June 25, 2015
U.S.-North Korea Relations
North Korea has presented the United States with some of
take divergent approaches. Furthermore, the collapse of the
the most vexing and persistent foreign policy challenges of
nuclear talks has intensified concerns about proliferation, as
the post-Cold War period. Efforts to halt North Korea’s
cash-strapped North Korea might sell its nuclear technology
nuclear weapons program have occupied the past three U.S.
or fissile material to another country or a non-state actor.
administrations. Since 2009, North Korea has rebuffed U.S.
Evidence of North Korea’s past nuclear cooperation with
and South Korean offers to negotiate on denuclearization,
Syria and Libya has alarmed some national security experts.
despite previous commitments to do so. Particularly under
its young leader Kim Jong-un, North Korea has continued
The Obama Administration reached an agreement with
to develop its nuclear and missile programs. Although the
North Korea on February 29, 2012 (the so-called “Leap
primary focus of U.S. policy toward North Korea has been
Day Agreement”) that proved to be short-lived. The deal
the nuclear weapons program, many other issues populate
committed North Korea to a moratorium on nuclear tests,
the U.S. policy agenda, including Pyongyang’s missile
long-range missile launches, and uranium enrichment at the
programs, illicit activities, provocations against South
Yongbyon nuclear facility, as well as the readmission of
Korea, and human rights violations.
International Atomic Energy Agency (IAEA) inspectors.

The Obama administration pledged 240,000 metric tons of
“nutritional assistance” and greater engagement with
Pyongyang. North Korea scuttled the deal only two months
later by launching a long-range rocket. A third nuclear test
in February 2013 further hindered efforts to restart talks.
Nuclear, Missile, and Cyber Capabilities
North Korea has tested three nuclear devices, in 2006,
2009, and 2013, and has declared itself a nuclear-armed
state. North Korea appears to be expanding its capacity to
produce both plutonium and highly enriched uranium for

