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Timely food for thought from the future, lots of EXACTO MUNDO observations from Kaplan.
The Atlantic Monthly | October 2006
When North Korea Falls
The furor over Kim Jong Il’s missile tests and nuclear brinksmanship obscures the real threat: the prospect of North Korea’s catastrophic collapse. How the regime ends could determine the balance of power in Asia for decades. The likely winner? China
by Robert D. Kaplan
The abbreviation for North Korea used by American military officers says it all: KFR, the Kim Family Regime. It is a regime whose demonization by the American media and policy makers has obscured some vital facts. North Korea’s founder, Kim Il Sung, was not merely a dreary Stalinist tyrant. As defectors from his country will tell you, he was also a popular anti-Japanese guerrilla leader in the mold of Enver Hoxha, the Stalinist tyrant of Albania who led his countrymen in a successful insurgency against the Nazis. Nor is his son Kim Jong Il anything like the childish psychopath parodied in the film Team America: World Police. It’s true that Kim Jong Il was once a playboy. But he has evolved into a canny operator. Andrei Lankov, a professor of history at South Korea’s Kookmin University, in Seoul, says that under different circumstances Kim might have actually become the successful Hollywood film producer that regime propaganda claims he already is.
Kim Jong Il’s succession was aided by the link that his father had established in the North Korean mind between the Kim Family Regime and the Choson Dynasty, which ruled the Korean peninsula for 500 years, starting in the late fourteenth century. Expertly tutored by his father, Kim consolidated power and manipulated the Chinese, the Americans, and the South Koreans into subsidizing him throughout the 1990s. And Kim is hardly impulsive: he has the equivalent of think tanks studying how best to respond to potential attacks from the United States and South Korea—attacks that themselves would be reactions to crises cleverly instigated by the North Korean government in Pyongyang. “The regime constitutes an extremely rational bunch of killers,” Lankov says.
Yet for all Kim’s canniness, there is evidence that he may be losing his edge. And that may be reason to worry: totalitarian regimes close to demise are apt to get panicky and do rash things. The weaker North Korea gets, the more dangerous it becomes. The question that should be of greatest concern to the U.S. military in the Pacific—and the question that will likely determine the global balance of power in Asia for generations—is, What happens when North Korea collapses?
The Nightmare After Iraq
n the Korean peninsula, the Cold War has never ended. On the somber, seaweed-toned border dividing the two Koreas, amid the cries of egrets and Manchurian cranes, I observed South Korean soldiers standing frozen in tae kwon do ready positions, their fists clenched and forearms tightened, staring into the faces of their North Korean counterparts. Each side picks its tallest, most intimidating soldiers for the task (they are still short by American standards).
In the immediate aftermath of the Korean War, the South raised a 328-foot flagpole; the North responded with a 525-foot pole, then put a flag on it whose dry weight is 595 pounds. The North built a two-story building in the Joint Security Area at Panmunjom; the South built a three-story one. The North then added another story to its building. “The land of one-upmanship,” is how one U.S. Army sergeant describes the DMZ, or demilitarized zone. The two sides once held a meeting in Panmunjom that went on for eleven hours. Because there was no formal agreement about when to take a bathroom break, neither side budged. The meeting became known as the “Battle of the Bladders.”
In other divided countries of the twentieth century—Vietnam, Germany, Yemen—the forces of unity ultimately triumphed. But history suggests that unification does not happen through a calibrated political process in which the interests of all sides are respected. Rather, it tends to happen through a cataclysm of events that, piles of white papers and war-gaming exercises notwithstanding, catches experts by surprise.
Given that North Korea’s army of 1.2 million soldiers has been increasingly deployed toward the South Korean border, the Korean peninsula looms as potentially the next American military nightmare. In 1980, 40 percent of North Korean combat forces were deployed south of Pyongyang near the DMZ; by 2003, more than 70 percent were. As the saying goes among American soldiers, “There is no peacetime in the ROK.” (ROK, pronounced “rock,” is militaryspeak for the Republic of Korea.) One has merely to observe the Patriot missile batteries, the reinforced concrete hangars, and the blast barriers at the U.S. Air Force bases at Osan and Kunsan, south of Seoul—which are as heavily fortified as any bases in Iraq—to be aware of this. A marine in Okinawa told me, “North Korea is not some third-rate, Middle Eastern conventional army. These brainwashed Asians—as he crudely put it—“will stand and fight.” American soldiers in Korea refer to the fighting on the peninsula between 1950 and 1953 as “the first Korean War.” The implicit assumption is that there will be a second.
