South Korea's New Unification White Paper Proposes 'Peaceful Coexistence Between Two States'

The release of the Lee Jae-myung administration's inaugural Unification White Paper marks a significant departure from previous approaches to inter-Korean relations. By framing the relationship as a 'peaceful coexistence between two states,' the government acknowledges the current reality on the Korean Peninsula, including North Korea's recent constitutional revisions that solidify its status as a distinct entity. This pragmatic stance, detailed in the white paper titled 'Records of Peaceful Coexistence on the Korean Peninsula in 2025,' signals a strategic shift towards mutual respect and dialogue, moving away from the confrontational rhetoric that has often characterized inter-Korean affairs.

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The 'peaceful coexistence policy' pursued by successive governments for 35 years since the adoption of the Inter-Korean Basic Agreement.

This new policy directly contrasts with the Yoon Suk-yeol administration's approach, which emphasized a unification vision led by South Korea and focused on pressuring North Korea over denuclearization. The Lee administration's white paper, conversely, adopts a more gradual, three-phase denuclearization strategy ('interruption-reduction-abolition') and prioritizes the restoration of the September 19, 2018 inter-Korean military agreement. This focus on de-escalation and practical measures, such as resuming dialogue and normalizing relations before full denuclearization, reflects a different understanding of how to achieve lasting peace on the peninsula.

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The three principles of respecting the North Korean regime, not pursuing absorption unification, and not pursuing hostile acts.

The white paper also introduces new terminology, replacing 'North Korean defectors' with 'North Koreans' (북향민), a subtle yet significant change that underscores the administration's intention to foster a sense of shared identity and mutual recognition. The emphasis on 'peaceful coexistence' over 'unification' and the reduced focus on North Korean human rights compared to previous white papers are notable. From a South Korean perspective, this shift is seen by proponents as a more realistic and achievable path to stability, prioritizing the immediate goal of preventing conflict and building trust. It reflects a belief that a top-down, pressure-based approach has failed and that a more patient, engagement-oriented strategy is necessary.

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The 'bold plan' and other policies that emphasized freedom and unification while pressuring the North Korean regime and emphasizing nuclear deterrence.

This approach is particularly interesting from a domestic viewpoint, as it directly addresses the anxieties of South Koreans regarding potential conflict and the economic burden of unification. By prioritizing 'peaceful coexistence' and de-escalation, the government aims to reassure the public that stability is the primary objective. The inclusion of the 9.19 military agreement's restoration as a key task is also significant, as it represents a concrete step towards reducing military tensions along the border. This narrative of pragmatic peace-building, while potentially drawing criticism from those advocating for a harder line on North Korea, is designed to resonate with a public weary of prolonged confrontation and seeking tangible progress towards stability on the peninsula.

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The 2026 Unification White Paper: Records of Peaceful Coexistence on the Korean Peninsula in 2025.