nuclear weapons. Experts estimate that North Korea has
Source: Graphic created by CRS. Map generated by Hannah
produced between 30 and 50 kilograms of separated
Fischer using Department of State Boundaries (2011); Esri
plutonium, enough for at least half a dozen nuclear
(2014); DeLorme (2014).
weapons. Since nuclear talks broke down, North Korea has
restarted its plutonium-production reactor and has openly
U.S. Policy Toward North Korea
built a uranium enrichment plant (other clandestine
enrichment facilities likely exist). North Korea has
The Obama administration’s policy toward North Korea,
repeatedly emphasized the role of its nuclear weapons as a
often referred to as “strategic patience,” is to put pressure
deterrent.
on the regime in Pyongyang while insisting that North
Korea return to the six-nation denuclearization negotiations,
North Korea has launched five long-range ballistic missiles
called the Six-Party Talks. (The talks, which began in 2003
(sometimes in the guise of a satellite launch) in the past 20
but have not been held since 2008, include the United
years, and only one (in December 2012) was ostensibly
States, China, North Korea, South Korea, Japan, and
successful. Open source assessments of North Korea’s
Russia.) The U.S. government has closely coordinated this
warhead and ballistic missile development have differed,
approach with allies Japan and South Korea and attempted
particularly on the question of whether the North has the
to convince China to be tougher on North Korea. At the
capability to miniaturize a warhead to fit it on an
same time, the United States has sought to pressure
intercontinental ballistic missile. In October 2014, the
Pyongyang through international and unilateral sanctions
Commander of U.S. Forces in Korea remarked that North
and arms interdictions. U.S. officials have stated that, under
Korea may have the ability to do so. However, other experts
the right conditions, they seek a comprehensive package
argue that North Korea has not tested its long-range
deal for North Korea’s complete denuclearization that
missiles enough to constitute a credible threat.
might include the normalization of relations and significant
aid.
Security experts and U.S. officials have also voiced
concerns about Pyongyang’s apparently growing cyber
Critics claim that the Administration’s policy has not
capabilities. South Korea has accused North Korea of
prevented Pyongyang from improving its missile and
launching cyberattacks on media outlets, banks, and a
nuclear capabilities. The policy also depends on U.S. allies
nuclear reactor operator. The FBI has blamed North Korean
maintaining unity, which could crumble if those capitals
hackers for a November 2014 attack against Sony Pictures.
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U.S.-North Korea Relations
Although some cybersecurity experts remain skeptical of
concluding in February 2014 that North Korea had
North Korea’s capabilities, its apparent willingness to use
committed “crimes against humanity” that are “essential
such tactics aggressively is a concern for U.S. officials.
components” of the Kim regime’s system of rule.
Moreover, the Commission argued that the individuals
China’s Role
responsible should face charges at the International
Criminal Court (ICC). In November 2014, U.N. member
U.S. policy to pressure North Korea depends heavily on
states voted overwhelmingly to recommend that the UNSC
China’s influence. In addition to being North Korea’s
refer the human rights situation in North Korea to the ICC.
largest trading partner by far—accounting for about 70% of
Although many analysts speculate that either Russia or
North Korea’s total trade—China also provides food and
China (or both) will use its veto at the UNSC to prevent this
energy aid that is an essential lifeline for the regime in
referral, the United Nations has become a central forum for
Pyongyang. The effectiveness of multilateral sanctions
pressuring the North Korean government to respect the
relies heavily on Chinese enforcement. Beijing cannot (or
human rights of its citizens.
has chosen not to) completely control Pyongyang’s
behavior, as suggested by North Korea’s destabilizing
Internal Situation
nuclear tests and missile launches. Many analysts agree,
however, that even a temporary cessation of Chinese trade
Since assuming power in December 2011, supreme leader
and/or aid would have a significant impact on North Korea.
Kim Jong-un appears to have consolidated his hold on
power, though much uncertainty remains, given the opaque
China’s overriding priority appears to be to prevent the
nature of the North Korean regime. Kim has been
collapse of North Korea. Beijing states that it fears the
promoting a two-track policy (the so-called byungjin line)
destabilizing effects of a humanitarian crisis, significant
of economic development and nuclear weapons
refugee flows over its borders, and the uncertainty of how
development. The range of luxury amenities available to the
other nations, particularly the United States, would assert
privileged in Pyongyang has expanded, while many if not
themselves on the peninsula in the event of a power
most North Koreans still live in meager circumstances.
vacuum. Beijing is supporting joint industrial projects
Although many non-elite North Koreans’ economic
between China’s northeastern provinces and North Korea’s
fortunes have improved under Kim Jong-un, speculation
northern border region. Some Chinese leaders also may see
that his regime might pursue systematic economic reforms
strategic value in having North Korea as a “buffer” between
to harness market forces has proven incorrect so far.
China and the democratic, U.S.-allied South Korea.
Kim has engaged in several spasms of executions and
However, since 2010 an increasing number of Chinese
purges of high-level North Korean officials. Notably, he
academics have called for a reappraisal of China’s friendly
executed his uncle-in-law and then-number two leader, Jang
ties with North Korea, citing the material and reputational
Song-taek, in December 2013, demonstrating a brutal
costs to China of maintaining such ties. The rhetorical
leadership style. Jang’s departure also eliminated one of
emphasis Chinese leaders now place on denuclearization of
Beijing’s main contacts within the regime; Jang had been
the Korean Peninsula—reportedly even in meetings with
seen as relatively friendly to Chinese-style economic
North Korean officials—may suggest that Beijing’s
reforms. Kim also purged Ri Yong-ho, then-North Korea’s
patience could be waning. In what is viewed by many
army chief, in 2012 and reportedly executed Hyon Yong-
observers as a diplomatic snub, Chinese President Xi
chul, the Minister of Defense, and 15 other high-level
Jinping has had several summits with South Korean
officials in 2015. Almost 70 top officials reportedly have
President Park Geun-hye but has yet to meet with the North
been executed in North Korea since Kim came to power.
Korean leader Kim Jong-un. Despite this apparent cooling
in relations, Beijing remains an obstacle to punishing North
Pyongyang appears to be slowly losing its ability to control
Korea in international fora, such as the United Nations.
information flows from the outside world into North Korea.
Surveys of North Korean defectors reveal that some within
International Focus on Human Rights Record
North Korea are growing increasingly wary of government
propaganda and are turning to outside sources of news,
Although the nuclear issue has dominated U.S.-North
especially foreign radio broadcasts, which are officially
Korea relations, U.S. officials regularly voice concerns
illegal. North Korea in 2009 also restarted a mobile phone
about North Korea’s “abysmal” human rights record. The
network that now has over 2.4 million subscribers.
plight of many North Koreans is dire. The State
Although phone conversations in the country are monitored,
Department’s annual human rights reports and reports from
the spread of cell phones could enable faster and wider
private organizations have portrayed a little-changing
dissemination of information.
pattern of extreme human rights abuses by the North
Korean regime over many years. Multiple reports have
Emma Chanlett-Avery, echanlettavery@crs.loc.gov,
described a system of prison camps that house
7-7748
approximately 100,000 political prisoners.
Ian E. Rinehart, irinehart@crs.loc.gov, 7-0345
Sungtae Park, jspark@crs.loc.gov, 7-5050
In 2013, the U.N. Human Rights Council established a

commission to investigate “the systematic, widespread and
grave violations of human rights” in North Korea,
IF10246
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