This helps explain why Korea may be the most dismal place in the world for U.S. troops to be deployed—worse, in some ways, than Iraq. While I traveled on the peninsula, numerous members of the combat-arms community, both air and infantry, told me that they would rather be in Iraq or Afghanistan than in Korea, which constitutes the worst of all military worlds. Soldiers and airmen often live on a grueling wartime schedule, with constant drills, and yet they also have to put up with the official folderol that is part of all peacetime bases—the saluting and inspections that fall by the wayside in war zones, where the only thing that matters is how well you fight. The weather on the peninsula is lousy, too: the winds charging down from Siberia make the winters unbearably frigid, and the monsoons coming off the Pacific Ocean make the summers hot and humid. The dust blowing in from the Gobi Desert doesn’t help.
The threat from north of the DMZ is formidable. North Korea boasts 100,000 well-trained special-operations forces and one of the world’s largest biological and chemical arsenals. It has stockpiles of anthrax, cholera, and plague, as well as eight industrial facilities for producing chemical agents—any of which could be launched at Seoul by the army’s conventional artillery. If the governing infrastructure in Pyongyang were to unravel, the result could be widespread lawlessness (compounded by the guerrilla mentality of the Kim Family Regime’s armed forces), as well as mass migration out of and within North Korea. In short, North Korea’s potential for anarchy is equal to that of Iraq, and the potential for the deployment of weapons of mass destruction—either during or after pre-collapse fighting—is far greater.
For a harbinger of the kind of chaos that looms on the peninsula consider Albania, which was for some years the most anarchic country in post-Communist Eastern Europe, save for war-torn Yugoslavia. On a visit to Albania before the Stalinist regime there finally collapsed, I saw vicious gangs of boys as young as eight harassing people. North Korea is reportedly plagued by the same phenomenon outside of its showcase capital. That may be an indication of what lies ahead. In fact, what terrifies South Koreans more than North Korean missiles is North Korean refugees pouring south. The Chinese, for their part, have nightmare visions of millions of North Korean refugees heading north over the Yalu River into Manchuria.
Obviously, it would be reckless not to worry about North Korea’s missile and WMD technologies. In August, there were reports yet again that Kim Jong Il was preparing an underground nuclear test. And the North test fired seven missiles in July. According to U.S. data, three of the missiles were Scud-Cs, and three were No-dong-As with ranges of 300 to 1,000 miles; all were capable of carrying a nuclear warhead. (Whether North Korea has such warheads is not definitively known, but it is widely believed to have in the neighborhood of ten—and the KFR certainly has the materials and technological know-how to build them.) The third type of missile, a Taep’o-dong-2, has a range of 2,300 to 9,300 miles, which means it could conceivably hit the continental United States. Though the Taep’o-dong-2 failed after takeoff during the recent testing, it did so at the point of maximum dynamic pressure—the same point where the space shuttle Challenger exploded, and the moment when things are most likely to go wrong. So this is likely not an insoluble problem for the KFR.
The Seven Stages of Collapse
im Jong Il’s compulsion to demonstrate his missile prowess is a sign of his weakness. Contrary to popular perception in the United States, Kim doesn’t stay up at night worrying about what the Americans might do to him; it’s not North Korea’s weakness relative to the United States that preoccupies him. Rather, if he does stay up late worrying, it’s about China. He knows the Chinese have always had a greater interest in North Korea’s geography—with its additional outlets to the sea close to Russia—than they have in the long-term survival of his regime. (Like us, even as they want the regime to survive, the Chinese have plans for the northern half of the Korean peninsula that do not include the “Dear Leader.”One of Kim’s main goals in so aggressively displaying North Korea’s missile capacity is to compel the United States to deal directly with him, thereby making his otherwise weakening state seem stronger. And the stronger Pyongyang appears to be, the better off it is in its crucial dealings with Beijing, which are what really matter to Kim.
To Kim’s sure dismay, the American response to his recent missile tests was a shrug. President George W. Bush dispatched Christopher Hill, his assistant secretary of state for East Asian and Pacific affairs, to the region rather than Secretary of State Condoleezza Rice. I was in South Korea during the missile firings, and there were few signs of alert on any of the U.S. bases in Korea. Pilots in several fighter squadrons were told not to drink too much on their days off, in case they had to be called in, but that was about the extent of it.
