was resisted. And when the horror
of World War II descended, Korea was stripped of hundreds of thousands of its
people to serve the Japanese war machine as soldiers and policemen, workers in
its mines and factories, and sex slaves.
Approximately half a million died.
Because of the 1910 annexation, Koreans lived and died as
full citizens of the Japanese empire.
But as the Japanese empire crumbled in the waning days of
World War II, it appears Japan decided to abandon its dreams of empire and
re-invent itself as a monoethnic nationalistic bastion, as Ataturk reinvented
the core of the Ottoman empire as Turkey after the catastrophe of World War
I. That meant dumping Korea…and
forgetting the Koreans.
Literally the last act of the Japanese emperor before
submitting to the US occupation in 1945 was to downgrade the citizenship of
Koreans, both in Korea and in Japan, by stripping them of their right to
vote.
By 1951 over 600,000 Koreans, many of whom had resided there
for decades, remained in Japan. Now
known as zainichi or “sojourners”, they were considered to be an unwelcome,
unassimilable underclass riddled with criminals and Communists, that the US and
Japanese authorities were eager to repatriate to Korea as soon as possible.
When it came time to negotiate a peace treaty and restore
Japanese sovereignty, Japan was prepared
to fling aside its claim to rule Korea without a thought. However, Japan and the US saw a danger that
the zainichi might agitate for rights and residence and citizenship and
compensation in Japan and mess up the nice neat settlement that was planned.
The inconvenience was removed by refusing to let the
Republic of Korea participate in the conference and put the zainichi on the
agenda. As soon as the San Francisco
Treaty was ratified and Japan regained its sovereignty, it passed a law
stripping the Korean zainichi of their Japanese citizenship and turned them
into stateless persons.
And once the Koreans were stripped of their Japanese
citizenship, they were not entitled to share in the benefits of Japanese
citizens, such as the compensation the postwar Japanese government voted to
Japanese war veterans…even though the Korean veterans had been full Japanese
citizens during the war.
Having denied the Koreans
Japanese citizenship to strip them of any current rights, the US and
Japan colluded to use Koreans’ previous Japanese citizenship to strip them of
their past rights.
According to the US and Japan, all those things that Japan
had done to Koreans before and during World War II were legal, because Koreans
were citizens of the Japanese empire and subject to Japanese law. Just like Japanese citizens on the main
islands, they were not entitled to compensation for their suffering and ill
treatment during the war.
Koreans, in other words, were only Japanese citizens when it
could hurt them and not when it could help them.
As to the legal standing of the Republic of Korea, Japan and
the United States certainly didn’t regard it as the restored government of
pre-1910 independent Korea. It was
simply a successor administration put in place by the United States, which had
taken over land that Japan had legally annexed with extensive international
recognition in 1910 but then formally renounced in 1951 per the terms of the
peace treaty.
Obligation of Japan to the ROK: nothing.
Less than nothing, in fact.
As late as 1957, the Japanese government was still claiming
that the South Korean government should compensate Japan for Japanese property
lost after the war. And when Japan and
South Korea finally normalized relations, it was not on the basis of criminal
liability and reparations; it was on the basis of mutual commercial
restitution, tying up a few loose ends after Japan had legally walked away from
Korea.
The negotiations took 15 years. In 1965, the Park dictatorship concluded an
agreement to normalize relations with Japan that many Koreans regarded as a
sellout. Japan promised $300 million in
cash and $500 million in soft loans; and with the encouragement of the United
States, the ROK endorsed the San Francisco Treaty as a “final settlement”. The resultant demonstrations and rioting
brought martial law to the streets of Seoul.
As far as Japan was concerned, that was the end of it. It had no obligation either for 35 years of
colonization or for its conduct during the war.
But for Korea it was just the beginning of decades of legal
arguing and moral hectoring in an attempt to get Japan to acknowledge it had
done wrong on the Korean peninsula.
A variety of arguments were put forth: that the 1910
annexation was illegal, because a key document lacked the Korean emperor’s
official seal; that despite the 1965 agreement, individual Koreans still had
the legal right to pursue compensation for abuses during colonial rule; and
since the Dokdo islands had not been explicitly mentioned in the San Francisco
Peace Treaty as Japanese territory, Japan should accept them as ROK territory.
In short, the entire historical record was trawled to
discover any plausible legal grounds for compelling acknowledgment of
culpability and compensation by Japan.
By review of thousands of pages of Korean government
documents relating to negotiations over normalization with Japan, a new issue
was discovered, one that had not in any way shaped the 1965 treaty
negotiations: the comfort women.
It was an especially compelling issue because apparently
only Korean and Chinese women were subjected to forced conscription as sex
workers serving the Japanese military, not ethnic Japanese or Okinawans. This gave the lie to to Japanese claim of
equal treatment to Koreans as full Japanese citizens during the war and exposed
the exploitative and colonial aspect of Japanese rule.
The Japanese government dodged and weaved to try to minimize
the public relations fallout of the wrenching testimony of Korean women who
were taken from their homes, shipped overseas to military brothels, and forced
to have sex with up to 50 Japanese soldiers a day. No, smearing them as willing prostitutes was
not the way out. The Japanese government
stammered out some apologies and mediated the establishment of a comfort women
fund…funded by private contributions.
In other words, no acknowledgment of Japanese government
responsibility, no admission of legal liability for acts during the period of
Japanese rule, and no obligation to pay compensation.
When arch-nationalist Shinzo Abe came to power, Japan
rejected the “victor’s justice” of World War II and changed the frame of Korean
dialogue to Japan’s victimhood. Instead
of talking about the millions of Korean lives shattered by Japan’s imperial
misdeeds, he obsessed with 13 Japanese abductees kidnapped by North Korea. And by an act of the Japanese parliament, it
was officially confirmed that Japan had never officially apologized for the
treatment of the comfort women.
No surprise, then, that resentment still smolders at the
heart of Japanese-Korean relations.
In the United States, jumping in bed with Japanese war
criminals is seen as George Kennan’s masterstroke that kept America in the game
in the Western Pacific. In fact, the
post World War II security structure in Asia is called the San Francisco
System.
As one group of US diplomats put it:
The US has pretty much written the betrayal of Korea at San
Francisco out of history. Maybe that’s
why it finds Korea-Japan hostility so baffling.
Let me try to help.
Instead of the beautiful friendship between the United
States and Japan, think of San Francisco as the horrible end of a horrible
marriage between Korea and Japan.
The husband, Japan, beat the wife, Korea, raped the
daughters, sent the sons off to die on battlefields and in the mines. Then he
abandoned the family, found a crooked court, and bribed the judge. He got an ironclad divorce and dodged
alimony. And then the husband married
the crooked judge—the United States—and started a new life of riches and honor. And then came back to tell the ex-wife she’s
not doing enough to make the relationship work.
If Koreans don’t find that kind of relationship beautiful,
maybe we can…forgive them.
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