What should concentrate the minds of American strategists is not Kim’s missiles per se but rather what his decision to launch them says about the stability of his regime. Middle- and upper-middle-level U.S. officers based in South Korea and Japan are planning for a meltdown of North Korea that, within days or even hours of its occurrence, could present the world—meaning, really, the American military—with the greatest stabilization operation since the end of World War II. “It could be the mother of all humanitarian relief operations,” Army Special Forces Colonel David Maxwell told me. On one day, a semi-starving population of 23 million people would be Kim Jong Il’s responsibility; on the next, it would be the U.S. military’s, which would have to work out an arrangement with the Chinese People’s Liberation Army (among others) about how to manage the crisis.
Fortunately, the demise of North Korea is more likely to be drawn out. Robert Collins, a retired Army master sergeant and now a civilian area expert for the American military in South Korea, outlined for me seven phases of collapse in the North:
Phase One: resource depletion;
Phase Two: the failure to maintain infrastructure around the country because of resource depletion;
Phase Three: the rise of independent fiefs informally controlled by local party apparatchiks or warlords, along with widespread corruption to circumvent a failing central government;
Phase Four: the attempted suppression of these fiefs by the KFR once it feels that they have become powerful enough;
Phase Five: active resistance against the central government;
Phase Six: the fracture of the regime; and
Phase Seven: the formation of new national leadership.
North Korea probably reached Phase Four in the mid-1990s, but was saved by subsidies from China and South Korea, as well as by famine aid from the United States. It has now gone back to Phase Three.
Kim Jong Il learned a powerful lesson by watching the fall of the Ceausescu Family Regime, in Romania: Take utter and complete control of the military. And so he has. The KFR now rules through the army. There have been only individual defections of North Korean soldiers to the South. Even small, unit-level defections—which would indicate that soldiers are talking to one another and are no longer afraid of exposure by comrades—have not yet occurred. One defector from the North’s special-operations forces told me that soldiers in the ranks are afraid to discuss politics with one another.
The North Korean People’s Army is simply too big to be kept happy and well fed, so the regime concentrates on keeping the elite units comfortable. The defector I spoke to—a scout swimmer—told me that while the special-operations forces live well, the extreme poverty of conventional soldiers would make their loyalty to Kim Jong Il in a difficult war questionable. Would they fight to defend the KFR if there were an unforeseen rebellion? The Romanian example suggests that it depends on the circumstances: when workers revolted in 1987 in Brasov, the Romanian military crushed them; when ethnic Hungarians did so two years later in Timisoara, the military deserted the regime.
How to Prevent Another Iraq
tephen Bradner, a civilian expert on the region and an adviser to the military in South Korea, has thought a lot about the tactical and operational problems an unraveling North Korean state would present. So has Colonel Maxwell, the chief of staff of U.S. Special Operations in South Korea. “The regime in Pyongyang could collapse without necessarily its army corps and brigades collapsing,” Maxwell says. “So we might have to mount a relief operation at the same time that we’d be conducting combat ops. If there is anybody in the UN who thinks it will just be a matter of feeding people, they’re smoking dope.”
Maxwell has conducted similar operations before: he was the commander of a U.S. Army Special Forces battalion that landed on Basilan Island, in the southern Philippines, in early 2002, part of a mission that combined humanitarian assistance with counterinsurgency operations against Jemaah Islamiyah and the Abu Sayyaf Group, two terrorist organizations. But the Korean peninsula presents a far vaster and more difficult challenge. “The situation in the North could become so messy and ambiguous,” Maxwell says, “that the collapse of the chain of command of the KFR could be more dangerous than the preservation of it, particularly when one considers control over WMD.”
In order to prevent a debacle of the sort that occurred in Iraq—but with potentially deadlier consequences, because of the free-floating WMD—a successful relief operation would require making contacts with KFR generals and various factions of the former North Korean military, who would be vying for control in different regions. If the generals were not absorbed into the operational command structure of the occupying force, Maxwell says, they might form the basis of an insurgency. The Chinese, who have connections inside the North Korean military, would be best positioned to make these contacts—but the role of U.S. Army Special Forces in this effort might be substantial. Green Berets and the CIA would be among the first in, much like in Afghanistan in 2001.
Obviously, the United States could not unilaterally insert troops into a dissolved North Korea. It would likely be a four-power intervention force—the United States, China, South Korea, and Russia—officially sanctioned by the United Nations. Japan would be kept out (though all parties would gladly accept Japanese money for the endeavor).
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